Waste strategy

Executive summary

It is necessary to improve recycling performance to achieve the next statutory target of 70%. As part of developing an action plan, two all Member seminars have been held, one in October 2022 and one in February 2023, which was followed by a Scrutiny Task & Finish Group also held in February. The outcome of the latter was reported to the Environment, Regeneration and Streetscene Services Scrutiny Committee in March, which commended the output of the Task & Finish Group for consideration by the Cabinet Board in making its final decision on an action plan. The recommendations from the Task & Finish Group are therefore detailed and considered in this report which contains the resultant proposed action plan.

Background

The Council’s recycling performance at the end of 2021/22 was 66% and previous ongoing improvement has halted. The Council therefore needs to review its approach and produce an action plan to re-invigorate growth in performance to ensure the next statutory recycling target of 70% is met.

Failure to achieve the statutory recycling targets can be subject to a fine by Welsh Government of £200 for every tonne the target is missed, and in every year the target is missed. For Neath Port Talbot it is estimated the potential fine would amount to £130,000 per 1% the target is missed. Therefore, if the Council’s recycling rate remains at 66% and does not improve; the potential total financial penalty could be circa £520,000 for every year the target is missed. Consequently, compliance with the statutory target would provide for significant cost avoidance, as a penalty of this amount would increase financial pressures on the Council.

As part of developing an action plan an all-Member seminar was held on 13^th October 2022 where the current context and issues were presented and discussed, along with some indicative actions. This was followed by a four week consultation period for Members to make further contributions or seek answers to further queries. A subsequent seminar was then held on 16^th February 2023 where modified potential measures were presented and further considered.

The Environment, Regeneration and Streetscene Services Scrutiny Committee also arranged a Task and Finish Group to consider and suggest recommendations on the draft Waste Strategy Action Plan.  The group met on 24^th February and a report from the Chair was submitted to the Environment, Regeneration and Streetscene Services Scrutiny Committee on 3^rd March.  The Committee endorsed the findings of the Task & Finish Group, and asked that these be considered by the Cabinet Board in coming to a final decision.  Where recommendations against proposed actions were made these are detailed and discussed in this report.

Fees and charges were discussed in the seminars and also in the Scrutiny Task and Finish Group where no suggestions were made. Furthermore, increases in fees and charges were consulted on as part of the general consultation the budget. Fees and charges for 2023/24 have therefore been dealt with under the delegated power arrangements approved by Council as part of the budget setting process, so they were in place for 1st April.

Proposed action plan

Measure 1

To modernise service delivery and help facilitate improved service monitoring for the benefit of customers, it is proposed to implement an in-cab live feed data system for waste vehicles.

Financial implications

• One-off process mapping, data update and IT platform - £50,000,
• One-off Capital - £150,000 (£3,000 per vehicle), plus, ongoing annual revenue costs of £15,000 which it is expected can be recovered from improved management of trade waste contracts alone.

Recommendations

There were no recommendations from the Scrutiny Task & Finish Group in relation to this item.

Measure 2

Employ a Recycling Officer (Grade 5) to pursue increased community engagement including schools engagement, produce online & physical educational materials.

Financial implications

Gr 5 Officer - £30,000 per annum plus a revenue marketing budget as follows:  Year 1 - £15K including production of new online resources (supplemented by a further £15K grant from WRAP), Year 2 Onwards - £15K for materials/advertising/community activities.

Recommendations

In relation to this measure, the Scrutiny Task and Finish Group has recommended that ‘emphasis be provided on the importance of education to the public on the potential new measures, and ensuring that leaflets, advertisement and virtual ‘how to’ videos are provided to the public to ensure engagement and the raising of awareness is achieved’.  Such emphasis will be given in the work of the proposed Recycling Officer.

It is noted that a recent survey carried out by the Industry Council of Packaging and the Environment has identified that 30% of people say a lack of information from councils on what happens to their recycling once collected negatively influences their confidence in recycling.  Ensuring this is not the case in Neath Port Talbot will be a specific task for the Recycling Officer post and it is proposed emphasis will also be provided in this regard also.

Measure 3

To re-introduce free biodegradable ‘dog poo’ bags for public use.  Bags to be made available for collection in community locations such as local shops alongside existing provision of food waste bags.

Financial implications

An initial up-front purchase cost for stock at £24,000 (Based on 1 box per fortnight for 60 locations of the County Borough)

Ongoing cost: Whilst as set out in the first all-member seminar the evidence suggests that many households are ordering more expensive food waste bags to use as dog poo bags, it is not known exactly how many of the average 30% of households with a dog are doing this.  It would be prudent to assume not all expenditure on dog poo bags would be recovered from savings in food waste bag provision, and it is suggested an ongoing net revenue increase of £10,000 for dog poo bags (estimated from previous bag provision costs) is budgeted for.

Recommendations

In relation to this measure the Scrutiny Task and Finish Group has suggested that ‘the progress of this measure be reviewed in a year’s time to ensure the use of the ‘dog poo’ bags are achieving its environmental targets within the financial agreements.  Also, it be ensured that all wards have access to ‘dog poo’ bags.  Furthermore, in the instances where there are no public amenities, dispensers to be provided’.  In response officers propose to include an update within the first quarterly performance report 12 months after the bags are made publically available, which will include a schedule of pick-up points across the County Borough.  Members can then compare progress of the scheme alongside other indicators such as the number of dog fouling incident reports for example.  Officers will aim to avoid dispensers wherever possible as in public areas the risk of vandalism and abuse of the bags is expected to be high, and there would be additional costs and resource issues associated with monitoring and stocking the dispensers.

Measure 4

Implement an additional Grade 4 delivery driver and van for recycling equipment along with an overtime budget allocation for times of increased service demand (i.e. summer for green bags, Christmas etc.).  In addition, investigate the feasibility of ‘click & collect’ facilities at HWRCs or other staffed locations.

Financial implications

Gr 4 delivery driver & van - £32,000 per year

Overtime - £7,000 and updated delivery tablets to improve efficiency of service - £1,400

Recommendations

There were no recommendations from the Scrutiny Task & Finish Group in relation to this item.

Measure 5

Changes to Absorbent Hygiene Product Collections

It is proposed to:

• Amend the pilot fortnightly nappy collection to include provision of a storage bin in addition to provision of purple collection sacks if desired by the resident, noting that currently 2,756 households have ordered AHP bags. (Neighbourhood zone teams to subsequently collect nappy storage bins no longer required for recycling going forward); and,
• Delay expansion of AHP separation across all rounds to 24/25.

At present, AHP is only kept separate on the rounds utilising the two pilot 3-compartment vehicles.  Extending separation by increasing the number of 3-compartment vehicles would be cheapest in revenue terms (although there would be a significant capital outlay), however experience from the trials as fed back by the drivers is that because of their larger size the vehicles are more limited as to where they can go compared to the other split back vehicle.  Replacing all the split back vehicles with 3-compartment vehicles is therefore not an option.  The expansion of separate ‘Nappy’ collections to all rounds would therefore need to be done by other vehicles such as with non-HGV tippers and drivers to separately collect AHP on rounds not covered by the 3 compartment vehicles.  The estimated cost of this would be in the order of £260,000 per year which, taken in isolation and in the context of the council’s current budget position, is believed to be unaffordable at present.  It is consequently proposed to expand the separation of AHP waste across the county borough in 2024/25 when the financial position is expected to be more favourable.

Financial implications

Storage bins - £35,000 one-off cost (any replacements to be paid for by existing equipment budget)

Recommendations

With respect to this measure the Scrutiny Task and Finish Group has suggested that the storage bin ‘also be utilised as a presentation bin’, with the purple collection sacks being stored within the bin and also presented at the collection point within the bin for crew to collect the bag from the bin. In response to this suggestion, officers recommend that Absorbent Hygiene Product waste is continued to be presented in the purple bags.  The vast majority of public feedback on the pilot collections has been a request simply for a storage bin to keep the AHP waste bags in between collection days with AHP being collected on a fortnightly basis.  Presenting the bags within a bin would just create operational issues and impact the crews, making collection of the bags more time intensive whilst operative have to wrestle the bags from the boxes at the collection points or take the bins to and from the collection vehicle.  In the case of the latter, operatives would also be less able to assess the contents of the bags and be less likely to identify any abuse of the AHP collections.

Measure 6

Review ‘side waste’ exemption policy and associated T & C’s re: provision of AHP collections and current abuse issues.  Also, review litter/waste enforcement policies where required.

Financial implications

Nil, completion within existing resources

Recommendations

There were no recommendations from the Scrutiny Task & Finish Group in relation to this item.

Measure 7

Review receptacles provided for recycling collections:

It is noted that a number of different seal designs have been trialled for plastic and cardboard sacks but the trialled designs found not suitable for openings on current recycling collection vehicles.  These will be reviewed again with introduction of new vehicles that are due ton 2023/24.  In the meantime: it is proposed to make better marketing of ‘do not overfill bags’; ‘please use the Velcro to secure’; and ‘obtain more bags if needed’ (Linked to Measure 2).

Financial implications

Nil at this stage

Recommendations

There were no recommendations from the Scrutiny Task & Finish Group in relation to this item.

Measure 8

Cleaner streets following collections.

It is proposed to action some measures to help keep streets cleaner and to help crews take more ownership of their rounds as follows:

• Compile accurate records of collection rounds and rebalance them where necessary (a survey of refuse rounds has already been completed, and a survey of recycling rounds is programmed for April);
• Look at maintaining greater stability of crews allocated to rounds;
• Better messaging associated with adverse weather and wind-blown litter (linked to Measure 2);
• Maximise the use of wheeled bins where practicable to minimise impact of animals;
• Further improve coordination with street cleansing;
• In the context that the council does not currently cleanse un-adopted streets/lanes at all – assess the number where we undertake waste collections and the cost of cleaning these as part of Measure 11.

Financial implications

Nil at this stage

Recommendations

The Scrutiny Task and Finish Group has suggested that ‘officers monitor the improvement of the coordination of the street cleansing following the collections and ensure that this is consistent throughout the County Borough’.  In response it is noted that both Waste and Neighbourhood Services supervisors will continue to monitor street cleanliness levels across the County Borough and, along with service managers, will do their best to ensure consistency of service delivery through the direction of resources available to them.  The level of baseline local environmental quality issues is however not consistent across the county borough and all resources cannot be directed to areas with acute problems.  With respect to waste collections, notwithstanding crews should attempt to clear any litter that is created during the collection process, information from on-board cameras in response to complaints often shows that significant littering is present before the time of the waste collection.  One aim of the changes though is to make it easier to link any crew related issues such a rushing and leaving a mess with relevant crews so issues can be tackled with them directly.

Measure 9

Employ two additional Recycling Awareness and Compliance Officers and:

• Complete ‘Collection Point’ plotting programme and introduce communal recycling facilities where required/beneficial;
• Roll-out further bin numbering to hotspots;
• Complete current ‘front of house’ collections trials;
• Continue with further changes to collections from rear lanes to front of house where there are acute rear lane environmental issues if appropriate;
• Increase waste enforcement in rears lanes where collections moved to front of house;
• Review FPN levels for environmental/waste offences

Financial implications

2 x Gr 6 officers with vehicles – estimated cost £87,000 per annum

Additional cost for bin labels - indicative one-off cost of £35,000

(further funding could be required for expansion if scheme successful which officers would look to pay for through waste disposal savings as the action plan progresses).

Recommendations

There were no recommendations from the Scrutiny Task & Finish Group in relation to this item.

Measure 10

Engage through enforcement those households not taking part in any way in the Council’s recycling scheme, and those not participating in the recycling of food waste specifically.

Undertake a pilot of stepped, targeted enforcement in Seven Sisters to test paperwork and procedures, and then roll out to other areas. (Note: Seven Sisters one of the lower participating areas for food waste recycling)

Enforcement in the pilot area would be introduced with explanatory correspondence to all residents, along with general information on recycling and access to additional kit where necessary.

The stepped approach would be:

1. Letter issued to all homes advising residents not to place items which could be recycled in their wheeled bin/bags.
2. Awareness raising visit(s) to properties not participating
3. Take necessary enforcement action via a legal Section 46 Notice and Fixed Penalty Notices

Financial implications

Nil.  The existing 3 Recycling Awareness and Compliance Officers, plus the above proposed additional 2 officers (Measure 9) would conduct the enforcement action.

Recommendations

There were no recommendations from the Scrutiny Task & Finish Group in relation to this item.

Measure 11

Conduct formal consultation with Households, the workforce and their Trade Union Representatives, and other stakeholders such as our Trade Waste customers, on moving to three weekly collections of non-recyclable residual waste with the existing 3 bag/140ltr wheeled bin limit, alongside continuing with weekly collections of recyclable waste including food waste; paper and card; plastic and metal cans; household batteries and glass.  The consultation to explore the way forward with green waste and nappy collection frequencies.

Subject to consultation, finalisation of proposals for green and nappy collections (to be brought back to Cabinet Board), and continued sub 70% recycling performance, implement 3 weekly collections in 2024/25 (70% target year) alongside ongoing weekly recycling collections.

Financial implications

Notwithstanding an expected saving in refuse collection vehicles and a saving in material ‘disposal’ should three weekly collections be implemented and recycling performance improve, it is anticipated the change may still require overall net investment if, for example, the council does not already have weekly AHP collections in place, or the council does not wish green waste collections to be made separate and chargeable as recommended by Welsh Government (to the extend they pay their way).  Maintaining green waste and AHP collections at a higher frequency will cost – with potentially three vehicle passes along each street in a refuse & recycling collection week as opposed to the current two (which would be 1 refuse vehicle three weekly & 2 recycling vehicles weekly).  As can be seen on the financial summary table below, it is assumed that with any move to three weekly collections, the resource savings in refuse collection will be redeployed to maintaining AHP and green waste collections at a higher frequency.  Also, it is noted with a delay to 2024/25, then Extended Producer Responsibility should be coming in at that time and funding from business via Government in respect of packaging waste should meet a proportion of any collection costs improving the financial position.

Recommendations

In response to this measure the Scrutiny Task and Finish Group has suggested ‘that the consultation is not immediately undertaken in 2023/24 and is deferred as long as possible, to enable the other measures to support improved recycling rates and improve the service to be implemented first. This is to avoid unnecessarily consulting on the proposal where it may not be required in the short term, resulting in a distraction from the important communication and education tasks needed to improve recycling in the Borough.  In response Officers believe the implementation of three weekly collections in 2024/25 may well be needed to achieve the next 70% recycling rate which is why the measure is in the plan, and detailed preparations and consultations need to start now.  Hence it is recommended there is no deferral.

Measure 12

Continue with booking system at HWRCs

Financial implications

Nil (there could expect to be a budget increase if the system were removed)

To help with service delivery it is proposed to improve the service IT tablets in use at the HWRCs at a total cost of £2,100.

Recommendations

There were no recommendations from the Scrutiny Task & Finish Group in relation to this item.

Measure 13

Improved recovery of recycling from litter waste

• Complete street litter bin and roadside litter composition analysis;
• Assess the likely impact of national DRS (Deposit Return Scheme) and EPR (Extended Producer Responsibility)
• Continue to send litter waste to EfW

Consider application of EPR monies to be provided for street litter to:

• Improve collection of recycling from recycling litter bins;
• Weigh-up litter pickers separating specific materials verses a ‘light’ pick of litter over a conveyor for glass, cans and cardboard (although DRS may mean that glass & cans disappear).

Financial implications

Cost of compositional analysis - annual cost of £6.5k for 3 years.  (This information will also be important to help make sure the council receives the correct amount of EPR funding to deal with Street Litter once proposals are finalised)

Recommendations

There were no recommendations from the Scrutiny Task & Finish Group in relation to this item.

Measure 14

Consider extending battery collections to include small electrical items – whatever will fit in the battery bag:

• Pilot some collections;
• Consider material arising after bedding-in period;
• Consider increasing size of battery bag (Pilot larger bag and dedicated collection stillage under next generation of vehicles)

Expand small electrical item collections if pilot successful.

Note: Our battery processor has confirmed they would not accept a mixed load of batteries and small WEEE (Waste Electrical & Electronic Equipment), although it is noted at current volumes batteries are only collected by our processor twice a year.  If small WEEE and batteries are mixed we would have to separate the two streams prior to sending for reprocessing (or abandon collecting batteries at the kerbside and just collect small WEEE instead).

Financial implications

The pilot exercise would need to resolve and cost the material separation issue.

Recommendations

There were no recommendations from the Scrutiny Task & Finish Group in relation to this item.

Measure 15

'Park’ reintroduction of textile collections for now to focus on food waste recovery and other improvements.

Much of the reason the previous textile collections were stopped (as set out in the associated Member report) remains valid.  It is also noted that the findings of a recent WRAP Cymru report into textiles collected at the kerbside indicated that the arisings are the lowest quality in comparison to HWRC’s and Bring Bank collected material.  Also, the market for reprocessing of textiles remains immature with limited capacity.  With regards to the anticipated ‘trade recycling’ regulation changes, the number of business customers within NPT is very small and it is understood access to recycling facilities at HWRC’s would be an acceptable route for any trade waste textile recycling.

Financial implications

Nil

Recommendations

There were no recommendations from the Scrutiny Task & Finish Group in relation to this item.

Measure 16

Work with the business unit of Property & Regeneration to complete a feasibility study for provision of a ‘Repair/Re-Use’ shop in the commercial centres of Port Talbot, Neath and Pontardawe.

Bid to WG for Circular Economy and Transforming Towns monies to implement findings as appropriate (CE grant applications will be available on a rolling basis for two years from April 2023)

Financial implications

One-off funding of £30,000.

Recommendations

There were no recommendations from the Scrutiny Task & Finish Group in relation to this item.

Measure 17

Commission a feasibility for a new improved HWRC site in Port Talbot/Lower Afan Valley area to replace the Cymmer facility and report findings to Members

Financial implications

One-off funding of £50,000

Recommendations

There were no recommendations from the Scrutiny Task & Finish Group in relation to this item.

Measure 18

Complete the service merger of waste collection and transfer station teams, complete Transfer Station site works & implement waste collection fleet move to co-locate with the transfer station.

Financial implications

Already agreed by Cabinet report of July 2022.

Recommendations

There were no recommendations from the Scrutiny Task & Finish Group in relation to this item.

Additional proposals from the Scrutiny Task and Finish Group

The following additional proposals were also put forward by Scrutiny members:

1. That the missed collection policy be reviewed and monitored by the Scrutiny Committee. Scrutiny Officers are aware of the request and can add a review of the missed bin policy to the forward work programme of the committee.
2. That Measures be taken to ensure that education and correct communication is provided to the public on the expectations of when their missed bin will be collected’. In response it is proposed waste officers will work with corporate colleagues in Media and Customer Services to take measure to highlight Council policy and ensure consistent messaging.
3. That a rolling programme of engagement with the service be provided in the form of a survey to the public. The service has engaged with members of the public in various locations and on numerous occasions such as front of house trials; bin numbering exercises and school engagement work. Furthermore, consultations are proposed in the action plan regarding service changes. In terms of engagement on overall service satisfaction and the like, it is proposed this be taken forward with corporate colleagues as part of the work being undertaken through the established Citizens Panel.

Financial impacts

A summary table of impacts is given below:

Integrated Impact Assessment

A first stage impact assessment for each measure where needed has been undertaken to assist the Council in discharging its legislative duties (under the Equality Act 2010, the Welsh Language Standards (No.1) Regulations 2015, the Well-being of Future Generations (Wales) Act 2015 and the Environment (Wales) Act 2016.

Copies of the Screening Assessments are included in Appendix A.  The first stage assessments have indicated that a more in-depth assessment is not required (with the caveat there is a consultation proposed to consider the potential move to three weekly refuse collections)

Valleys communities impacts

The action plan is expected to have an impact in helping to increase recycling performance across all parts of the county borough including valleys communities.

Workforce impacts

There are no adverse workforce impacts associated with this report.  The workforce will be consulted regarding a potential move to three weekly collections which it is anticipated would lead to some redeployment of resources from refuse to recycling collection.

Legal impacts

Ongoing legal advice will be provided in respect of each recommendation to ensure compliance with appropriate legislative requirements. There are no immediate impacts that would affect recommendations in this report.

Risk management impacts

An action plan is needed to increase recycling performance in line with statutory requirements.  Failure to do so will lead to the risk of substantial annual fines from Welsh Government and reputational damage.

Consultation

There is no requirement under the Constitution for external consultation on this item.  Two all Member Seminars and a Task and Finish Scrutiny Group have been held as part of developing the proposals in this report.  As part of understanding the issues with any move to three-weekly refuse collections it is proposed to consult with residents and the workforce.

Recommendation(s)

Having due regard to the Integrated Impact Assessment it is recommended that:

• Measures 1, 4, 6, 7 9, 10, 12, 13, 14, 15, 16, 17, and 18 are approved
• Measure 2 is approved, noting as requested by Scrutiny that emphasis will be provided on the importance of education to the public on the potential new measures, and ensuring that leaflets, advertisement and virtual ‘how to’ videos are provided to the public to ensure engagement and the raising of awareness is achieved’.  Emphasis will also be given to providing information on what happens to recycling once collected.
• Measure 3 is approved, noting further to Scrutiny input an update on the provision of dog poo bags will be provided in the first quarterly performance report available 12 months after the bags are made publically available, to include a schedule of pick-up points across the County Borough.
• Measure 5 is approved, and notwithstanding the suggestion by Scrutiny that the proposed material storage bins be used for presentation, it is recommended that Absorbent Hygiene Waste is continued to be presented for collection in the purple bags.
• Measure 8 is approved, noting further to input by Scrutiny that the Waste and Neighbourhood Services supervisors will continue to monitor street cleanliness levels across the County Borough and, along with service managers, will apply their best endeavours to ensure consistency of service delivery across the County Borough through the direction of resources available to them.
• Measure 11 is approved, and notwithstanding the suggestion by Scrutiny to the contrary that there be no deferral of consultations on a potential move to three weekly refuse collections.
• A communications protocol be developed to highlight Council policy on missed collections and ensure consistent messaging.
• A communications protocol be developed to secure engagement with the public generally in relation to obtaining feedback on waste services via the work being undertaken through the established Citizens Panel.
• Members approve use of the £350k that was identified as part of the 2023/24 revenue budget process for waste and built into the base budget as a one off transfer from reserves for the purpose of taking forward the action plan
• The Head of Streetcare makes application to Cabinet, via the Corporate Programme Steering Group, for the allocation capital funding of £230,000 from capital contingency to take forward the approved measures.

Reasons for proposed decision(s)

The primary reason for the implementing the action plan is to continue to make progress towards achieving the next statutory recycling target of 70% whilst at the same time addressing some service issues.

Implementation of decision

The decision is proposed for implementation after the three day call in period.

Appendices

Appendix A – Integrated Impact Screening Assessments

List of background papers

Environment & Highways Scrutiny Committee report of 28^th January 2016 – Side Waste Restriction

Street Scene and Engineering Cabinet Board Report of 20^th July 2018 – Waste Strategy Update

Cabinet Report of 30^th September 2020 – Kerbside Textile Collections

All Members Seminars and presentations of 13^th October 2022 and 16^th February 2023

Environment, Regeneration and Streetscene Services Scrutiny Committee of 3^rd March 2023 – Consider Recommendations to Waste Strategy Report

Officer contact