The report is the product of an in-depth consideration of the planning Study Management Facilities: A Research Planning for Waste ODPM issues arising from the provision of waste management facilities. A wide consultation with professionals and operators in the field was carried out for this study which focuses on site-level planning. It sets out the research team's views on the planning considerations raised by a broad range of waste management facilities and identifies the information likely to be required by planning authorities in determining planning applications. The report provides profiles for each type of waste management facility, including a scoping matrix to facilitate the identification of potential impacts. Planning for Waste Management Facilities A Research Study ISBN 1-85112-714-3 ISBN 1 85112 714 3 £18 9 781851 127146 Planning for Waste Management Facilities: A Research Study August 2004 Enviros Consulting Office of the Deputy Prime Minister: London The findings and recommendations in this report are those of the consultant authors and do not necessarily represent the views or proposed policies of the Office of the Deputy Prime Minister. Following the reorganisation of the government in May 2002, the responsibilities of the former Department of the Environment, Transport and the Regions (DETR) and latterly Department for Transport, Local Government and the Regions (DTLR) in this area were transferred to the Office of the Deputy Prime Minister. The Office of the Deputy Prime Minister Eland House Bressenden Place London SW1E 5DU Telephone 020 7944 4400 Web site www.odpm.gov.uk © Queen’s Printer and Controller of Her Majesty’s Stationery Office, 2004 Copyright in the typographical arrangement rests with the Crown. This document/publication is value added. If you wish to re-use this material, please apply for a Click-Use Licence for value added material at www.hmso.gov.uk/copyright/licences/valueadded/valadded_licence.htm. Alternatively applications can be sent to: HMSO’s Licensing Division St Clements House 2-16 Colegate Norwich NR3 1BQ Fax: 01603 723000 E-mail: licensing@cabinet-office.x.gsi.gov.uk Further copies of this publication are available from: ODPM Publications PO Box 236 Wetherby West Yorkshire LS23 7NB Tel: 0870 1226 236 Fax: 0870 1226 237 Textphone: 0870 120 7405 E-mail: [email protected] or online via the Office of the Deputy Prime Minister’s web site. ISBN 1 85112 713 5 Printed in Great Britain on material containing 75% post-consumer waste and 25% ECF pulp. August 2004 Reference Number 04PD02508 Contents Preface 5 Introduction to this research 7 Part I – General Planning Issues Current Practice 7 Introduction 7 Current Experience of Planning Issues for Waste Facilities 7 Local Authority Responsibilities 8 Key Issues Facing Waste Planners and Developers 9 Generic Planning Considerations 10 Introduction 10 Waste Management Principles 10 Best Practicable Environmental Option 11 Regional Self Sufficiency and the Proximity Principle 11 Waste Hierarchy 12 Environmental Impact Assessment 12 Need 14 Alternatives 14 National and European Policy 15 Introduction 15 European Policy 16 National Policy & Legislation 22 How Does the Legislation Affect the Different Facility Types? 29 Future Trends 32 Waste Facility Options 34 Waste Streams 34 Waste Management Facilities 36 Further reading 44 Glossary 46 3 Contents Part II – Facility Profiles Composting 61 Anaerobic digestion 77 Processing of recyclables 92 Mixed waste processing 106 Pyrolysis and gasification 120 Small scale thermal treatment 135 Large scale thermal treatment 151 Landfill 167 Landfill gas plant 183 Leachate treatment plant 198 Small scale facilities 211 Waste transfer 225 4 Preface This research study was commissioned by the Office of the Deputy Prime Minister (ODPM), into the planning considerations associated with waste management facilities. The study was undertaken by Enviros Consulting, and the majority of the work was carried out by Tim Hammond, Linda Crichton, Debbie Everard, Paul Hatherley and Dave Sellwood. The consultants were assisted throughout the study by a steering group whose advice and guidance was gratefully received. The members of the steering group were: Tom Simpson, ODPM David Stritch, ODPM Andrew Lipinski, ODPM Gillian Neville, DEFRA Nigel Hunt, Leicestershire County Council and Planning Officers Society Phil Ackerley, Environment Agency Michael Oliver, Viridor Waste Management and Environmental Services Association Nick Hollands, Onyx UK Ltd and Environmental Services Association Wayne Laramee, Environmental Services Association The research included remote consultation with over 180 local authorities, waste management professionals and organisations with an interest in waste management, as well as more in depth interviews with individuals in these fields. We are grateful to everyone who has contributed. This research reflects the views of the study team and does not necessarily represent the views of the ODPM or any other parties involved. It is a stand alone study and does not represent new ODPM good practice guidance, which is proposed to be prepared as part of the review of PPG 10. 5 Introduction to this research The research has been produced in two parts. Part 1 sets out generic issues facing those involved with planning for waste management, and considers: ● Current Practices ● Generic Planning Considerations ● National and European Policy ● Future Trends ● Waste Facility Options Part 2 contains profiles for each kind of waste management facility, all based upon a common format. The facilities are described in terms of use and waste stream processed, site setting, planning issues, mitigation and future issues. The content required for a planning application for each type of facility is discussed, as is the need for Environmental Impact Assessment. A scoping matrix is included with each facility profile, to facilitate the identification of any potentially significant effects of the facility. Case examples of representative facilities are also included. 6 Part I – General Planning Issues Current Practice Introduction This research considers planning issues associated with waste management facilities that primarily handle household and other commercial and industrial waste streams that are similar in type and composition. Municipal waste is the waste stream that local authorities have a duty to collect and dispose of and, in terms of numbers of facilities, the majority of operations are likely to be subject to planning control. However in terms of the total waste generated in England, household and commercial wastes represent only 26% (49 million tonnes) of all controlled wastes or 13% of all wastes. The larger proportion is made up from waste produced by industry, construction and demolition activities, agriculture, mining & quarrying and the waste water industry. Today’s waste management industry is going through a major process of change. These changes are being brought about by legislative and fiscal drivers as summarised later in this document. The likely consequences of these changes are also discussed later. In terms of today’s practices we are still dominated by landfill as the primary means of waste disposal. England recycles about 13% of its municipal waste stream, and deals with 9% by thermal treatment, primarily incineration with energy recovery. This does not compare favourably with the waste management methods of most of the UK’s European neighbours. For example, Switzerland Waste management measures by country, 1999/2000 recycles and composts 45%, incinerates 48% and landfills just 7%. Current Experience of Planning Issues for Waste Facilities Experience in waste planning issues extends beyond the planning and development control issues associated with landfill sites. There is very good understanding and practical knowledge of the planning issues associated with a wide range of facility types. Most Waste Planning Authorities have many years experience of working with industry to permit facilities such as civic amenity sites, transfer stations and certain recycling operations. 7 Planning for Waste Management Facilities: A Research Study Although there is good experience in certain parts of the Country, this is heavily influenced by local circumstances. This research involved wide consultation with waste planning officers and industry representatives and identified a relatively predictable pattern, as summarised in the table below. WPA experience of waste facilities Planning Experience Facility Type Little or none Anaerobic digestion, Pyrolysis/Gasification, In-vessel composting Patchy Leachate treatment, Mixed waste processing (e.g. mechanical biological treatments) Large scale thermal treatment, Small scale thermal treatment, Windrow composting, Processing of recyclables Good Landfills, Civic amenity sites, Waste transfer stations, Landfill gas extraction/utilisation There is good experience of the traditional and established waste management techniques but only patchy practical experience associated with new and emerging facilities. Many new and emerging facilities have very different siting and general planning control issues compared with methods such as landfill, with many involving the application of process techniques more characteristic of industrial processing. These are usually housed within modern industrial type buildings and are more typical of developments which have business class land use characteristics. Local Authority Responsibilities Local authorities have a number of responsibilities with respect to waste management.