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EXECUTIVE SUMMARY
BACKGROUND OVERVIEW
The consultation on Preventing Household Waste in Scotland was published by the Scottish Executive and SEPA on 6 February and ran until 28 April 2006.
Findings from the analysis of consultation responses, along with results from a consultation event and focus groups are intended to feed into the development of future plans for household waste prevention and an action plan on household waste prevention in Scotland. Results will also help to provide evidence to the Scottish Parliament's Environment and Rural Development Committee on the Member's Bill proposing a levy on plastic bags.
The consultation posed a series of 42 questions, focusing on the main issues raised in the consultation document, and which were divided into 5 main sections: product designers and manufacturers, retailers, consumers, communities and local authorities.
OVERVIEW OF RESPONDENTS
A total of 170 responses to the consultation were received comprising 91 responses from organisations and 79 from individuals. Among organisations, the largest number of responses received was from local authorities while the consumer and political party sub-groups each submitted one response.
While the consultation document offered 42 questions for consideration, over half of all respondents (86) focused solely on the issue of the impact of plastic bags on the environment. This included a letter campaign which produced 37 identical responses.
KEY THEMES
Across the consultation as a whole, there was a higher level of support - rather than opposition - for each of the proposals presented, although some respondents chose not to answer every question. Across the analysis as a whole, a number of key themes emerged and these are outlined below.
A need for consumer education and information
Many respondents noted a lack of awareness on issues surrounding household waste in Scotland. While this lack of awareness was primarily associated with consumers, there were also views that some individuals working within other sectors such as retail or manufacturing also lacked awareness of many of the issues to do with household waste. In line with this, many also perceived a need for concerted information and education campaigns to increase awareness and knowledge of key issues. The Scottish Executive was perceived to be the natural instigator of a nation-wide campaign that can present a clear and consistent message to consumers. This could then be backed up with further tailored campaigns at a local level.
A need for research
In a number of instances, respondents noted a need for further research to be carried out. For example, many of the issues raised impact not only on Scotland but further afield and many respondents noted the usefulness of research to see what processes and procedures are being adopted in other countries and to learn from examples of "good practice". In this way, Scotland can introduce tried and tested systems that are known to work.
A need for guidance and training
Some respondents noted a need for guidance to be produced not only for consumers, but also for others (retailers, manufacturers, local authorities and so on) involved in waste management. There was a perception that this would help to bring about consistency of good practice across Scotland as a whole and ensure that good practice is shared across all relevant organisations.
In line with this need for guidance, some respondents also noted a need for training to be provided. For example, some noted that in order for local authorities to achieve targets that could be laid down by the Executive in relation to waste prevention, local authority officers would need training on the skills needed to encourage waste prevention. Across the consultation as a whole, there were a wide range of suggestions for areas in which training needs to be provided, albeit that some questioned where additional funding would come from.
The international nature of waste management
While this consultation paper focused primarily on waste management in Scotland, there were acknowledgments that in many instances the issue of waste management falls under UK or EU guidelines and legislation. So, in some instances respondents noted the need for any changes in Scotland to meet with wider legislation and that it may not be possible to instigate initiatives on a Scotland-only basis.
The cost of implementation
While there was broad agreement for the proposals as outlined in the consultation paper, there were some concerns that the cost of implementing specific measures might outweigh their environmental benefits. There were also some comments that funding would be needed to implement many of the new initiatives available, although there were queries as to which organisation(s) would be responsible for additional funding. For nationwide initiatives, the Scottish Executive was seen as the natural provider of funding.
PRODUCT DESIGNERS AND MANUFACTURERS
There was broad agreement on the need to promote eco-design in Scotland, although preferences for the best way to achieve this varied. There was also support for carrying out further work on the waste profiles of products, although a range of different types of organisation were cited as warranting involvement in this. The highest level of support was for working with other government departments across the UK on either waste profiles or environmental profiles.
In terms of product life span specifically, a need was identified for providing better information to consumers and providing more support to companies. There were also suggestions for changes to marketing materials to help encourage consumers to move away from a "disposable" lifestyle to one based on repair, re-use and recycling.
For disposable products specifically, highest levels of support were for the introduction of producer responsibility legislation.
Respondents cited a need for campaigns to raise awareness of issues related to product design and manufacture and / or for education campaigns to help encourage better understanding of issues in relation to product design. Responses pointed to the need for a wide range of different bodies and organisations to work together on product design. The international nature of many of these issues was highlighted, with suggestions that some of these should be dealt with at a UK or EU level.
RETAILERS
There was broad agreement of a need for guidance and support for retailers to build waste considerations into their procurement processes, and some suggestions that legislation is needed to back this up.
The need for further training for retailers and their employees was cited by many respondents, although views were split as to which organisations should have responsibility for its delivery and there were comments that training needs to be tailored to different sectors and / or products.
In terms of food waste specifically, respondents identified a need for retailers to provide more information to consumers. While there were concerns that this could lead to an increase in packaging, information relating to health and hygiene issues was seen to be a priority. There were some suggestions that more information could be provided in store rather than on product labelling itself.
There was general agreement that more could be done to collect and use surplus food from wholesalers, retailers, caterers and other outlets and support for greater promotion of schemes in relation to this.
Once again, education for consumers was perceived to be needed on issues in relation to food waste, although there were suggestions that retailers also need to consider actions they can undertake to help reduce levels of consumer food waste.
Views were relatively split as to whether the Packaging (Essential Requirements) Regulations 2003 are working. Some consultees noted that there is a lack of awareness of these regulations and others commented on a lack of enforcement that can undermine their credibility.
While views were split over which specific options could be utilised to minimise household waste from packaging, the majority of consultees supported some form of action. Other comments included suggestions for an increase in the number of collection schemes or recycling sites. While there was support for re-use through deposit and return schemes, concerns were raised over their practicality and implementation and the type(s) of products best suited to these schemes.
There was broad support for more action to be taken to reduce waste from the retailing of products, although views on how this could be brought about varied. Almost half of the consultees perceived a need for retailers to provide consumers with information and noted the importance of any information being clear, meaningful, useful and accessible.
CONSUMERS
There was majority support for further action to be taken to make it easier for consumers to raise environmental and waste issues with retailers and other providers of goods and services. That said, there were, once again, suggestions that consumers need to be educated to raise their awareness of the issues or how they can complain about excessive packaging. There were also suggestions of a need for a change in consumer attitudes to create less of a "disposable goods" lifestyle. In terms of unwanted mail specifically, a number of respondents noted the need for an increased awareness and promotion of the Mail Preference Service. There were also calls for more composting initiatives and/ or wider publicity for existing initiatives.
While initiatives such as home composting were welcomed, there were comments that home composting, rather than community composting, is not possible in all areas. One example given was city centre areas where there may be a high density of tenements.
There was a level of support for some form of environmental loyalty card, although there were some concerns about how such a scheme would operate.
PLASTIC BAGS
Over half (86) of all respondents only replied to the questions relating to the issue of plastic bags (questions 19 and/ or 20). The majority of these respondents were in favour of no action being taken and that the issue should be given no priority or a low priority.
Of those who responded to the consultation paper as a whole; there was equal support for promotion of voluntary measures by retailers and other bodies handing out plastic bags, or for the introduction of a levy on plastic bags as proposed by Mr Pringle's Bill. A high level of priority was favoured by these respondents.
Many consultees felt that plastic bags are already re-used by many households while a number felt that action on plastic bags could be a symbolic step which would serve to raise awareness of wider waste and resource use issues.
COMMUNITIES
There was a general view that more could be done to take a Scotland-wide overview of the re-use of products such as furniture, paint and carpets, although many cited a need for more information or education for consumers and encouragement for those working in the re-use and repair sector. That said, there were also comments that it can be difficult to persuade consumers to consider re-use or repair for some low cost items, particularly if the cost of repair is high in comparison to purchase of a new product. There were also suggestions for a sustainable and national network of schemes and the social benefit that this can bring to Scotland.
The concept of community composting was supported by some consultees, although it was thought that this would work better in some communities than others.
A greater number of consultees supported non mandatory recycling credits rather than mandatory. Alternatives suggested including giving local authorities decision making powers on this issue or development of service level agreements. There was also less support for extending recycling credits to re-use and / or waste prevention.
LOCAL AUTHORITIES
A number of consultees agreed with the proposal for Scottish local authorities to adopt a similar approach to that adopted in the London Borough of Barnet, and some noted that some Scottish local authorities already operate similar schemes.
When asked specifically about the size of bins provided by local authorities for residual waste, the greatest level of support was for advice on the size of residual bins and frequency of collections (the highest level of support coming from local authorities). However, there were some comments that services need to be tailored to specific areas or types of household.
In terms of green waste collection specifically, there was support for further research and guidance on green waste composting to minimise the effect on waste arisings. Again, there were some calls for this to be tailored to individual areas. There were some concerns that kerbside collection serves to discourage composting.
While there was support for the Executive to consider amending the existing regulations allowing charges to be made for the collection of other types of household waste, there were some concerns over a possible increase in fly-tipping or other illegal disposal practices.
Views on whether or not the Executive should consider issuing guidance on charging for special uplifts of bulky items and garden waste were split. If guidance is to be issued, the main point raised by consultees was the need for a fair, consistent, basic charging structure and guidance on this.
From those commenting, while there was majority support for direct variable charging the key issue to emerge was concern over a possible increase in flytipping or other practices. In addition, respondents felt that flexibility was needed to enable local authorities to exercise local discretion. Some local authorities also highlighted the need to change consumer behaviour and expressed the opinion that charges could help to do this. There was some support for further research into the effects of charging. Similarly, there was majority support for the Executive to carry out further work on incentives, with some consultees noting the importance of "positive" incentives to help bring about waste awareness. A pilot scheme was suggested by some consultees.
A greater proportion of consultees agreed with the proposal for waste management contracts or service level agreements to include incentives for waste prevention than disagreed. A significant number also noted that there was scope for provisions on waste prevention in local authority contracts for products and services (other than waste management).
A majority of consultees agreed that the Executive should take action to ensure local authorities do more on waste prevention, although funding for this was perceived by some to be an issue. It was also noted that other types of organisations also have a part to play in this. In terms of setting targets for local authorities in relation to waste prevention, a greater number of consultees agreed with this than disagreed, although there were some queries as to what targets should be set against. Some respondents also noted a need for training in this area.
There were some comments on the need to allocate more money to waste prevention, although there are concerns as to what the position will be in 2007-08 when Strategic Waste Fund resources from Phase 1 will no longer be ring-fenced.
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