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Planning Advice Note: PAN 63. Waste Management Planning
Conclusion
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103. Planning authorities can play a key role in supporting the move
from a culture of disposal to one of reducing, reusing and recycling waste.
However, the challenge to improve our record in waste management rests
not only with planning authorities but with everyone. SEPA is the waste
regulation authority and its aims are set out in the NWS. As a guide to
development, AWPs will set the scene in implementing SEPA’s strategy
for the foreseeable future. This PAN aims to raise awareness of the issues.
It sets out our obligations, ideas on good practice, the justification
for planning policies and the links and commitments to other initiatives
to provide the sites necessary for new methods of waste management.
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Enquiries
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104. Enquiries about the content of this advice note should be addressed
to Graham Marchbank (0131 244 7525, graham.marchbank@scotland.gsi.gov.uk).
Copies and a list of current NPPGs and planning circulars can be obtained
by telephoning 0131 244 7066. Planning Advice Notes can be obtained by
telephoning 0131 244 7543.
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Annex
Principles of Sustainable Waste Management
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1. Taking into account the various drivers for change, the following
key principles should inform all decisions on future waste management
infrastructure;
- sustainability;
- self sufficiency and the proximity principle;
- the waste hierarchy;
- Best Practicable Environmental Option (BPEO).
The updated descriptions given in the PAN supersede those found in NPPG
10.
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2. These key principles should be used to assess the benefits and potential
dis-benefits of applications to develop waste management facilities. A
brief outline of each of these principles is given below. SEPA Waste Strategy
Area Co-ordinators should be contacted for more detailed guidance if necessary.
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3. The Scottish Executive is committed to working together for sustainable
development. The majority of policy areas impacting on sustainable development
are devolved to the Scottish Executive, reserved areas are covered by
the UK Government strategy, Sustainable Development — A Better
Quality of Life. The particular ways that the planning system can
encourage sustainable development are outlined in paragraphs 6 - 7 of
NPPG 1.
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4. The concept of sustainable development can be defined as "development
that meets the needs of the present without compromising the ability of
future generations to meet their own needs." While this captures the inter-generational
nature of "sustainable development" it can be too nebulous to
allow policy-makers to focus on the progress they need to make. The Scottish
Executive has therefore adopted priority areas in order to focus action
on sustainable development. The Executive will publish a clear statement
on what the Executive means by sustainable development and how it will
work towards greater sustainability.
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Self Sufficiency and the Proximity Principle
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See paragraph 33 of NPPG 10 for further information.
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5. The concept of regional self-sufficiency for waste management purposes
is established in NPPG 10 which states that providing a local waste management
network, structure plan areas should generally seek to provide sufficient
facilities for managing local waste. To serve common needs, the NPPG recognises
that provision in a neighbouring area may be closer to the waste source
and thus more compliant with the proximity principle.
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6. The proximity principle advocates that all waste should be disposed
of, or otherwise managed, as close as practicable to the point at which
it is generated. The main reasons for this are that:
- it is more likely to accord with the principles of sustainable development
by avoiding environmental damage caused by transporting waste over a
long distance;
- it encourages all those who create waste to take more responsibility
and consider carefully the effects of managing the waste they create;
- it may assist the local economy; and
- overall costs should be lower.
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7. Adherence to the proximity principle may be difficult where there
is an inadequate range or distribution of facilities close to where the
waste is generated. In some circumstances the movement of waste by alternative
modes to road e.g. rail, canal or sea, could involve longer journeys but
might nevertheless represent the BPEO. Special waste may require facilities
outwith the area.
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8. The waste hierarchy represents a ranking of different waste management
options, giving a broad indication of their relative environmental benefits
and dis-benefits. The hierarchy is a constantly evolving theoretical framework
that acts as a guide to waste management options that should be used when
assessing BPEO. Waste avoidance is invariably the best option economically
and for the environment. Although this is not specifically a land use
planning consideration, proposals which fulfil the higher elements of
the hierarchy should be favoured over those focused towards the lower
range.
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Best Practicable Environmental Option
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9. Best Practicable Environmental Option (BPEO)
is a key concept for the Area Waste Plan. The environmental impacts of different
options could vary widely and the application of the BPEO will assist in
determining the most sustainable method of waste management in a specific
instance. |
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10. SEPA Life Cycle Assessment (LCA) will aid
in determining the BPEO in the context of AWPs. This assessment will look
at the environmental effects of waste management "from cradle to grave"
using WISARD (Waste — Integrated Systems Assessment for Recovery and
Disposal) LCA software. WISARD is an important tool in determining the environmental
impact of certain waste management systems. Further information on its use
is available from SEPA Waste Strategy Area Co-ordinators. |
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11. BPEO assessment will also be necessary for
waste streams not covered by AWPs. This may be carried out at a development
planning stage but is more likely to be undertaken in the context of development
proposals. WISARD or other comparable tools should be used to assess the
suitability of the proposal. The methodology for any such assessment should
be agreed by the developer, the planning authority and SEPA. |
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National Decision Criteria |
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12. In addition to the use of a tool such as
WISARD LCA and feedback from consultation documents, AWPs will apply the
following National Decision Criteria to the determination of the BPEO. |
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Environmental |
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Air, Land and Aquatic Environment: How
much pollution would be released to air, soil and water under each option?
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Global Climate Change: What will be the
net release of gases such as carbon dioxide and methane which contribute
to global climate change under each option? |
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Non-Renewable Resource Use: How much finite
resources such as fossil fuels and mineral reserves will each option consume
and will the option improve resource use in the economy? |
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Economic |
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Cost: What are the total costs of waste
management under each option? |
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Financeability/Affordability: Can we afford
the option? How will it be funded e.g. will private industry provide the
waste facilities and services envisaged or will the option require public
spending? Will it involve up-front capital investment or longer term operating
costs? |
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Impact on Local Economy: What positive
or negative effects will each option have on the local economy due to waste
management related activities? |
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Social |
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Employment: What effect will the option
have on the type, numbers, quality and distribution of jobs in waste management
including recycling? What will be the effect on local employment levels?
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Making Producers Responsible: Does the
option encourage waste producers to take responsibility for their own waste?
(This of course raises questions about who is the producer? For example
is it the householder who discards waste packaging or is it the manufacturer
or retailer who packaged the goods in the first place?) |
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Public Acceptability: Is the option likely
to meet with the public’s approval? |
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Skills Base: What effect will the option
have on the provision and quality of training and on the quality and diversity
of skills in the workforce? |
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Social Implications (poverty, exclusion and
access): What effects will the option have on the welfare of local people,
for example, access to goods and services such as refurbished household
equipment? |
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Practicality |
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Flexibility: Does the option allow for
possible new demands on or opportunities for waste management arrangements
e.g. the need to collect additional material for recycling due to population
growth, the emergence of new waste management technologies? |
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Making Best Use of Existing Facilities and
Expertise: Does the option make effective use of existing waste management
sites, facilities and resources? |
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Practical Deliverability: Is there a risk
that the things needed to make the option work will not actually happen? |
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Technical Feasibility: What level of risk
is associated with the technologies involved e.g. because the are untried?
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Compliance with Other Policy |
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Compliance with Other Policies: Does the
option support or conflict with other areas of European, national or local
policy e.g. in planning, energy and economic development? |
Glossary
The descriptions given below are for general information only. These are not
legal definitions.
Anaerobic waste digestion — Involves the natural biodegradation
of waste material in the absence of oxygen. The process produces methane gas
which can be used for generating heat and energy. It also produces a compost
like substance which can in some cases be used as a soil amendment.
Biodegradable waste — Any waste that is capable of undergoing anaerobic
or aerobic decomposition, such as food and garden waste, and paper and paperboard.
BPEO - The Best Practicable Environmental Option. This is arrived at
by a 'systematic consultative and decision-making procedure which emphasises
the protection and conservation of the environment across land, air and water'
(Royal Commission on Environmental Protection 12th report, Best Practicable
Environmental Option, HMSO, 1988).
Bring System — System where facilities for recyclables such as
bottle, paper and textile banks often located at supermarkets are used by the
public.
Civic Amenity Site — A civic amenity site is a site provided
under section 1 of the Refuse Disposal Amenity Act 1978 for the collection
of bulky household waste, often with recycling points where householders may
dispose of waste free of charge.
Compost — organic matter decomposed aerobically or anaerobically
and used as a fertiliser or soil conditioner.
Construction/Demolition Waste — Waste arising from the demolition
or construction of buildings or other civil engineering structure which may
include masonry, rubble, wood, plastic and metal offcuts, as well as waste glass
and plastic sheeting.
EC Framework Directive on waste - (75/442/EEC as amended by 91/156/EC)
sets out a number of objectives and principles relating to the provision of
waste disposal and treatment facilities.
EC Landfill Directive - (99/31/EC), amongst other things, establishes
targets for reducing the quantity of biodegradable municipal waste which can
be landfilled.
Enriched oxygen incineration - This process injects pure oxygen into
the reactor vessel of a specially designed incineration plant. This significantly
raises the combustion temperature to up to 2000oC thus reducing the
risk of releasing potentially harmful emissions.
Gasification - Involves heating wastes in a low-oxygen environment to
produce a gas with a low energy content. The gas can be burned in a turbine
or engine in a way similar to pyrolysis below.
Groundwater - water that forms the part of the natural water cycle which
is present within underground strata (aquifers) and which may provide a substantial
part of the water supply.
Incineration — the burning of waste at high temperatures. This
results in a reduction in bulk and may involve energy reclamation.
Inert waste — Waste that does not undergo any significant physical,
chemical or biological transformations. Inert waste will not dissolve, burn
or otherwise physically or chemically react, biodegrade or adversely affect
other matter with which it comes into contact in a way likely to give rise to
environmental pollution or harm human health. The total leachability and pollutant
content of the waste and the ecotoxicity of the leachate must be insignificant,
and in particular not endanger the quality of surface water and/or groundwater.
IPC — Integrated Pollution Control; a general requirement
for authorisations under Part 1 of the Environmental Protection Act 1990 to
prevent, or if that is not possible, minimise the release of prescribed substances
and to render harmless any substances that might be released from certain processes
including waste disposal and recycling, as set out by the Environmental Protection
(Prescribed Processes and Substances) Regulations 1991.
Landfill gas - The end product of degradation of biodegradable wastes
in a landfill site. Typically it is a mixture of up to 65% methane and 35% carbon
dioxide plus trace concentrations of a range of organic gases and vapours. Methane
is flammable at concentrations between 5% and 15% by volume in air.
Landfill Tax - A tax that applies to active and inert waste, disposed
at a licensed landfill.
Land raising - the deposit of waste on and above the existing contours
of the ground.
Leachate - Liquid that seeps through a landfill and by so doing extracts
substances from the deposited waste.
MRF — Materials Reclamation Facility: Similar to a MWPF (see below),
however a MRF is a building into which segregated dry recyclable materials are
delivered for sorting by type before reprocessing.
MWPF — Mixed Waste Processing Facility: A building into which unsorted,
mixed household waste is delivered for sorting of dry recyclable products from
wet biodegradable materials prior to reprocessing and disposal of the non recyclable
materials.
Plasma based systems — Whilst very new and still largely experimental,
these systems generate plasma fields in excess of 5000oC which denature
waste material. This approach could have significant potential for wastes which
are difficult to treat through standard processes.
Priority Waste Stream Projects — have been identified by SEPA for
study at the national level due to their volume, hazardous nature, potential
for recycling or their potential to create an economic benefit. Each study will
aim to determine the size of the waste stream, current management practices,
source of the arisings, barriers to re-use / recovery, ability to sustain markets,
and to establish recovery methods and set targets. The results of the first
three projects will be reported in 2002.
Pyrolysis - Involves heating waste in the absence of oxygen at temperatures
of 400-800oC. The heat alone breaks down complex molecules and the
resultant gases are then passed into a combustion chamber where they are burned
(in the presence of oxygen) at temperatures around 1250oC.
Recovery — the reclamation, collection and separation of waste
materials from the waste stream.
Recycling - defined in Waste Management Paper 28 as the "collection
and separation of materials from waste and the subsequent processing to produce
marketable products". Recycling does not include the sale of second-hand books
or clothes, the use of returnable or refillable bottles or containers or by-products
of waste treatment or disposal such as landfill gas.
Relevant objectives - These are defined in paragraph 4 of Schedule 4
to the Waste Management Licensing Regulations 1994 and include, in relation
to the disposal or recovery of waste, implementing, so far as material, any
plan made under the plan-making provisions.
Re-use — the repeated utilisation of an item/material for its original
(or other) purpose.
Waste — includes any substance which constitutes a scrap material
or an effluent or other unwanted surplus substance arising from the application
of any process; and any substance or article which requires to be disposed of
as being broken, worn out, contaminated or otherwise spoiled (but does not include
explosives).
Waste Management Licence — a licence granted by SEPA under the
Waste Management Licensing Regulations 1994.
Bibliography
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National Planning Policy Guideline 6: Renewable Energy Developments
2000;
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Planning Advice Note 40: Development Control 2001;
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Planning Advice Note 51:Planning and Environmental Protection 1997;
Planning Advice Note 58: Environmental Impact Assessment 1999;
Planning Advice Note 60: Planning for Natural Heritage 2000;
Circular 16/1982: Safeguarding of Aerodromes, Technical Sites and Explosive
Storage Areas: Town and Country Planning (Aerodromes) (Scotland) Direction 1982;
Circular 24/1985: Developments in the Countryside and Green Belts;
Circular 12/1996: The Town and Country Planning (Scotland) Act 1972 Planning
Agreements;
Circular 4/1998: The Use of Conditions in Planning Permissions and its
addendum;
Circular 15/1999: The Environmental Impact Assessment (Scotland) Regulations
1999;
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Effects) (Scotland) Regulations 2000;
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Scotland 2001;
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2000;
SEPA Waste Data Digest 2001;
DETR Sustainable Development - A Better Quality of Life 1999;
County Planning Officers’ Society Good practice guide on planning conditions
for waste management facilities 1997;
The Composting Association The State of Composting 1999 2001.
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