Contact: Adrian Lee, ext 7004 email: [email protected]

1. Summary

1.1 This report summarises three key items in relation to Project Integra (PI) and waste and resource management issues in Hampshire. The first two items will be subject to decisions taken by the Executive Member for Environment: South Hampshire and Resource Management on 21 March 2006, with the third item due to be considered by Cabinet on 20 March. The purpose of this report is to enable the Committee to consider these items and advise the decision-makers of its views.

(i) Project Integra Business Plan 2006-11

The Plan as drafted lacks detail in terms of specific goals and objectives, budgetary implications, priorities and measurable outcomes. It suggests that a specific work programme be developed and the County Council should seek to work with PI Partners to achieve it.

(ii) Amendment to the PI Constitution

The position of `Standing Deputy Chairman' is created in order to ensure that the Hampshire County Council Board Member is involved in the preparation of meeting agenda and other Member events or communications. It suggests this amendment be supported.

(iii) Draft PI Joint Municipal Waste Management Strategy

The preferred option seeks to reduce waste growth, increase recycling and to further reduce the amount of waste sent to landfill. It is suggested that this option be agreed in principle, subject to the development of a full financial assessment prior to implementation, and that this assessment be achieved through development of the PI Business Plan process.

2. Corporate Strategy

2.1 The proposals support Aims 2 and 5 (Stewardship of the Environment and Improving Services) of the Corporate Strategy by increasing re-use and recycling, primarily through the household waste recycling centre network.

3. The Project Integra Business Plan 2006-2011

3.1 This is the fifth formal Annual Business Plan for PI and is prepared in accordance with the Constitution. The Constitution requires a draft Annual Business Plan to be prepared and approved by the Annual General Meeting of the PI Management Board normally held in January. The draft Plan is then considered by each of the Partner Authorities. On approval by the Partners, the Plan then becomes the approved Annual Business Plan and forms the framework within which Board Members may make decisions on behalf of Partner Authorities. Partner Authorities may approve the draft Plan subject to a reservation in respect of any particular matter on which they have concern.

3.2 The Annual Business Plan is to include a strategy for achieving agreed objectives over the next 12 month period commencing 1 April 2006. It should specify the activities to be undertaken in support of the strategy and contain an assessment of the financial, resource, service, legal and contractual implications.

3.3 The draft Plan will be available in the Members' Rooms and for public inspection at the Information Centre in Winchester. It can also be viewed on the PI web-site www.integra.org.uk.

3.4 Project Integra's headline objective is to work towards an overall target of 50% recycling/composting by 2010, by:

(i) progressing the aims and objectives of Hampshire's Material Resources Strategy (MRS) as expressed through the Joint Municipal Waste Management Strategy (JMWMS);

(ii) seeking and facilitating opportunities to maximise efficiency, sustainability and value for money through best practice and joint working; and

(iii) holding Partners accountable for their contributions to the overall goals of the Partnership.

3.5 The Plan proposes to achieve these objectives through:

(i) Optimising collections

Consolidating on the range of materials collected at the kerbside, reducing contamination of recyclables and encouraging home composting, and continuing delivery of the Behavioural Change Strategy.

(ii) Facilitating opportunities for commercial recycling

Helping to facilitate appropriate collection and processing systems to help Small and Medium-sized Enterprises (SMEs) to recycle more.

(iii) Tackling waste growth

Providing effective minimisation initiatives.

(iv) Future Infrastructure and Collection Systems

Analysing the long term options for preventing untreated material, particularly organics, from being landfilled.

(v) Organisational Development

Continuing work on the evolution of the partnerships and promoting accountability between Partners and strategic analysis of future opinions for infrastructure and collection services.

3.6 The Plan also contains a summary of each Partner's intentions to contribute to the overall process through individual "Partner Sub-Strategies". These set out for each Partner Authority its approved recycling targets and the action plan/progress towards achieving these targets.

4. Commentary on the Project Integra Business Plan

4.1 When the previous Annual Business Plan was considered by the County Council last year, the former Executive Member for Environment made a number of comments in agreeing the 2005-10 Plan. These related to the need for change within Project Integra, the need for a more detailed Plan and the need to prepare a JMWMS. Details are set out in the attached appendix.

4.2 The PI Board has acknowledged the need for change and a process identifying changes has been undertaken in association with the Hampshire Chief Executive Group. This process is still under way but the following key points are identified:

(i) ensuring the MRS is delivered and for the municipal service to take a full and challenging role in making it happen;

(ii) improving the combined operational and financial performance of the municipal service; and

(iii) continuing needs for flexibility, quality markets for materials, public education and behavioural change and Member support/empowerment.

4.3 In order to deliver these objectives, there is a developing consensus around the idea of Waste Collection Authorities forming strategic "clusters", each with a strategic planning and operational remit to be managed by an Officers' Board and accountable to a Management Board of Members. The Cluster development could potentially include Partner Authorities from neighbouring counties. The process would be underpinned by a central support unit, giving support and advice on areas such as research, communications and financial matters. Hampshire County Council, as the lead Waste Disposal Authority, would support each cluster and the Officers and Management Boards to provide strategic input to this process.

4.4 In practical terms many authorities have made significant progress in improving waste collection practices. Three authorities are now collecting waste on an alternate weekly basis and a further eight are planning for, or actively considering, its introduction. Most authorities have rolled out new infrastructure over the last three years to improve recycling services with funding support from the Department for Environment, Food and Rural Affairs. All authorities have had some form of participation in the "Recycle for Hampshire" campaign. Partners have also agreed an individual "Partner Sub-Strategy" and the majority of these give an undertaking to work towards a 40% recycling target by 2010.

4.5 With regard to the JMWMS, this has now been prepared and is described elsewhere in this report.

4.6 The Business Plan for 2006-11 sets out a number of the key deliverables identified in the MRS stakeholder document "More from Less". Section 3.2 sets out 13 "key projects". Whilst these projects identify expected outcomes, budgetary implications and timescale, they do not identify in sufficient detail:

(i) How they relate to specific goals and objectives, particularly to achievement of key targets for improvement.

(ii) The overall budgetary implications in terms of likely cost and benefits to PI or its Partners.

(iii) Prioritisation and the relationship of specific projects to broader priorities within the partnership, for example, reducing contamination of MRF inputs, improving collection services or improving the efficiency of waste management services.

(iv) The staff resources necessary to carry out the projects.

(v) Specific measurable outcomes by which success of the project could be judged.

4.7 It is suggested that a specific work programme needs to be developed and the County Council should seek to work with PI Partners to achieve this. Critically the work programme needs to include a process of discussion on the relative priorities between meeting simple targets for higher recycling and principles of cost effectiveness and sustainability. This work needs to be developed against the background of the revised national waste strategy, but also the increasing cost of waste disposal and the need to limit landfill to meet the Landfill Directive targets.

5. Amendment of Project Integra Constitution

5.1 The Chairman of the PI Management Board has proposed a change to the PI Constitution to create the position of "Standing Deputy Chairman".

5.2 The purpose of the amendment is to ensure that the Hampshire County Council Board Member is involved in the preparation of meeting agenda and other Member events or communications, in order that the unique responsibilities of Hampshire County Council, as lead Waste Disposal Authority within the Partnership, are fully reflected.

5.3 Paragraph 2.2 of the PI Constitution permits that it may be amended from time to time, subject to the agreement of all Partners.

5.4 The Management Board has therefore proposed the following amendments to the PI Constitution:

(i) Section 3, Definitions; add:

"Standing Deputy Chairman" means the Hampshire County Council Board Member designated in accordance with Paragraph 10.2A.

(ii) New Paragraph 10.2A:

Unless the Hampshire County Council Member is elected Chairman or Vice Chairman in accordance with 10.2 above, the Hampshire County Council Board Member shall assume or resume the role of Standing Deputy Chairman. The purpose of this position is to:

(a) provide assistance and advice to the Chairman and Vice-Chairman in the preparation of meeting agenda and other Member events or communications; and

(b) ensure the Hampshire County Council Member is fully informed of the strategies and policies being formulated for consideration by the Management Board.

The role reflects the unique responsibility of Hampshire County Council within the Partnership. In all other respects, the role is the same as other voting members and it is subordinate to the Vice-Chairman.

6. Commentary on the Amendment to the Project Integra Constitution

6.1 As indicated in the wording of the proposed amendment, it is a beneficial change to meet the need for Hampshire County Council to be fully involved in the business of PI. The County Council carries the major element of risk amongst local authorities with the partnership and takes the lead in terms of policy, financial and infrastructure planning. It also plays a significant role in the day-to-day management of waste management services in the county. In view of this, it is essential that its representative on the Board is fully informed of PI's strategies and policies.

7. Joint Municipal Waste Management Strategy

7.1 A "core strategy" document has been prepared by consultants on behalf of the PI network. The strategy has been developed in the context of Hampshire's MRS and its draft land-use policy framework, the Minerals and Waste Development Framework. The MRS is an overarching strategy to combine the Minerals and Waste Development Framework, the Joint Municipal Waste Management Strategy and the National Resources Initiative. It is set out in the stakeholder document "More from Less", produced in March 2005. In addition, the document has taken account of appropriate national and regional guidance for both waste strategy and planning policy issues. As with the MRS, it covers the period to 2020.

7.2 The document notes many of the contextual issues and drivers for change which are referred to in the MRS. These include:

(i) finite resources available for waste management;

(ii) predicted volume of composition of future waste streams;

(iii) legislative drivers, including the imperative to divert more waste from landfill; and

(iv) public expectations and Government targets for improving recycling.

7.3 The key issues and options have been presented to stakeholders at an MRS Workshop and have been submitted to statutory consultees.

7.4 Five options have been developed ranging from those pursuing the "status quo" to those increasing commercial waste collections, maximising the range of materials collected and "stretching options" which seek a combination of activities.

7.5 The preferred option which has emerged from a Strategic Environmental Assessment is one with the following features:

(i) Household Collections

Kerbside collections from dwellings of a wide range of materials, including paper, cans, plastic bottles, glass and textile; promote home composting of green waste and the use of food digesters for bio-waste and facilitate provision of enhanced facilities at Household Waste Recycling Centres for Waste Electrical and Electronic Equipment.

(ii) Commercial Recycling

Provide and/or facilitate collection and processing capacity to optimise the collection of recyclables from the commercial sector (recyclables that are similar in nature to those arising from the municipal waste stream).

(iii) Waste Growth

Seek to reduce the growth of domestic waste to 1% or less by 2010 and to 0.5% by 2020.

(iv) Treatment of Residual Waste

Provide thermal treatment (energy from waste) for at least 420,000 tonnes per annum (the current capacity in Hampshire) with excess residual waste being sent to landfill in the short term and in the longer term being dealt with by further treatment (biological, thermal, physical or chemical) when such facilities have had time to be brought `on stream'.

(v) Landfill

In the longer term pre-process all household waste with residues only being sent to landfill.

7.6 The preferred option has emerged because:

(i) it is in the spirit of the "More from Less" document in seeking to meet stretched performance targets;

(ii) it provides minimum reliance on landfill;

(iii) it has the most beneficial effect on emissions to air;

(iv) it presents some significant employment opportunities at pre-treatment facilities;

(v) it does not rely on export of waste and so has premium impact outside Hampshire;

(vi) it provides for a proactive approach to providing recycling services for SME;

(vii) it promotes maximum use of finite resources;

(viii) it promotes the use of alternative energy sources (energy from waste), and reduces energy requirements for manufactured products. Recycled materials, such as aluminium, glass, and paper, require less energy than the use of virgin materials; and

(ix) the document sets out 14 policies and actions which seek to support delivery of the preferred option and meet the overall objections of the strategy. These reflect similar policies and actions in "More from Less".

8. Commentary on the JMWMS

8.1 The assessment process for the JMWMS does not include cost and resource issues, so implementation and delivery of the strategy will need to be preceded by a full financial assessment of the preferred option. It is suggested that this process should be achieved through development of the PI Annual Business Plan process.

8.2 This will allow continued scrutiny and liaison with PI to ensure that its objectives and targets are tempered with a detailed study of the costs and other impacts of delivery. An effective business case will need to be prepared for new infrastructure proposals and new systems.

8.3 In principle, however it is proposed that the JMWMS is agreed and the preferred option supported. The JMWMS may require factual amendment to meet requirements of the revised National Waste Strategy which has recently been published for consultation.

8.4 In addition, the Strategy relies for its delivery on the effective participation and support of residents and businesses, including supermarkets, in recycling and reuse activities across the county. It is suggested that an additional policy be added to the Strategy which commits PI to the continuation of its Behavioural Change Strategy, currently being delivered under the name of `Recycle for Hampshire'.

8.5 The Strategy reflects most of the content of the Government's recently published proposals for revising the national waste strategy. The national strategy recommends taking a "resource management" approach to managing waste and greater integration of the management of municipal and household waste and other business waste. The JMWMS leads on the practical applications of the new national direction for waste management.

9. Impact Assessments

9.1 The PI Annual Business Plan 2006-11, the amendment to the PI Constitution and the JMWMS will not compromise the County Council's policy on race and equalities.

Recommendation

That the Committee considers the three items and offers any comments which it believes the:

(a) Executive Member for Environment: South Hampshire and Resource Management in relation to Project Integra Business Plan 2006-11 and the changes to the Constitution; and

(b) Cabinet in relation to the Joint Municipal Waste Management Strategy;

should take into account in making their decisions.

869Rpt/AWL

APPENDIX

HAMPSHIRE COUNTY COUNCIL COMMENTS - MARCH 2005 - ON THE 2005-10 PROJECT INTEGRA ANNUAL BUSINESS PLAN

1. The Board acknowledging the need for substantial change in the remit of Project Integra, its constitution, scope and executive facility. Such change necessary to be developed and agreed upon in the fiscal year 2005-06 for implementation as soon as is practical to meet the requirements under future CPA accounts, Government Guidelines pertaining to waste partnerships and Gershon efficiency savings.

2. That a first draft of a Business Plan 2006-11 for the entire enterprise of waste collection and disposal be developed by the July meeting, in accordance with the format proposed for Joint Municipal Waste Strategies.

3. This first draft Plan must include a long term forecast of recovery and waste volumes, facilities, investments, efficiency savings outcomes and financial budget that reflects the total expenditure of the joint service.

4. The Material Resources Strategy, organisation and executive changes, and next phase of procurement to be developed and reported to the July meeting.

5. The following additional text to be inserted at paragraph 6.2.8:

"The financial consequences of not achieving the stretching recycling targets do not take into account the cost implications of ordering and implementing new disposal infrastructure. Under scenario 1, the annual landfill requirements would exceed 200,000 tonnes per year. It is very likely that it would not be sustainable or perhaps even possible to rely on such a high level of landfill disposal. This being the case, further significant investment would be necessary. Clearly, this would add significantly to the overall financial cost burden."

6. The Executive Officer provides the Secretary of State with a statement that:

(a) expresses the PI Partners' unanimous intention to submit a full and comprehensive JMWMS for Hampshire in April 2006;

(b) outlines the steps already in hand to produce a JMWMS;

(c) the proposed timescale to develop a JMWMS be included in the draft Business Plan 2005-10; and

(d) an Officer Group be convened to oversee the drafting of the JMWMS.