Recycling Works

Extract from the 1998 report into the employment, economic and environmental benefits of using resources better. Researched by the Community Recycling Network and Friends of the Earth.

Recycling is not new. The practice has occurred for thousands of years and remains a fundamental activity in many parts of the world. This 'snapshot' report demonstrates that recycling is about the 'art of the possible'; viewing secondary materials as a resource and opportunity rather than a problem. The report focuses primarily on household waste rather than industrial arisings and seeks to illustrate potential for higher waste diversion, recycling and composting rates. In recent years, there have been efforts to discredit recycling by various vested interests within the waste management and logistics industries. The economics have been called into question as well as the actual need to recycle, given the other available means of waste disposal, with or without energy recovery. But recycling can work and can bring economic and employment benefits as well as environmental gains. There is much room for improvement, despite the popularity of recycling as an environmental activity, given that the UK's recovery rate is small compared with other parts of Europe just 7.5% (1996/7 figure).

Building a viable and sustainable recycling infrastructure takes time. If the UK is serious about its commitment to sustainable development now is the time - with the new waste strategy consultation process under way - to develop the vision and set in place all the necessary elements. In addition to using available technical expertise and economic incentives, moving forward demands political will, and the involvement of all players is essential - central and local government, industry, the community sector and individuals.

Current levels of waste generation in the UK

The UK produces 414 million tonnes of waste each year, of which approximately two-thirds is controlled waste (the waste of greatest concern). Household waste (the focus of this report) accounts for 27 million tonnes per year of thiion tonnes per year of this total. Whilst household arisings are only a relatively small proportion of total waste arisings, much of the other waste is produced as a result of manufacturing processes for consumer products. It has been calculated that for every tonne of product made, ten tonnes of materials have been used to manufacture them. Therefore reducing household waste and increasing the efficiency of resource use is essential to reduce overall waste arisings.

Household waste and resource use

Of the 27 million tonnes of household waste produced every year just 7.5% is recycled or composted. Recent waste composition studies have shown that over 40% of waste could be recycled and 30- 40% composted. The UK's poor track record to date has been described by Michael Meacher, Minister for the Environment as "frankly pathetic". In the latest Government consultation document, Less Waste More Value, he states that "the Government believes that recycling is critical to the task of making our waste management more environmentally acceptable; and is committed to a substantial increase in the role it plays in this county". The UK's poor performance on recycling is put to shame by countries that are recycling at a much higher level.

In the 1998 Consultation Paper on Sustainable Development Opportunities For Change, the Government stated that "production and distribution patterns will have to change to reduce emissions, resource use and waste". How far we have to improve resource use is a matter of debate but there is a growing awareness that enhanced efficiencies can bring economic and employment benefits as well as environmental improvements. For example, every tonne of material recycled in the UK not only reduces waste but also cuts down on the amount of waste generated elsewhere in mining and processing operations. Opinion surveys consistently show that the public views recycling as the preferred option. For example, a 1998 opinion poll commissioned by Waste Watch shows that recycling is supported by 96% of people and that 86% would recycle more if they had a doorstep collection scheme.

Some of the 20% of waste that cannot be recycled may be better landfilled or incinerated. However the quantities of material best for incineration are so small they in effect rule out this option. Incinerators now have to be huge to be economically viable. In the longer term we should be designing away the last 20% - making all waste 100% recyclable or compostable.

Resource Use and Sustainability

An international project by Friends of the Earth groups has estimated the limits to resource use and calculated the required reduction in resource consumption for developed countries.

Renewable Resources

The limits to renewable resources are identified by estimating sustainable yield whilst also ensuring that other functions of the ecosystem are protected. For example, in the case of wood, forests play an important role in protecting watersheds, soil stability and biodiversity. Friends of the Earth has estimated that the UK (the world's fifth largest consumer of paper) needs to reduce virgin wood consumption by 73% by the year 2050. Non-Renewable Resources The debate around the limits of non-renewable resource use has shifted from concern about the finite nature of those resources to the environmental impacts of mining and processing activities associated with them. There are thought to be around 300 years worth of aluminium reserves but the implications of mining the bauxite are immense. For example, the Valco aluminium smelter in Ghana produces 1% of the world's aluminium and is powered by hydropower from the Akosombo dam on the Volta river. The dam flooded an area half the size of Wales and forced the relocation of 80,000 people, destroying local industries and agriculture.

For every tonne of copper mined a massive 110 tonnes of material is unearthed, pulverised and treated with toxic chemicals such as arsenic. This raises further cause for concern in the health effects occasioned by heavy metals building up in the environment, especially true of mercury used in gold extraction, and yet another instance of the unsustainable use of the environment as a resource. Friends of the Earth has estimated that the UK needs to reduce virgin aluminium consumption by 88% and virgin steel use by 83% by 2050.

Equity and reduced consumption

At present 20% of the world's population uses 80% of the world's resources: the other 80% - the population of the developing world - uses only 20% of these resources. Such inequality cannot continue. The reductions identified by Friends of the Earth illustrate the scale of the challenge facing the UK if it is to achieve sustainable development. The reductions are largely based on the premise that countries should consume no more than their fair share of resources - a premise that recognises that inequality drives environmental destruction and conflict. Whether the Government will respond to this challenge remains unclear although there are indications that some Government departments will resist radical changes. For example, a memorandum from the Department andum from the Department of Trade and Industry to the Department of the Environment, Transport and the Regions urged them to drop the proposed sustainable development indicators on resource use and equity. For a fuller explanation of FOE's work in this area, see the publication 'Tomorrow's Wood, Britain's Share in a Sustainable Future' Earthscan, 1998

Recycling and composting targets

Numerous targets have been set over the years for moving waste away from landfill and increasing recycling and composting. For example:
· In 1990, the Government set a target of recycling 25% of household waste by the year 2000. With the current rate of approximately 7.5%, the likelihood of reaching this target nationally is extremely slim, although some individual local authorities have already met this figure. A concerted effort is required by Government and other parties even to get close. Internationally, some countries have already exceeded 25% recycling and are aiming for 50% and beyond.
· In 1995, further targets were set in the Government policy Making Waste Work. 'These included a target of 40% recovery of household waste by 2005 (recovery being defined as including recycling, composting and incineration) and composting one million tonnes of organic waste per annum by 2001. These targets were described by the Labour Party as "modest in the extreme."

The introduction of the Packaging Regulations in 1997 (just before the general election) brought more targets. 25% of all packaging waste was to be recycled by 2001 with a minimum of 15% for each material. When these regulations were laid before parliament. Michael Meacher, the new Governments Environment Minister remarked that "as usual, the Tory Government has managed to achieve the worst of both worlds. They have wavered and delayed over the regulations, and set the weakest possible targets abandoning any pretensions to care for our environment."

The Government has stated in its draft consultation paper, Less Waste More Value (June 1998) that it wishes to increase recycling and recovery to 40% by 2005. Longer term targets have yet to be introduced but with the Packaging Regulations under review and the new waste strategy consultation exercise, it is inevitable more targets will be introduced.

Any increase in the collection of recyclable materials has to be matched with measures to ensure there is a market for the materials. Research published by Friends of tile Earth (June 1998) reveals that a substantial number of local authorities are cutting back on recycling schemes because of the low price being paid for waste paper. The Community Recycling Network, Waste Watch and Friends of the Earth are campaigning for legislation to increase the recycled content of newspapers. This would provide a guaranteed market for waste paper and ensure the economic viability of some recycling schemes. This campaign is attracting a growing number of supporters including UK Waste.

Current policy driving increased recycling

Clearly it is not good enough just to set targets for increasing recycling; there have to be regulatory and policy measures to ensure the targets are met. Policy measures currently in place include:

Landfill: Regulations controlling the landfill have become more stringent over the last twenty years and, as a result, new sites in the UK are generally well designed and controlled. Before the mid 1970s landfill was virtually unregulated. However, all landfills will leak at some point, a fact recognised by the House of Lords Select Committee on the European communities. The impact of the regulations has been to force and increase in landfill costs, but with a large number of older sites still operating to lower standards, landfill remains the cheapest waste disposal option in most parts of the UK.

Incineration: A large number of incinerators were closed at the end of 1996 because they could not meet tighter emission standards introduced by the European Commission. Duropean Commission. Due to the cost of abatement technology, the cost of this disposal route has soared. Another Directive to reduce further emissions is currently under discussion and is likely to be introduced within the next few years. This will further increase costs perhaps by as much as £9 per tonne.

These new controls on incineration are liable to make this an uneconomic option in the near future, especially since there is now the possibility of an incineration tax. This was suggested by Customs and Excise in their report to the Treasury on the operation of the landfill tax and could be introduced within the next five years or so. A few witnesses at the House of Commons Environment Committee inquiry on sustainable Waste Management stated that such a tax should be applied to incineration in the same way as to landfill in order to encourage waste reduction and recycling. In addition, there is growing pressure to remove the subsidy given to incinerators under the UKs Non Fossil Fuel Obligation (NFFO). A report published by the European Commission has estimated that by 2010 the cost of incineration is likely to be £140 per tonne. The energy from Waste Association conceded that in the future, plants taking about 50,000 tonnes per year might prove to be the preferred option as part of an integrated local waste strategy.

The landfill tax: In October 1996 the Government introduced a tax on wastes going to landlandfill. The tax was set at £7 per tonne for most controlled wastes and revenues raised are used to offset reductions in employers National Insurance contributions. Under the landfill tax credits scheme, landfill operators are able to divert 20% of liable taxes to approved environmental projects although at present they cannot divert funds for local authority recycling schemes. Much of these funds are being used for environmental improvement projects near and around landfill sites rather than on projects related to reducing waste. The landfill tax will be increased to £10 a tonne in March 1999 and the extra money raised (as much as £200 million) would sensibly be used to fund increased recycling and composting. Higher rates of tax would spur enhanced recycling.

Producer responsibility: The packaging regulations Producer Responsibility legislation, introduced by the European Commission, requires manufacturers to take responsibility for their products throughout their life cycle. The packaging regulation, introduced in 1997, places an obligation on producers to ensure that 25% of packaging waste is recovered. Because of the low recycling targets (a minimum of 15% for each material), most activity has focused on transit packaging and retailers, in-house waste. The regulations, although widely criticised by sections of the packaging industry, have led to increased recycling activity. They are currently under review by the Government and amendments are expected to increase the level of household waste recycling. International experience suggests that significant reductions in packaging waste will arise from the implementation of the Regulations. For example, in Canada national packaging protocol resulted in a 50% plus decrease over eight years in packaging waste going to landfill or incineration. In Germany, packaging legislation has led to a 12% decrease in the amount of packaging used.

Conclusion

At present recycling is not really working in the UK. There are a variety of reasons but the underlying cause is the lack of measures implemented by previous Governments to support recycling and to ensure that resource use improved. If the current Government is serious about its intentions to develop sustainable waste management, it must act soon to put in place a package of measures designed to ensure that recycling works.

Last updated: 21 July 2008