Policy 5.17 Waste capacity

Strategic

A The Mayor supports the need to increase waste processing capacity in London. He will work with London boroughs and waste authorities to identify opportunities for introducing new waste capacity, including strategically important sites for waste management and treatment, and resource recovery parks/consolidation centres, where recycling, recovery and manufacturing activities can co-locate.

Planning decisions

B Proposals for waste management should be evaluated against the following criteria:

a locational suitability (see LDF preparation paragraphs F and G below)

b proximity to the source of waste

c the nature of activity proposed and its scale

d minimising waste and achieving high reuse and recycling performance

e achieving a positive carbon outcome of waste treatment methods and technologies (including the transportation of waste, recyclates and waste derived products) resulting in greenhouse gas savings. Facilities generating energy from waste will need to meet, or demonstrate that steps are in place to meet, a minimum CO2eq performance of 400 grams of CO2eq per kilowatt hour (kwh) of electricity produced. Achieving this performance will ensure that energy generated from waste activities is no more polluting in carbon terms that the energy source it replaces (see paragraph 5.85 below).

f the environmental impact on surrounding areas, particularly noise emissions, odour, air quality and visual impact and impact on water resources

g the full transport and environmental impact of all collection, transfer and disposal movements and, in particular, the scope to maximise the use of rail and water transport using the Blue Ribbon Network.

The following will be supported:

h developments that include a range of complementary waste facilities on a single site

i developments for manufacturing related to recycled waste

j developments that contribute towards renewable energy generation, in particular the use of technologies that produce a renewable gas

k developments for producing renewable energy from organic/biomass waste.

C Wherever possible, opportunities should be taken to provide combined heat and power and combined cooling heat and power.

D Developments adjacent to waste management sites should be designed to minimise the potential for disturbance and conflicts of use.

E Suitable waste and recycling storage facilities are required in all new developments.

LDF preparation

F Boroughs must allocate sufficient land and identify waste management facilities to provide capacity to manage the tonnages of waste apportioned in this Plan. Boroughs may wish to collaborate by pooling their apportionment requirements.

G Land to manage borough waste apportionments should be brought forward through:

a protecting and facilitating the maximum use of existing waste sites, particularly waste transfer facilities and landfill sites

b identifying sites in strategic industrial locations (see Policy 2.17)

c identifying sites in locally significant employment areas (see Policy 4.4)

d safeguarding wharves (in accordance with policy 7.26) with an existing or future potential for waste management.

H If, for any reason, an existing waste management site is lost to non-waste use, an additional compensatory site provision will be required that normally meets the maximum throughput that the site could have achieved.

5.76 Increasing London’s waste processing capacity is a major mayoral priority. The Mayor will work with all parties to achieve this. Through the London Waste and Recycling Board (LWaRB), the Mayor will collaborate with boroughs and other partners to make the capital a global beacon of best practice in waste management.

5.77 PPS10 requires the Mayor through the London Plan to:

• identify the tonnages of municipal and commercial/industrial waste requiring management and to apportion them by waste planning authority area
• evaluate the adequacy of existing strategically important waste management and disposal facilities to meet London’s future needs, both for municipal and other waste streams
• identify the number and type of new or enhanced facilities required to meet those needs
• identify opportunities for the location of such facilities and, where appropriate, criteria for the selection of sites.

5.78 Waste issues were thoroughly scrutinised in the London Plan Examinations in Public in 2006, 2007 and 2010 and the Mayor sees no benefit in reopening recent debates, particularly those around the borough-level apportionment methodology. However, he has acknowledged that projected HH and C&I waste arisings at borough level – the key to waste management, apportionment and self-sufficiency – need updating. The GLA has accordingly brought forward new independently reviewed borough-level projections of London’s waste arisings, and borough-level apportionment of MSW and C&I waste using the 2007 methodology.

5.78A The revised figures, based on 2009/10 data^[1], show a 40 per cent drop in commercial and industrial waste arisings apportioned compared with the 2011 London Plan figures. The Mayor acknowledges that although the new baseline data may represent an underestimate of London’s waste arisings due to the economic downturn, it is considered to be the most current and best available. The Mayor will continue to monitor London’s waste arisings as updated data becomes available for use in future iterations of the London Plan.

5.79 Table 5.2 gives projected HH and C&I arisings at borough level for key milestones through to 2036. Table 5.3 sets out projected HH and C&I waste to be managed in London apportioned to boroughs based on the methodology agreed for the 2008 version of the London Plan – ie each borough’s percentage share of waste to be managed in London is the same as before. Waste is deemed to be managed in London if:

• it is used in London for energy recovery
• it relates to materials sorted or bulked in London facilities for reuse, reprocessing or recycling
• it is materials reused, recycled or reprocessed in London
• it is a ‘biomass fuel’ as defined in the Renewable Obligation Order.

5.79A Tables 5.2 and 5.3 show a difference between waste projected to be generated within London (Table 5.2 waste arisings) and waste to be managed within London (Table 5.3). The difference between apportioned and non-apportioned waste tonnages is summarised in Table 5.4. It is expected that non-apportioned waste will be exported.

5.80 Boroughs may collaborate by pooling their apportionment requirements. Provided the aggregated total apportionment figure is met, it is not necessary for boroughs to meet both the municipal and commercial/ industrial waste apportionment figures individually. Boroughs need to examine how capacity can be delivered in detail at the local level as site allocations in LDFs to meet their apportionments. Boroughs should aim to meet their waste apportionment as a minimum. Boroughs should identify suitable additional sites for waste including waste transfer sites where practicable. Boroughs working collaboratively must demonstrate that their joint apportionment targets will be met, for example, through the preparation of joint waste DPDs, joint evidence papers or bilateral agreements. Where a Mayoral Development Corporation (MDC) exists or is established within a Borough the MDC will co-operate with the Borough to ensure that the Borough’s apportionment requirements are met.

5.81 Boroughs and waste authorities should identify sites which are potentially suitable for a variety of technologies, depending on the particular site’s opportunities and constraints, and assess how many facilities and what type of waste processing facilities/technologies will be required locally to meet their apportionments

5.82 It is envisaged that land in strategic industrial locations will provide the major opportunities for locating waste treatment facilities (see Annex 3). Boroughs should also look to locally significant industrial sites and existing waste management sites. Existing waste management sites (including safeguarded wharves with waste use or potential) should be clearly identified and safeguarded for waste use. Suitable brownfield sites and contaminated land elsewhere may also provide opportunities.

5.83 Allocations will need to balance the benefits of smaller, local sites against the overall demand for land for waste and for a range of other activities in a situation in which there are severe limitations of land supply, and against the benefits of co-locating a range of facilities together in a smaller number of larger sites. The Mayor will work with boroughs and waste authorities to identify opportunities for introducing new waste capacity, including strategically important sites for waste management and treatment, and resource recovery parks/ consolidation centres, where recycling, recovery and manufacturing activities can co-locate.

^[1] DEFRA London C&I Waste Study 2010

Table 5.2 Household and commercial/industrial waste projections at borough level at key milestones through to 2036 (thousand tonnes pa)

Table 5.3 Waste to be managed in London apportioned by borough (thousand tonnes per annum)

Table 5.4 Summary of apportioned and non-apportioned waste (000s tonnes)

5.84 For waste that cannot be recycled or composted (including anaerobic digestion), the Mayor has a preference for waste processing technologies achieving the greatest efficiencies but is keen that proposals for new facilities are evaluated by carbon outcome (end-to-end) to ensure the best possible environmental impact.

5.85 To support the shift towards a low carbon economy the Mayor has developed a minimum greenhouse gas performance for technologies generating energy from London’s non-recyclable waste. This minimum performance, known as the carbon intensity floor, has been set at 400 grams of CO2 eq generated per kilowatt hour (kwh) of electricity generated. All facilities generating energy from London’s waste will need to meet this level, or demonstrate they can practically meet it in the future in order to gain Mayoral support. The GLA has developed a free on-line ready reckoner tool to assist local authorities and applicants measuring and determining greenhouse gas performance of waste management activities including waste-to-energy against the carbon intensity floor. This tool can be found at: /priorities/environment/putting-waste-good-use/making-the-most-of-waste.

5.85A The carbon intensity floor has been set for waste-to-energy activities in London to achieve at least a positive carbon outcome, whereby the direct emissions from the technology are offset by emissions savings from the generation of low carbon energy in the form of heat, electricity and transport fuel. This would, for example rule out new mass burn incineration facilities of mixed waste generating electricity only, but may allow combustion of waste with high biomass content where both heat and power generated are used. This approach supports technologies able to achieve high efficiencies particularly when linked with gas engines and hydrogen fuel cells. More information on how the carbon intensity floor has been developed and the ability to meet it can be found in Policy 2 of the Mayor’s Municipal Waste Management Strategy. Waste to energy facilities should be equipped with a heat off-take from the outset such that a future heat demand can be supplied without the need to modify the heat producing plant in any way or entail its unplanned shutdown. It should be demonstrated that capacity of the heat off-take meets the carbon intensity floor at 100% heat supply. In order to ensure the carbon intensity floor remains relevant, the Mayor will consider reviewing the CIF level in future iterations of the London Plan.

5.85B Examples of ‘demonstrable steps’ as outlined in Policy 5.17 Be would be:

• a commitment (via a Section 106 obligation) to deliver the necessary means for infrastructure to meet the min CO2 standard, for example investment in the development of a heat distribution network to the site boundary, or technology modifications that improve plant efficiency;
• an agreed timeframe (via a S106) as to when proposed measures will be delivered;
• the establishment of a working group to progress the agreed steps and monitor and report performance to the consenting authority.

To assist in the delivery of ‘demonstrable steps’ the GLA can help to advise on heat take-off opportunities for waste to energy projects, particularly where these are linked to GLA supported Energy Master Plans.

5.86 Waste processing facilities, including materials recycling facilities and depots, inert waste recycling plants, composting facilities, waste treatment and energy recovery facilities, and reprocessing of recyclables, should be well designed. They need not be bad neighbours and could be a source of new products and new jobs. They should be developed and designed in consultation with local communities, taking account of health and safety within the facility, the site and adjoining neighbourhoods. Developments for manufacturing related to recycled waste, deriving fuel from waste and recovering value from residual waste should be supported. Where movement of waste is required, priority should be given to facilities for movement by river or rail. Opportunities to provide combined heat and power and combined cooling, heat and power should be taken wherever possible (see Policies 5.5, 5.6 and 5.8). Developments adjacent to waste management sites should be designed to minimise the potential for disturbance and conflicts of use.

5.87 Although no further landfill proposals in London are identified or anticipated in the Plan, if proposals do come forward for new or extended landfill capacity or for land-raising, boroughs should ensure that the resultant void-space has regard to the Mayor’s Municipal Waste Strategy.