Circular economy and waste route map to 2030: strategic environmental assessment - environmental report

6 Decarbonise disposal

6.1 Minimise the impact of disposal

6.1.1 Package Outcomes

Package 6 is aimed at reducing the impacts of disposal as much as possible. Interventions in the earlier packages are aimed at reducing how much is being disposed, e.g. by reducing waste generated and by increasing waste that is recycled.

Decrease in waste landfilled

The interventions in this package are focused on reducing the environmental impacts of disposal, i.e., incineration and landfill. For many waste streams, incineration is a lower impact option than landfill, therefore, this package will likely lead to a decrease in waste landfilled.

Potential increase in waste incinerated

The interventions will likely lead to proportionately more waste that is disposed being incinerated relative to being landfilled. However, given the other measures in the Route Map should lead to less material being disposed (through waste reduction and increase in recycling), this increase in the proportion of waste being incinerated may not lead to an absolute increase in the long-term.

Reduction in GHG emissions

The interventions in this package are aimed at reducing CO2e emissions and other environmental impacts. At this early stage, it is not possible to identify outcomes and impacts other than those aimed for.

Likely decrease in other miscellaneous environmental impacts

It should be noted, however, that reducing CO2e emissions does not necessarily lead to a reduction in other environmental impacts.

6.1.2 Biodiversity, flora, and fauna

SEA Assessment questions for biodiversity, flora, and fauna:

• Will the plan avoid adverse impacts to habitats and species?
• Will it protect, maintain, and enhance biodiversity?

Overall, the measures within this package should avoid adverse impacts to habitats and species through a reduction in habitat disruption mainly from the reduction of waste sent to landfill, and the associated reduction in the need for new landfill sites. Further impacts to biodiversity could be avoided assuming alignment with the Biodiversity Strategy. Any future interventions should be subject to their own environmental assessment.

Reduction in disposal via landfill

SEA Impact: +

Habitats in and around bodies of water such as streams, ponds, lakes, and surrounding soils nearby to landfill sites can become polluted by leachate. A reduction in levels of waste disposal in landfill will lead to lower impacts on habitats and their resident species at a local level.

Landfilling materials, in particular organic matter, can be a major emitter of GHG emissions. Lower levels of landfill gas production, (methane in particular) will reduce the contribution to climate change and indirectly lessen impacts on species and habitats. At a global level, these impacts are not likely to be significant.

The reduced impact on landfill capacity will lessen the longer term requirement for the creation of new landfill sites and the corresponding clearance of wild areas. This in turn will reduce the number of habitats being lost or degraded to create new landfill sites.

Potential increase in disposal via incineration in the short term

SEA Impact: ?

The incineration of waste is source of GHG emissions and pollutants. In the event of a short-term increase in incineration, there may be adverse impacts on species and habitats through the release of harmful pollutants.

Reduction in CO2e emissions

SEA Impact: +/?

Indirect benefits to biodiversity are likely in the long term as a result of a reduced contribution to climate change from waste management emissions.

Reduced environmental impacts

SEA Impact: ?

Assuming alignment with the Biodiversity Strategy, measures would aim to minimise the impacts of disposal on biodiversity. Specific measures aimed at reducing emissions of persistent organic pollutants (POPs) would reduce adverse impacts on habitats and species.

6.1.3 Population and human health

SEA Assessment questions for population and human health:

• Will the plan reduce the health gap and inequalities and improve healthy life expectancy?
• Will it protect and improve human health and wellbeing through improving the quality of the living environment of people and communities?
• Will it increase sustainable access to essential services, employment, and the natural and historic environment?

This package should help to improve wellbeing due to a reduction in nuisance from landfill sites, although impacts on human health and sustainable employment are unknown at this stage. Specific impacts will depend on the interventions developed from this package. Any future interventions should be subject to their own environmental assessment.

Reduction in disposal via landfill

SEA Impact: +

Nuisance caused by landfill sites on a local level is likely to be in the form of odour, noise, increased traffic, and vermin. Landfills can result in community impact throughout their life cycle. During the operational phase, when wastes are deposited, communities can be negatively impacted by nuisance issues such as odour, dust, noise and vermin. Odour is a significant environmental cause of public complaints of people living near waste treatment facilities and negatively affects quality of life and wellbeing. Odour can be a cause of stress and anxiety, even when the substances causing the odours are not harmful to health at the levels detected at waste treatment locations. Landfills, and specifically landfill odour, account for a significant proportion of public environmental event complaints made to SEPA. In extreme cases, where sites are poorly operated, or have specific gas management issues to address, this has resulted in several hundred public complaints in a single day. Three operational landfills are currently classified by SEPA as sites of ongoing community impact. In 2021, these sites alone accounted for 987 substantiated complaints to SEPA.^[190]

If lower volumes of waste are destined for landfill due to the measures proposed in the Route Map, a reduced negative impact on the wellbeing of nearby residents is likely.

Potential increase in disposal via incineration in the short term

SEA Impact: ?

Pollution from EfW plants may have a negative impact on the health and wellbeing of nearby residents, and there is scope for further research into potential negative mental and psychological impacts of living close to an incinerator^[191]. Measures targeted at reducing residual waste destined for incineration may therefore have a positive impact on nearby residents. If there is a short-term increase in material incinerated, then there may be a temporary increase in adverse effects, although these may be mitigated by other interventions in this package.

However, the risk to human health associated with newer incinerators operated within the current regulations, which are based on a precautionary approach, is likely to be minimal and very difficult to detect^[192]. Therefore, health impacts of an increase in waste incinerated are expected to be minor.

Reduction in CO2e emissions

SEA Impact: +/?

Indirect benefits to the population are likely in the long term as a result of a reduced contribution to climate change from waste management emissions.

Reduced environmental impacts

SEA Impact: ?

Measures targeted at reducing environmental impacts are likely to consider how pollution can be avoided or reduced e.g., persistent organic pollutants (POPs) and air pollution. A subsequent positive impact on human health is therefore possible, but impacts are unknown at this stage.

6.1.4 Soil

SEA Assessment questions for soil:

• Will the plan safeguard and improve soil quality, quantity and function in Scotland, particularly high value agricultural land and carbon-rich soils?

Overall, this package should help to safeguard soil quality in Scotland through a reduction in soil pollution from landfill sites. Specific impacts will depend on the interventions developed from this package. Any future interventions should be subject to their own environmental assessment.

Reduction in disposal via landfill

SEA Impact: +

Leachate from landfill sites can contaminate soils in the surrounding area. A reduction in volumes of material disposed of via landfill will lessen the impact on soil quality in the long term. A reduced impact on landfill capacity will lessen or delay the longer term requirement for the creation of new sites, thus avoiding an increase in areas of soil vulnerable to material pollution and leachate from landfill sites.

Potential increase in disposal via incineration in the short term

SEA Impact: ?

Soils near incinerators may become polluted. Any short-term increase in waste incinerated may therefore result in adverse impacts to soil quality, although these may be mitigated by other measures in this package.

Reduced environmental impacts

SEA Impact: ?

Assuming alignment with The Scottish Soil Framework (2009), measures designed to limit environmental impacts of infrastructure ought to take into consideration the preservation of soil quality. Impacts are unknown at this stage.

6.1.5 Water

SEA Assessment questions for water:

• Will the plan ensure the sustainable use of water resources?
• Will it help to reduce levels of water pollution?

The package should help to reduce levels of water pollution assuming that there will be a reduction in water pollution and contamination from leachate from landfill sites. Specific impacts will depend on the interventions developed from this package. Any future interventions should be subject to their own environmental assessment.

Reduction in disposal via landfill

SEA Impact: +

Leachate from landfill sites can pollute nearby bodies of water. A reduction in volumes of material disposed of via landfill will lessen the impact on water quality in the long term. A reduced impact on landfill capacity will lessen or delay the longer term requirement for the creation of new sites, thus avoiding an increase in the bodies of water vulnerable to material pollution and leachate from landfill sites.

Potential increase in disposal via incineration in the short term

SEA Impact: ?

Some energy from waste processes will require water, and water bodies may be affected by pollutants emitted from energy from waste sites. If there is a short-term increase in waste incinerated, then there may be short-term increases in water consumption and increases in water pollution, although this may be mitigated by other measures in this package.

Reduction in CO2e emissions

SEA Impact: +/?

Indirect benefits to Scotland’s waters are likely in the long term as a result of a reduced contribution to climate change from waste management emissions

Reduced environmental impacts

SEA Impact: ?

It is expected that measures designed to reduce broad environmental impacts associated with waste management infrastructure will consider both water use and pollution to bodies of water. Though impacts are unknown, they may include ensuring sustainable water use and preservation or improvement of water quality through reduced pollution (particularly POPs).

6.1.6 Air

SEA Assessment questions for air:

• Will the plan avoid adverse impacts to air quality?
• Will it reduce emissions of key pollutants and improve air quality throughout Scotland?
• Will it reduce levels of nuisance e.g. noise, vibration, dust, odour, and light?

The interventions in this package should avoid adverse impacts to air quality, assuming alignment with the Air Quality Strategy and assuming there is no significant increase in the amount of waste incinerated. Specific impacts will depend on the interventions developed from this package. Any future interventions should be subject to their own environmental assessment.

Reduction in disposal via landfill

SEA Impact: +

Several air pollutants are associated with landfill gas production. A reduction in waste disposed of via landfill is likely to have a positive impact on air quality. Odour levels will also be reduced if the requirement for additional landfill sites is lessened or delayed from a decrease in residual waste arisings.

Potential increase in disposal via incineration in the short term

SEA Impact: ?

Incineration of waste is linked to air and noise pollution on a local scale, though with current stringent emissions standards, the evidence is that the air quality impacts are likely to be small^[193]. Evidence suggests that landfill has a smaller impact on local air quality than incineration ^[194]. If the interventions in this package lead to a short-term increase in volumes of waste disposed of by incineration or energy from waste, there would therefore be a minor negative impact on air quality. However, these effects may be mitigated by other measures in this package.

Reduction in CO2e emissions

SEA Impact: +

By reducing the emissions of GHGs, gases that are also harmful to human health, such as nitrous oxides, will be reduced.

Reduced environmental impacts

SEA Impact: ?

Measures targeted at reducing environmental impacts ought to consider how air pollution can be limited, aligning with The Air Quality Strategy for England, Scotland, Wales and Northern Ireland.

6.1.7 Climatic factors

SEA Assessment questions for climatic factors:

• Will the plan help to reduce existing and avoid new Greenhouse Gas (GHG) emissions?

The interventions in this package should help to avoid new GHG emissions; although the extent of the reduction will depend on the interventions developed from this package. Any future interventions should be subject to their own environmental assessment.

Package outcomes relevant to climatic factors and their likely impacts are discussed below.

Reduction in disposal via landfill

SEA Impact: +

The landfill of waste, in particular organic matter, can be a major emitter of GHG emissions: in 2021, the landfill of household waste accounted for just under 250kt of CO2eq of GHG emissions. By reducing the amount of waste requiring landfill, GHG emissions from landfill sites should also reduce.

Potential increase in disposal via incineration in the short term

SEA Impact: ?

The IPCC estimates that every tonne of waste incinerated releases 0.7-1.2 tCO₂e^[195][196], and the emissions from the incineration of household waste in Scotland was approximately 0.3MtCO₂e in 2021^[197]. This figure includes the emissions avoided due to energy recovery during incineration. As energy switches to renewable or lower carbon sources, the benefits of energy from waste will fall^[198]. However, following the recommendations of the incineration review^[199] (such as a reduction in the incineration of plastics) will reduce levels of GHG emissions from the incineration process.

Reduction in CO2e emissions

SEA Impact: +

GHG emissions (including methane) from Scotland’s waste management amounted to 1.5MtCO₂e in 2021, and emissions from energy from waste were 0.3 MtCO₂e^[200] These emissions are a contributor to climate change and, although small relative to national or global GHG emissions, a reduction in them is a necessary step towards net-zero ambitions.

Reduced environmental impacts

SEA Impact: +/?

GHG emissions and other environmental impacts are often correlated, therefore aims to reduce environmental impacts in general may also help to reduce GHG emissions. Current waste targets based around tonnages and reduction in the total proportion of waste destined for landfill are not always fully aligned to the best environmental outcome, i.e., maximising emissions reductions. The measures within this package seek to ensure that future developments in residual waste treatment result in minimising emissions and wider environmental impacts.

6.1.8 Material Assets

SEA Assessment questions for material assets:

• Will it reduce use and promote sustainable management of natural resources?
• Will it reduce ‘leakage’ of material to landfill or energy recovery or as litter?

These interventions should help to move waste that cannot be recycled up the waste hierarchy by reducing landfill of materials. However, most of the benefits for material assets will come from other packages which focus on more sustainable solutions such as reduction and recycling.

Package outcomes relevant to material assets and their likely impacts are discussed below.

Reduction in disposal via landfill

SEA Impact: +

When materials are landfilled, no more value can be extracted. By reducing the amount of material going to landfill, this loss in value is negated somewhat.

Potential increase in disposal via incineration in the short term

SEA Impact: ?

The findings of the review into incineration in Scotland^[201] confirmed the place of incineration with energy recovery in the waste hierarchy, i.e., that it is preferred to incineration without energy recovery or landfill. A pivot away from landfill and towards incineration with energy recovery therefore maximises the remaining value from waste that can only be disposed.

6.1.9 Landscape and visual impacts

SEA Assessment questions for landscape and visual impacts:

• Will the plan avoid adverse effects on landscapes and visual impacts?
• Will it safeguard and enhance the character and diversity of the Scottish landscape and areas of valuable landscape and geodiversity?

The interventions in this package should help to avoid adverse effects on landscapes and safeguard the character and diversity of Scottish landscape, particularly through the reduction of need for new landfill sites. However, a short-term increase in incineration may lead to temporary adverse effects..

Package outcomes relevant to landscape and visual impacts and their likely impacts are discussed below.

Reduction in disposal via landfill

SEA Impact: +

Landfill sites are generally considered to be unsightly, both in terms of the sites themselves and in the birds and rodents that are attracted to the sites. A reduction in the construction of new landfill sites will therefore avoid adverse effects on landscapes and visual impacts.

Potential increase in disposal via incineration in the short term

SEA Impact: ?

The generation of smoke from incineration plants is an eye sore, in addition to the plants themselves. If there is a short-term increase in waste incinerated, then there may be temporary adverse effects on the landscape.