Wet wipes containing plastic - proposed ban: strategic environmental assessment

1 Introduction

1.1 Background

1.1.1 The Marine Strategy Regulations 2010 are the main driver for addressing the problem of marine and coastal litter within Scotland and the UK as a whole. The Scottish Government has commitments under the UK Marine Strategy to collaborate with the other UK administrations to assess, monitor, and publish a programme of measures the UK will use to support progress towards achieving Good Environmental Status (GES) for elements including marine litter^[3]. In addition, the Scottish Government will take necessary measures to protect and conserve the ecosystems and the biological diversity of UK territorial seas under the OSPAR Convention (the Convention for the Protection of the Marine Environment in the North-East Atlantic)^[4]. OSPAR is the Scottish Government's key regional platform for collaboration with neighbouring countries on marine biodiversity, where we participate as part of the UK. Within the Marine (Scotland) Act 2010^[5], the management of marine litter falls under the scope of marine planning. The Scottish Government published an updated Marine Litter Strategy for Scotland^[6] in 2022 with actions focused on, amongst others, preventing litter entering the marine environment.

1.1.2 The UK Marine Strategy defines GES in terms of 11 descriptors, one of which relates to marine litter. The high level objective for Descriptor 10 requires that ‘the amount of litter and associated degradation products is reducing, and levels do not pose a significant risk to the environment and marine life’.

1.1.3 This objective recognises the limitations in data currently available to support a target for a specific percentage reduction in coastal litter and, based on current expert advice, has been included in the UK’s set of GES targets. Table 1 describes the targets and indicators for 2018-2024.

Table 1: UK Marine Strategy Part One updated targets and indicators for Descriptor 10

Descriptor 10 Marine Litter: Perspective for 2018 to 2024

• High level objective for GES - The amount of litter and its degradation products on coastlines and in the marine environment is reducing and levels do not pose a significant risk to the environment and marine life.
• Criteria and targets for measuring progress towards GES in future:
  • Presence of litter (beaches) - A decrease in the total amount of the most common categories of litter found on surveyed beaches.
  • Presence of litter (seabed) - A decrease in the number of items of litter on the seabed.
  • Presence of floating litter - A downward trend in the number of northern fulmars with more than 0.1 g of plastic particles in their stomach.
  • Presence of micro-litter - Develop an appropriate indicator to measure micro-litter in the marine environment.
• Operational targets - We will work nationally and with other countries in OSPAR to:
  • establish the feasibility of setting appropriate reduction targets and/or threshold values for litter on beaches, on the sea floor, sea surface, and microplastics, taking into account regional or sub-regional specificities;
  • develop an indicator for micro-litter in sediment;
  • establish, if practicable, whether the amount of litter and micro-litter ingested by marine animals adversely affects the health of the species concerned; and
  • develop appropriate measures to reduce litter types harmful to the marine environment.
• Indicators to be used to assess the status:
  • Beach litter surveys - OSPAR
  • Floating litter using plastic in fulmar stomachs - OSPAR
  • Seafloor litter surveys - OSPAR

1.1.4 Scottish Water is the public body which oversees Scotland’s water infrastructure. In 2020 they dealt with approximately 36,000 blockages, most of which were caused by inappropriately flushed items^[7] including sanitary items, the majority of which were wet wipes.

1.1.5 Consumer behaviour in domestic settings or lack of awareness of the issues contributes to these inappropriately flushed sanitary items. Generally, wet wipes used in medical or industrial settings are disposed of appropriately through correct waste streams.

1.1.6 Wet wipes containing plastic are a type of single-use plastic item for which suitable alternatives exist. There are various products on the market which are made of cotton, paper, or other non-plastic substrates.

1.1.7 Consumer behaviour is difficult to influence and change. Public behaviour campaigns generally only have a short-term impact. A more effective solution would be to remove inappropriate items from sale, where suitable alternatives exist.

1.1.8 The Scottish Government wishes to consult on a proposal to ban the manufacture, supply and sale of wet wipes containing plastic. Exemptions will be proposed for wet wipes used in medical and industrial settings.

1.2 Strategic Environmental Assessment

1.2.1 The Environmental Assessment (Scotland) Act 2005 (‘the 2005 Act’) requires that public plans, programmes, and strategies be assessed for their potential effects on the environment^[8]. A Strategic Environmental Assessment (SEA) is the process used to fulfil this requirement and includes consultation with both the public and the Consultation Authorities^[9]. The 2005 Act also sets out the information that is required to be provided in this Environmental Report.

1.2.2 A screening and scoping exercise on the proposed ban on the manufacture, supply and sale of wet wipes containing plastic was undertaken by Scottish Government, in accordance with the requirements of the 2005 Act. A combined Screening and Scoping Report was published in June 2023, setting out the proposed approach to the SEA, including the proposed scope and level of detail. Comments were invited from the Scottish Consultation Authorities.

1.2.3 The outcome of the screening exercise and the consultation responses confirmed the need for an SEA due to the likelihood for significant environmental effects to arise. The proposed scope of the assessment and methodology was broadly accepted by the Scottish Consultation Authorities (see Appendix A).

1.3 Purpose and structure of this report

1.3.1 The purpose of this Environmental Report is to document the findings of the SEA on the proposed ban on the manufacture, supply and sale of wet wipes containing plastic.

1.3.2 The views of the public and the Consultation Authorities on the proposed ban on the manufacture, supply and sale of wet wipes containing plastic and the findings of this Environmental Report are now being sought through a public consultation process.

1.3.3 The remainder of this Environmental Report is structured as follows:

• Section 2 provides information on action to date, the proposed ban on the manufacture, supply and sale of wet wipes containing plastic, and the policy context;
• Section 3 presents the approach to the SEA and the methods used;
• Section 4 describes the relevant components of the environment that could be affected by the proposal to ban the manufacture, supply and sale of wet wipes containing plastic;
• Section 5 sets out the results of the assessment; and
• Section 6 considers the next steps in the implementation of the ban and the SEA process.

1.3.4 The Non-Technical Summary precedes Section 1.