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RECYCLING BRING BANK PROVISION

Cllr Hayley Eachus, Cabinet Member for Recycling, Waste and Regulatory Services Cllr Hayley Eachus

Report to Cabinet

Ward(s): All

Key Decision: No

Papers relied on: None

Appendix 1: Current Sites

Appendix 2: Sites to be closed

Appendix 3: Sites to remain

Appendix 4: Bring Bank Tonnages

Foreword - Cllr Hayley Eachus, Cabinet Member for Recycling, Waste and

Regulatory Services

While bring sites provide a useful discretionary service for the council’s residents, an increase in fly-tipping of materials and items which cannot be recycled from these sites and vandalism at these sites has become a problem requiring significant officer resource to manage. Repairs and clearance are both costly and time-consuming and these sites are being abused instead of used for the manner in which they were intended. It is therefore important that the service is reviewed to identify how a more efficient and environmentally sustainable service can be provided for those residents who use these facilities to increase their recycling. For glass, paper, and card this can be undertaken from the kerbside and excess can be placed out for collection as well. This added to the relative volatility in the recyclables market means the service is expensive for the council to maintain and the benefits of running them are being lost. A review of bring site provision across the Basingstoke and Deane area has been carried out by the Joint Waste Client Team, the recommendations from which are set out in this report.

It is recommended that: -

All paper and cardboard banks are removed from all council managed bring sites.

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All bring bank facilities are removed from the eight sites listed in paragraph 6.1 of this report and the land reinstated as car parking.

All paper/cardboard, glass and WEE bring banks are removed from the twelve sites listed at paragraph 6.3 of this report.

The owners of the twelve bring sites listed in Appendix 3 attached to this report are informed of the council intention to stop providing and maintaining bring bank facilities at these sites.

Bring banks are retained at the six sites listed in Appendix 3 attached to this report, with improvements to signage with the repair or replacement of old bins being carried out.

Investigation on how best to utilise CCTV for dealing with the fly-tipping issues will be undertaken at the sites listed in paragraph 6.8 of this report.

Background, corporate objectives and priorities

Implementation of this report’s recommendations will assist in delivery of the following council plan priorities:

Delivery of high-quality services

Becoming a zero-carbon council by 2025

Reducing antisocial behaviour

A review of bring site provision across the borough has been undertaken by the Joint Waste Client Team. The recommended outcome of this review is that the council’s bring site provision is reduced from twenty-six to six sites, with all paper and card banks being removed and the number of glass banks reduced.

Glossary of terms

Term Definition

JWCT Joint Waste Client Team

CCTV Close Circuit Television

DMR Dry Mixed Recycling

WEEE Waste Electric and Electronic Equipment

HCC Hampshire County Council

MRF Materials Recovery Facility

HWRC Household Waste Recycling Centre – Wade Road – operated by HCC

1. Overview

1.1 The council currently manages 26 bring sites across the borough which is a discretionary service.

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1.2 A summary of the type of material collected from the council managed sites is provided below:

Glass banks – located at 17 sites.

Paper and card banks - located at 11 sites

Waste Electric and Electronic Equipment (WEEE) banks – located at 17 sites

Textile, shoes & book banks – located at 19 sites

Aluminium foil – located at 10 sites.

1.3 Hampshire County Council has advised that from the 1st April 2021 they will not be paying recycling credits for glass, requiring a need for BDBC to look at removing some glass sites to reduce operational costs. Glass is also collected at kerbside.

1.4 We need to rationalise the provision of bring sites to ensure we are meeting the climate change emergency requirements in reducing vehicle movements and emissions by residents and our contractors especially when the majority of materials can be recycled at the kerbside. Excess recycling can be put out with existing recycling bins and glass containers and residents can request additional recycling bins and glass crates free of charge.

1.5 In recent years an increase in the amount of fly-tipping at council bring sites has created management problems for the council and resulted in many complaints from residents. Materials fly-tipped at bring sites include white goods, furniture and DIY waste. The number of reports for fly-tipped material to be removed from the BDBC sites is 398 since 1st April 2020.

1.6 The fly-tipping collected form these sites are not materials which can be recycled through the bring banks or the kerbside collections for example mattresses, children’s toys, cabinets and wardrobes.

1.7 There has also been an increase in anti-social behaviour at some of sites including arson attacks on some banks which have had to be removed; in particular at the Rucstall Community Centre site. The site has now been closed and all the banks have been removed.

1.8 In March 2020, Hampshire County Council restricted access to its household waste and recycling facilities. Currently visits to these sites are by appointment only. The appointment system is likely to continue for the foreseeable future.

1.9 As a result of changes in global markets it is becoming increasingly difficult to identify a market for some of the material collected at bring sites, this is particularly the case with aluminium foil and textiles. The viability of continuing to collect some of these materials is questionable and some charities have indicated that they will be considering removal of their banks. The British Heart Foundation has recently notified the council of its intention to remove its banks, which have now been temporally closed.

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1.10 COVID-19 has resulted in some charity banks not being emptied as the charity shops which they supply have been closed.

1.11 While it is anticipated that a reduction in the number of bring sites could result in a small decrease in the council’s recycling rate, officers believe that this will be offset by the environmental benefits of reduced fly-tipping and carbon emissions as glass and paper/cardboard can be recycled through the kerbside collection systems; there may also be financial savings associated with the clearance and investigation of fly-tips and damage.

1.12 Experience from other councils who have taken the decision to remove some or all of their bring sites, including Hart, is that the fly-tipping does not move to other locations but that residents will start taking it to the correct location which is the HWRC’s and or book bulky waste collections.

1.13 As part of the communications for this report, we propose to include the promotion of the council’s bulky waste collection service which is reasonably priced compared to other councils. At the same time we will include promoting charities which will take old furniture and toys etc. within the borough.

1.14 Closing the bring sites will not affect the locations for the Christmas tree recycling points. These locations will remain and residents can still recycle their trees by leaving them out with their garden waste bins or sacks if they have subscribed to the service.

1.15 The material collected at the council’s managed and privately operated bring sites is included in the council’s recycling rate and contributes 0.62% to the rate. Provision of this service costs the council £80,000 a year..

2.0 Bring bank site locations

2.1 A full list of the 26 bring sites managed and operated by the council is provided at Appendix 1.

2.2 In addition to the sites listed at Appendix 1 there are 43 other sites across the borough which are not maintained by the council.

3.0 Collection and processing arrangements

3.1 Glass bring banks are emptied by Serco as part of the joint waste contract, the emptying of bring banks for other materials such as, paper, card, WEEE and aluminium is contracted separately. Bring banks for textiles, books and CDs are provided and managed by charities.

3.2 All glass collected from bring sites is mixed with the glass collected at kerbside and processed at HCC’s Mixed Recycling Facility.

3.3 Paper and cardboard collected from council managed bring sites is processed at HCC’s Mixed Recycling Facility. It costs £0.029M per annum to empty the paper and cardboard banks. We are unable to quantify the actual income received as it is paid within the whole DMR recycling payments.

3.4 It is not believed that the removal of glass, paper and cardboard from the council’s bring sites will have a significant effect on the council’s recycling rate

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as it is anticipated that most of this material will be picked up through kerbside collections.

3.5 The majority of the items collected from the WEEE banks are recycled. However, recent changes to the legislation controlling the collection of this material have led to an increase in collection costs, as it is now not possible to recycle as much of the electrical equipment as was previously possible. The provision of WEEE banks costs the council £20k/annum and provides no income.

3.6 Looking to the future it is anticipated that legislation will require companies that manufacture small electrical equipment to be responsible for the collection and recycling of items.

3.7 A summary of the quantity and types of material collected at the council’s bring sites is provided in the table provided at Appendix 4.

3.8 Members should note that the amount of officer time spent on monitoring and manging these sites, including dealing with complaints, has been high and with the rationalisation of sites officers will be able to focus more on leading other projects including reducing contamination of the wheeled bins especially for recycling.

3.9 The Joint Waste Client Team have been working on initiatives to continue to increase the boroughs recycling rate including the following:-

a) Communal/Flatted Areas – we have completed improvements to signage and bin stickers as well as information to residents at 5 sites in the borough

b) Reviewed all Assisted Collections

c) Missed bin trending – identifying crew improvement opportunities – re-educating crews on what should and should not be collected as recycling to help reduce contamination at the MRF

4.0 Options for consideration

4.1 The following options have been identified for the council to consider:

a) Do nothing.

b) Retain current bring site provision but increase the frequency of bank emptying and site clearance.

c) Rationalise bring site provision and carryout improvements at the retained sites.

5.0 Option A – Do nothing

This option would see the existing service provision maintained with no change to the resource allocated to manage and maintain the sites.

The perceived benefits and disadvantages of this option are set out below:

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Benefits Disadvantages

Existing bring site provision would be maintained.

Existing fly-tipping problems at bring sites will continue.

No increase in costs. Would not deliver any financial benefit.

Would not reduce carbon emissions.

5.1 Option B – Retain current bring site provision but increase the frequency of bank emptying and site clearance.

N.B - Whilst it would be possible to increase the frequency of emptying of bring banks which the council manages, the council has little control over the frequency of emptying of charity banks. There is therefore a very high likelihood that this option would increase the overall cost of the service to the council and not resolve the fly-tipping issues at sites.

The perceived benefits and disadvantages of option B are set out below:

Benefits Disadvantages

More frequent collections may improve image of site and reduce complaints.

Will not reduce fly-tipping problem.

Existing bring site provision will be maintained.

Increased emptying and maintenance visits will result in increased carbon emissions.

It is unlikely that it will be possible to increase the frequency that charity banks are emptied.

Will increase service costs.

5.2 Option C – Rationalise bring site provision and carry out improvements at the retained sites.

N.B - Proposed improvements include, new bins, improved signage and consideration being given to the installation of CCTV.

The perceived benefits and disadvantages of option C are set out below:

Benefits Disadvantages

Fewer vehicle movements for the emptying and maintenance of the sites will reduce carbon emissions.

The availability of bring sites across the borough will be reduced.

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The number of bring sites which attract fly-tipping will be reduced.

The variety of materials collected at the retained sites will be reduced.

Improvements will be made to the image of retained sites.

BDBC Operations would become responsible for some sites but will become car parking spaces so should be dealt with in the same way as all other car parks.

Serco will remain responsible for the clearance of sites where glass location is provided

Would deliver cost savings.

5.3 Recommended Option

It is recommended that Option C is implemented.

5.4 Appendix 1 provides details of all current sites maintained by Serco under the waste contract.

5.5 Appendix 2 details the sites to be closed and who will be responsible for their maintenance in the future. In Appendix 2 where it states landowner we will contact the relevant owners once approval for this report has been gained.

5.6 Appendix 3 provides details of the all the sites to be retained. Monitoring, supervision, and maintenance of these sites will remain in the waste contract and the responsibility of Serco.

6.0 Proposals for implementation of Option C rationalising bring site provision

6.1 Approval of the recommended option would see the 8 sites listed in the table 1 below closed as bring bank sites. All the sites listed in this table are in council owned car parks and removal of the bring banks will allow the areas to be reinstated as car parking. Closure of these sites will require the council to serve notice on the charity providers to remove their banks.

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Table 1 – Sites to be Closed

6.2 Once the banks have been removed from the sites listed in table 1 these sites would be converted to parking spaces. The responsibility for their maintenance and clearing of any fly-tipping would revert to the council’s streetcare team as with all other car parks.

6.3 The council managed sites listed in table 2 are located on private land. Approval of the Option C would see the bring banks for glass, paper/ cardboard and WEEE removed from these sites and notice being served on the landowner that the council will no longer be responsible for the maintenance/clearance of the site. It will then be for the landowner to decide whether to allow they wish to allow the charity banks to remain on the site.

Ownership Glass Paper

and Card WEEE

Charity Banks

Burghclere

Recreation Ground, Harts Lane,

Burghclere, RG20 9HY

Council Owned Car

Park Y Y Y

Eastrop Eastrop Park car park, RG21 4QD

Council Owned Car

Park Y Y Y

Hatch Warren Community Centre, Long Cross Lane,

RG22 4XF

Council Owned Car

Park Y Y

Kempshott Stratton Park, Pack Lane, Basingstoke,

RG22 5HN

Council Owned Car

Park Y Y Y Y

Oakley Beach Park, Station Road, Oakley, RG23

7HA

Council Owned Car

Park Y Y Y Y

Whitchurch Bell Street Car park, Whitchurch, RG28

7AE

Council Owned Car

Park Y Y Y

Whitchurch

Silk Mill car park, Winchester Road, Whitchurch, RG28

7HP

Council Owned Car

Park Y Y

Winklebury Watson Way shops,

Winklebury Way, RG23 8AN

Council Owned Car

Park Y Y Y Y

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Table 2 – sites where glass, paper, cardboard and WEEE banks are to be removed

Ownership Glass Paper and Card

WEEE Charity Banks

Beggarwood Beggarwood Surgery,

Broadmere Road, Basingstoke, RG22 4AQ

Private Y Y

Bishops Green

Bishops Green Village Hall, Ash Road Bishops

Green, Basingstoke, RG20 9JG

Private Y Y

Black Dam Rucstall Community

Centre, Holbein Close, RG21 3QN

Private Y Y

Brookvale Morrison's Ltd, Worting

Road, RG21 8BJ Private Y Y

Hannington The Vine PH, Ibworth

Lane, Hannington, RG26 5TX

Private Y Y

Kempshott Buckingham Parade, Old Down Close, RG22 5NZ

Private Y Y

Lychpit Lychpit Centre, Great

Binfields Road, Lychpit, RG24 8TF

Private Y Y Y

St Mary Bourne

Village Shop, Bourne Meadow, St Mary

Bourne, SP11 6BE Private Y Y Y

Oakridge Upper Sherborne Road Oakridge, Basingstoke,

RG21 5RP Private Y Y

Popley Popley fields, Carpenters Down Popley RG24 9AE

Private Y

Popley Tesco’s Express,

Carpenters Down Popley RG24 9DR

Private Y Y

Popley Abbey Road shops,

RG24 9ES Private Y Y Y

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6.4 Signs will be placed at the sites where bring banks are removed reminding users that glass, paper and card is collected at kerbside, and directing them to the nearest alternative site.

6.5 These sites will become the responsibility of the landowner and they will be responsible for clearing any fly-tipping on these sites. Officers will write to the site owners of those sites which will have the WEEE, Paper/Card and Glass banks removed to advise that the council will no longer take responsibility for any fly-tipping on these sites. They will need to ensure that they are happy for any charity banks to remain on the site.-

6.6 A timeline plan for closing the sites will be drawn up once we have permission to close. The intention is to close sites over a couple of months to ensure the messages are there to encourage residents to move to using the kerbside services as well and informing them of the sites which will be remaining.

Sites to be retained

6.7 Approval of the recommended option C will see the strategic sites listed in Appendix 3 retained with improvements being made to the signage and old/worn bring banks replaced. Paper and cardboard bring banks will be removed from all sites as this service is provided to residents as part of their kerbside collection.

6.8 These sites have been chosen to be retained due to their location within main shopping areas and supermarkets which will mean people are not making special journeys to dispose of their recycling but are able to do so when going shopping. This will assist in reducing the carbon emissions and help to meet the Council’s climate emergency by residents not driving to a site just to dispose of their recycling.

Signage

6.9 Improvements to the signage on the retained sites will include the installation of more prominent and robust signage. This signage will provide information about what can and cannot be recycled at the site, and general bring site use. It will also include a strong, anti-fly-tipping message. Which will make it clear that fly-tipping is an offence and that anyone caught doing this could be prosecuted.

CCTV

6.10 Officers will investigate the best use of CCTV for the remaining sites detailed in Appendix 3 to try and reduce the fly-tipping on these sites.

7.0 Communications 7.1 A communications and marketing plan will be drawn up to support the

rationalisation of the bring sites, with communication activity commencing at least six weeks before the sites close. The plan will provide information on the reasons for rationalising the sites, details on the location of the retained sites and how this fits in with the council’s overall approach to recycling. Separate communications will be targeted at residents in the vicinity of sites identified for closure. This will include on-site signage, social media, press releases to the local media, parish and community publications, community websites and

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emails. Owners of private bring sites will be advised in writing of the proposed changes. The bulky waste collection service will be promoted.

7.2 We will promote more frequently, the message that excess recycling and glass

can be left outside the recycling bin to residents and that they can have extra bins which are provided free of charge.

7.3 We will ensure we include within the communications where residents can

dispose of their small WEEE to at other sites which are remaining or alternatively back to the manufacturers.

7.4 We have recently removed two sites within the borough due to antisocial

behaviour and arson. As part of the closure for these sites we undertook the following:-

a) Closure notices posted on site 4 week in advance of closure date. b) Additional signage added on closure advertising other available

sites. c) Site monitoring for two weeks post closure.

7.5 The two sites removed have not suffered further fly-tipping and are now parking

areas. 8.0 Legal implications 8.1 There are no specific legal implications associated with this report, any legal

implications associated with the installation of CCTV and fly-tipping enforcement will be considered as part of any implementation.

9.0 Financial implications 9.1 As shown in the table below the cost of the management of the council’s bring

sites in 2020/21 was £0.066M. The table also shows the cost impact of the recommended option C.

Service Current cost

£M

Cost of preferred option C

£M

Net saving

£M

Paper and Cardboard banks

0.029 0.000 (0.029)

WEEE banks 0.021 0.009 (0.012)

Glass banks and clearance of fly-tipping

0.014 0.004 (0.010)

Foil 0.002 0.002 0

Total 0.066 0.015 0.051

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9.2 The council receive income from glass, paper and cardboard collected at bring sites through the Hampshire Waste Contract. It is not possible to separate this from the total income of £0.310M received from kerbside collections and bring sites in 2020/21.

9.3 HCC have recently notified all Hampshire District Authorities that the payment of glass recycling credits will end in April 2021 (£0.246M received in 2020/21), and that HCC will be seeking to renegotiate all other income from the sale of recycling materials in 2021/22.

9.4 Whilst sale of equipment held at the paper and cardboard bring sites will provide a one off income it is estimated that this will be minimal and is therefore not considered in this report.

9.5 Members should note the savings mentioned in this report are in addition to those identified within the current budget.

10.0 Equalities implications

10.1 An Equality Impact Assessment has been undertaken to consider the impact of proposed reduction of bring sites across the borough on the protected characteristics groups and the implications for the Public Sector Equality Duty.

10.2 This assessment concluded that there are no negative impacts of the proposed change on any groups and would be positive for all as It would reduce the need for residents to take their recycling to the sites as they can have it collected from the kerbside.

10.3 If approved, the changes being proposed would need to be communicated in a wide variety of ways to ensure that all residents are aware of them.

11.0 HR Implications

11.1 There are no HR implications arising from this report.

12.0 Climate Change Implications

12.1 Approval of this reports recommendations will result in a reduction in the number vehicle journeys required to empty and maintain the council’s bring sites which will contribute to a reduction in the council’s carbon emissions.

12.2 Whilst the reduced availability of bring sites may result in slight reduction in the council’s recycling rate. It is predicted that this reduction will be negligible as kerbside collections are provided for glass, paper and cardboard and there is no limit on the number of containers residents can have for this material, in addition residents will still have access to alternative bring sites for materials that cannot be recycled at kerbside.

13.0 Summary

13.1 Community, Environment and Partnership Committee discussed this report at their meeting on 28th July 2021 and agreed with the recommendations of this report.

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13.2 The council’s current bring site provision serves as a focus for fly-tipping and generates many unnecessary vehicle journeys. Cardboard, paper and glass recycling is readily available as part of residents’ kerbside collection services. Implementation of this report’s recommendations will deliver a more efficient/sustainable and environmentally friendly service.

Date: 10th August 2021

Lead officer Helen Taylor-Cobb, Delivery Manager

Report author Sarah Robinson, Waste and Recycling Manager

Version Final

Dated 10/08/2021

Status (Open)

Confidentiality

It is considered that information contained within this report (and appendices) do not contain exempt information under the meaning of Schedule 12A of the Local Government Act 1972, as amended, and therefore can be made public.

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Appendix 1 – Current Waste Contract Sites

Location Ownership

Abbey Road Shops, Popley Private

Beggarwood Surgery, Broadmere Road, Basingstoke, RG22 4AQ Private

Bishops Green Village Hall Private

Buckingham Parade - Kempshott Private

The Vine PH, Ibworth Lane, Hannington, RG26 5TX Private

Morrison’s Ltd (Worting Road Private

Popley Fields Community Centre Private

Recreation Ground car park (Burghclere RG20 9HY) Private

Tesco Express Car Park (Carpenters Down) Private

The Lychpit Centre (Great Binfields Road) Private

Upper Sherborne Road Oakridge, Basingstoke, RG21 5RP Private

Village Shop (St Mary Bourne) Private

Watson Way Shops (Winklebury Way) Private

Beach Park car park Council Owned

Bell Street car park Council Owned

Eastrop Park car park Council Owned

Hatch Warren Community Centre Private

Rucstall Community Centre (Holbein Close) Private

Silk Mill Car Park (Whitchurch) Council Owned

Stratton Park (Pack Lane) Council Owned

Brighton Hill shopping centre Private

Castons Car Park, New Road Council Owned

Chineham Shopping Centre Private but we lease the site

Fieldgate Centre Private

Overton Hill Car Park Council Owned

Winklebury Centre (Winklebury Way) Private

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Appendix 2 – Sites to be Closed and Future Responsibility

Location Ownership Streetcare Responsible

Abbey Road Shops, Popley Private No

Beggarwood Surgery, Broadmere Road, Basingstoke, RG22 4AQ

Private No

Bishops Green Village Hall Private No

Buckingham Parade - Kempshott Private No

The Vine PH, Ibworth Lane, Hannington, RG26 5TX Private No

Morrison’s Ltd (Worting Road Private No

Popley Fields Community Centre Private No

Recreation Ground car park (Burghclere RG20 9HY) Private No

Tesco Express Car Park (Carpenters Down) Private No

The Lychpit Centre (Great Binfields Road) Private No

Upper Sherborne Road Oakridge, Basingstoke, RG21 5RP

Private No

Village Shop (St Mary Bourne) Private No

Watson Way Shops (Winklebury Way) Private No

Hatch Warren Community Centre Private No

Beach Park car park Council Owned Yes - car parking

Bell Street car park Council Owned Yes - car parking

Eastrop Park car park Council Owned Yes - car parking

Rucstall Community Centre (Holbein Close) Council Owned Yes - car parking

Silk Mill Car Park (Whitchurch) Council Owned Yes - car parking

Stratton Park (Pack Lane) Council Owned Yes - car parking

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Appendix 3 – Sites to Remain on Waste Contract

Brighton Hill Shopping Centre RG22 4EH Private

Chineham Shopping Centre, East Car Park, Chineham RG24 8BQ

Private – bring site leased by council.

Castons Car Park, New Road RG21 7PF Council Owned Car Park

The Fieldgate Centre, Fieldgate Drive RG20 5SQ Council Owned Car Park

Overton Hill Car Park, London Road RG25 3NU Council Owned Car Park

Winklebury Centre RG23 8BU Council Owned Car Park

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Appendix 4 – Bring Bank Tonnages

Bring Bank Tonnages

Provided and Maintained by the Council Tonnage 2019-2020

Aluminium Foil Magpie 2.80

WEEE - computer salvage 42.01

Total Tonnage 44.81

Provided and Maintained by Third Party Contractor Tonnage 2019-2020

Salvation Army - Books 0.93

Salvation Army - Clothing 124.51

British Heart Foundation - Books/music 38.33

British Heart Foundation - Textiles 2.66

Hampshire Air Ambulance (bag it up) - textiles 216.74

Reading textiles - Textiles 60.72

Oxfam - Textiles 53.48

Planet Aid UK LTD - Textiles 6.81

Palm paper from Sainsburys 11.19

Mixed Plastic from Sainsburys 9.14

Palm Cans from Sainsburys 5.32

Mixed glass from Sainsburys 216.45

Traid - Textiles 21.29

SOEX UK LTD (Textiles) 2.30

SOEX UK LTD (Shoes) 2.91

Total Tonnage 772.76

Total Overall Tonnage 817.57