13. Waste Disposal

Modern industrial society produces large quantities of different types of waste: this waste ranges from the high volume materials such as mining and colliery spoil, household waste, commercial and industrial waste, to the lower volumes of hazardous and toxic wastes.

The management and disposal of these materials can be contentious and the policies contained within the UDP are aimed at minimising the impact of waste disposal facilities on the public and the environment, while at the same time ensuring that the needs of industry and the public with regard to waste disposal facilities are met. This balance between environmental issues and the need for waste facilities in line with requirements, is designed to meet the aims of the UDP in terms of economic regeneration and environmental improvements.

Strategic Guidance for South Yorkshire states that "Landfill is expected to remain the main method of disposal for domestic and commercial waste, as well as for colliery spoil that cannot be accommodated on existing sites. Sites should be selected and managed to minimise pollution and impact on the environment. District Councils are expected to co-ordinate their policies for waste disposal having regard to the Waste Disposal Plan to be produced by the Joint Waste Management authority and in consultation with that body and with other relevant authorities within the Yorkshire and Humberside region".

No Joint Waste Disposal Plan has however been produced; instead the Borough Council, as Waste Disposal Authority, (WDA) has produced a Waste Disposal Plan, based upon the present and projected waste arisings for the Borough in accordance with its duties under the Control of Pollution Act 1974.

The management and disposal of waste in England and Wales is currently controlled by two Acts of Parliament - the Town and Country Planning Act 1990, which regulates planning and the Environmental Protection Act 1990 which regulates waste collection and disposal and requires all disposal sites for controlled waste (i.e. household, commercial and industrial waste, but excluding waste such as mining and agricultural) to be licensed. There is, in addition, important European legislation on Waste Management. The Environmental Protection Act 1990 supersedes the Control of Pollution Act 1974 and introduces fundamental changes. In particular, although the Council continues to have a statutory responsibility in respect of the collection and disposal of waste arising within its area, the waste disposal function is henceforth discharged through a separate disposal operator on a renewable contract basis, secured by competitive tender. Since August 1993, this role has been fulfilled in Barnsley, Doncaster and Rotherham by B.D.R. Waste Disposal Limited, an 'arms length' company, in which these three South Yorkshire Councils have a 20% interest, with 80% controlling interest held by Yorkshire Water PLC. This new operating company is known as a Local Authority Waste Disposal Company (LAWDC). The company operates in a free market situation utilising existing landfill capacity 'transferred' from the Councils as well as promoting new initiatives (including alternative methods of waste disposal, such as incineration) where need or opportunities arise over the contract period (10-15 years). The land-use implications of any such initiatives will be assessed by the Council against the relevant policies contained in the UDP. A separate waste regulatory authority (the South Yorkshire Joint Waste Regulation Authority) has responsibility for the day-to-day operational control and site licensing of all controlled waste disposal sites within the County. It must also prepare a Waste Disposal Plan which will indicate the arrangements needed to treat or dispose of the controlled wastes within its area in such a manner as to minimise pollution and harm to human health. The UDP must make the necessary land-use planning provisions to ensure the achievement of the arrangements identified in the Waste Disposal Plan, the commencement of which, however, has been delayed. In the absence of such guidance the UDP has had to rely instead on the provisions for the treatment of waste contained in the Council’s existing approved Waste Disposal Plan prepared under earlier legislation

The main aims of the Waste Disposal Plan are to provide a waste disposal strategy for the next 10 years and to provide policies for determining site license applications under the Control of Pollution Act. The Plan deals primarily with the issues of "controlled waste": in accordance with government guidelines, however, details of non-controlled waste are also included in the Plan.

The Waste Disposal Plan indicates that total waste arisings within the Doncaster area are in the region of 2.5 million tonnes per annum (tpa) of which mining and quarry waste accounts for over 1.5 million tpa. In terms of weight, therefore, the majority of waste materials produced within Doncaster falls outside the provision of the Environmental Protection Act and the site licensing system. The policies contained within the UDP are designed to cover both "controlled waste" and non controlled waste such as mining waste (in Doncaster mainly colliery spoil).

UDP policies are also concerned with post operational matters such as restoration, and leachate and landfill gas management programmes which, although covered by the Environmental Protection Act, may still, in some circumstances, require the involvement of the planning authority.

It is the Government's intention within the timescale covered by the UDP to re-organise waste regulation throughout the country on a regional basis acting through a new 'Environmental Agency' to be established and which will be responsible for all site control matters as well as providing a strategic overview in accordance with broad guidance which will be issued from time to time by central Government. Land-use planning aspects of waste control will continue to remain firmly with the local planning authority.

UDP policies deal with all development and land use planning aspects of waste management and are intended to cover all waste facilities including landfill sites, waste transfer stations and waste incinerators.

The Strategic Planning Guidance for South Yorkshire and Doncaster's approved Waste Disposal Plan, both recognise that landfill will remain the main method of disposal for domestic and commercial waste, as well as for colliery spoil during the UDP period. However, the principles underlying both the Government's and European policies on Waste Management are reflected in the following priorities:-

• prevention of waste (minimisation)
• maximal recycling and reuse of material
• safe disposal of any waste which cannot be recycled or reused in the following order of priority;

waste-to-energy; incineration; landfill (last resort) - commitment to the proximity principle and the need for regional self-sufficiency requires that waste should be disposed of (or otherwise managed) close to the point at which it is generated. Reducing at source the volume of waste entering the waste stream (waste minimisation) is likely to become an issue of increasing public concern during the UDP period and although largely outside the Council's direct control, is an issue which is considered in the UDP. Waste minimisation and recycling, as well as conserving resources, also reduces the final volume of waste for disposal and, ultimately, landfill capacity requirements. They therefore have important land-use planning implications. Although local landfill is currently accepted to be the cheapest method of waste disposal, such methods are also increasingly being recognised as environmentally questionable and wasteful of resources. The Council will seek, therefore, to reduce the reliance on landfill as the primary method of waste disposal and will promote this objective through its own waste collection and disposal operations and by encouraging the private sector. Landfill can, however, provide other benefits in addition to cheap and convenient disposal, a major one being that it is very often the only effective way of restoring mineral working sites. Where circumstances are suitable, the landfill gas produced by the decomposition of organic matter within some sites can be extracted and managed as a source of local energy. Tipping above ground to produce new landforms ("landraising") is a development of this method where voids are absent and local topography is suitable. Difficulties with landfill gas migration tend to be less problematic with this technique, though the operation itself may be more environmentally intrusive. Increasing constraints on this method of disposal will mean that the potential for identifying new sites for landfill within the UDP period will become more difficult. At the same time, the relative cost of landfill will increase, which is likely to place renewed emphasis on the methods of waste treatment and disposal that are more environmentally advantageous, such as composting and incineration. The Borough Council is mindful of the proximity principle and the need for regional self-sufficiency. In line with these principles the Borough Council will seek to ensure that waste disposal arrangements within the Borough are self-sufficient so far as is practicable, consistent with all relevant environmental consideration. A Co-ordinated approach to waste management policy formulation by the four South Yorkshire Councils is expected, which should have regard to the Waste Disposal Plan to be produced by the Joint Waste Regulation Authority. It is also recognised that, in the longer term, a regional strategy covering the whole of the Yorkshire and Humberside region will be required.

Some concern has been expressed recently over the importation of wastes, both toxic materials and the bulkier household, commercial and industrial materials, into Doncaster. The issues involving toxic waste are addressed in Policy SWD3. As far as bulk wastes are concerned, there is a growing shortage of suitable landfill sites in many urban areas throughout the country and the presence within Doncaster of substantial void space is likely to lead to increased pressure from outside areas for landfill facilities in Doncaster. The three Boroughs of Barnsley, Doncaster and Rotherham have agreed to aim to be self-sufficient in waste facilities, and to identify sufficient capacity in each UDP to broadly cater for the waste arising from each Borough, for the plan period. It is, however, recognised that, through joint agreements, there may be justification for some cross boundary movement of waste, particularly household, within the three Boroughs. It is also recognised that, in the long term, there is a need for a strategic/regional waste strategy which will address the questions of self-sufficiency and the movement of waste. In the absence of any County or regional level strategy, the Borough Council will assess proposals for waste facilities on the basis of need, taking account of the proximity principle and the aim of self-sufficiency, and all relevant UDP policies.

As noted above, the Waste Disposal Plan (WDP) indicates that, of the 2.5 million tpa of waste produced, some 1.5 million tpa consists of mining waste. The Plan also shows that Pulverized Fuel Ash (PFA) accounts for 368,000 tpa, and agricultural waste for another 178,000 tpa. Specific arrangements are made for the disposal of these wastes, mainly by landfilling. Colliery spoil for example is disposed of on colliery tips, usually situated adjacent to the producing colliery. The major portion of PFA produced is disposed of by landfill on a site adjacent to Thorpe Marsh Power Station. Agricultural waste consists largely of animal excreta from livestock and such material is mainly disposed of by spreading on land in accordance with recognised agricultural practice. In addition, the glass industry in Doncaster produces quantities of waste known as "burgy", which consists largely of fine sand.

Materials such as colliery spoil, "burgy" and PFA are largely incombustible and alternative methods of disposal, such as incineration, are clearly unsuitable. For these types of material, therefore, there is at present little alternative to landfilling as the main method of disposal.

The Council however encourages the reclamation and recycling of suitable materials such as colliery spoil and PFA as an alternative to landfilling. The re-use of such materials will have the effect of reducing the amount of land required for landfilling and will also reduce pressures on the extraction of virgin materials (Policies SWD2 and SM7).

The remaining waste arising, some 0.3 million tpa, consists mainly of household, commercial, industrial and construction and demolition waste. The WDP states that, over the next 10 years, the principle method for the disposal of commercial and household waste is anticipated to be by direct landfill. To cope with this material it is expected that there will be a requirement for approximately 2.5 million cubic metres of landfilling void space over the 10 year plan period from 1991. The requirement of 2.5 million cubic metres (M3) can be broken down into approximately 0.5 million m3 for "inert" construction and demolition waste, and 2 million m3 for household and commercial waste. The current "landbank" of permitted void space for waste disposal, from 1991 is;

Inerts (construction/demolition) waste- 0.85 million m3

Commercial/Industrial waste- 1.3 million m3

Household waste- 3.0 million m3

The sites from which this "landbank" has been calculated are listed in appendix 10.4 and are indicated on the accompanying map.

The waste management industry is at present going through a period of major changes, both in terms of technology and legislation. New legislation and the importance of more stringent conditions are likely to cause landfilling costs to increase. At the same time, alternatives, such as incinerators and composting, may be used for organic material such as household waste and it can be expected that in future these methods may become more widespread as the technology improves and costs, relative to landfill costs, fall. Despite these factors, however, the particular circumstances of Doncaster are likely to favour landfilling as the main means of disposal of household and similar waste.

The existence within Doncaster of major surface mineral extraction industries means that some 2 million cubic metres of void space is created annually. While all of this void space may not be suitable for landfilling operations, it is likely that the presence of such substantial void space will mean that landfilling continues to remain the most practicable method of waste disposal, for most types of waste, throughout the plan period.

Whatever waste facilities are proposed, the Borough Council expects that the most effective and appropriate techniques are used to minimise the impact of the facility on the people and the environment of the Borough.

The recycling and reclamation of materials from the waste stream reduces both the volume of waste to be disposed of, and therefore the need for landfill capacity. In addition, the use of waste materials as substitutes for mineral products helps conserve scarce mineral resources.

Significant amounts of waste materials are recycled at present: a large proportion of material is, however, unsuitable or difficult to reuse. Any increase in the amount of waste material recycled will depend upon the setting up of a viable infrastructure and the assurance that there will be a significant long term demand.

Despite these difficulties the Borough Council is committed to encouraging recycling where possible. As part of this commitment the WDA operates a number of reclamation schemes at Civic Amenity Sites (Dumpit sites) and at other locations throughout the Borough. In addition, Policy SH16 on retail development includes a provision for ensuring that adequate space is provided on car parks for recycling facilities.

This was not saved in 2007.

It must be acknowledged, however, that waste recycling and reclamation facilities can themselves give rise to environmental problems and have an adverse effect on local amenities through noise, litter, dust etc. One method of waste reclamation, the re-working of previously tipped material to extract useful products such as aggregates and soil materials, can present particular problems. Frequently communities have suffered in the past from the environmental impact of minerals extraction, followed by waste disposal in the resultant void space. Any subsequent re-working of such tipped material can prolong and intensify the impact on local communities. In addition, the disturbance of previously tipped material could cause the escape into the environment of potentially harmful substances. The Borough Council will not support the re-working of previously tipped land where no material environmental improvement can be demonstrated. Where, however, there is a demonstrable need to re-work or disturb unacceptably restored sites and where such reworking would facilitate a high standard of final restoration the Borough Council may support such proposals. The Borough Council must, however, be satisfied that any such re-working would not have any potential detrimental polluting effect upon the environment.

Waste facilities such as waste paper depots, transfer stations (including scrap yards) etc., need to be carefully located and operated to the highest standards if they are not to give rise to environmental problems. Policy EMP11, on "Bad Neighbour" developments, identifies a site which is considered suitable for facilities such as scrap yards etc. Waste recycling and similar facilities will normally be restricted to that site identified in EMP11, and to operational landfill and mineral extraction sites, where appropriate. Any such facilities permitted on landfill or mineral sites will normally be restricted to the life of the landfill or mineral site, in order that restoration and after uses of the site can be facilitated.

As well as the reclamation of materials the concept of recycling can also be applied to the re-use of waste as an energy resource. The incineration of waste can provide a useful resource, either in the form of heat or in electrical generation. Such schemes, however, require significant capital input and are unlikely to be an option in Doncaster during the plan period. Of more practical significance is the utilisation of landfill gas, again either as heat or electricity.

Replaced by Barnsley, Doncaster and Rotherham Joint Waste Plan. To view this policy please click here.

Landfill gas, a mixture of methane and carbon dioxide, is produced by the decomposition of organic waste material. On a modern landfill site, landfill gas is controlled, normally by venting into the atmosphere, or by flaring off. The utilisation of such a potential energy resource can have positive benefits, including the prevention of atmospheric pollution and the reduction in costs of landfilling through commercial energy production. It is recognised however, that such utilisation may not be practicable or economic at all sites.

It must be acknowledged also that some recycling schemes can be incompatible. The removal of combustibles such as plastics and paper for re-use would reduce the remaining wastes suitability as a fuel for an incinerator aiming to supply heat/energy. Consequently, recycling should be looked at as a whole. Guidance on this matter should be provided by Waste Collection Authorities under the provisions of the Environmental Protection Act.

"Special Wastes" are defined in the Special Waste Regulations 1996 and include wastes which are generally known as "toxic". The Regional Planning Guidance for Yorkshire and Humberside (RPG 12) states that planning and waste disposal authorities within the Region should consider, in consultation with those organisations likely to have an interest in the matter, the need for such a facility in the Region, and, if such a need is established, co-ordinate their activities and provide for a regional toxic waste incineration facility to be developed within the metropolitan districts of the Region to the west of the A1. In the UK at present, apart from "in house" chemical incinerators, most "toxic" waste treatment is carried out at only three sites around the country. In the short to medium term it is estimated that there may be a requirement for an increase in national capacity, perhaps two/three additional sites. It is questionable therefore whether there is any demonstrable need for such a facility within the Region. Doncaster Borough is predominately underlain by areas of high groundwater vulnerability and the aquifer is very vulnerable to pollution. The aquifer is also particularly important since it supplies some 90% of Doncaster's public water supply. In refusing planning permission in 1990 for a proposed regional toxic waste treatment centre at Kirk Sandall, the Secretary of State noted that the appeal site lay on the most important aquifer in Northern England, unprotected by overlying clays, and considered the risk of possible pollution of this aquifer, however small, would not be acceptable. On the basis of technical evidence gathered by the Borough Council's consultants at the Kirk Sandall public inquiry, it is considered that potential sites for special waste and solvent recovery facilities which could meet the criteria set out in Policy SWD 3 are likely to be extremely limited.

This was not saved in 2007.

"Waste facilities" include, inter alia, landfilling and land raising, incinerators, waste transfer stations (including scrapyards), recycling centres, composting facilities. Although substantial void space, created by mineral extraction, exists within the Borough, the location of such potential landfilling sites can be remote from major areas of waste arisings. The Council considers that disposal facilities should be distributed throughout the Borough to ensure that the different needs of industry, commerce and population for waste disposal facilities are adequately met. The distribution of sites in accordance with waste arisings enables transport costs and traffic problems to be minimised, and will help to discourage unauthorised fly-tipping.

This was not saved in 2007.

Waste facilities such as landfill sites, transfer stations (including scrap yards) are however classed as "bad neighbour" development and their impact on the environment and local amenities can be severe. A balance therefore needs to be struck between the need for a particular facility and the impact of that facility, recognising that almost all waste facilities can have a degree of adverse impact.

The environmental impact of landfilling operations is largely dependent on the type of waste material being deposited. A short term operation, involving the infilling of a void with innocuous excavation or soil type material for example, may well be acceptable from both a visual and pollution aspect. A long term operation involving household waste, on the other hand, could create unacceptable problems in terms of visual impact, litter, odour etc., and in terms of ground water pollution and generation of landfill gas. The type of waste will therefore be a major factor in deciding landfilling proposals. Sites in locations where the volume of waste arisings is low can take many years to complete and restoration may be delayed for an unacceptable length of time. The volume of arisings will also be taken into consideration.

Replaced by Barnsley, Doncaster and Rotherham Joint Waste Plan. To view this policy please click here.

However, in the absence of a regional waste strategy, and on the understanding that the Borough Council has no legislative power to direct waste to a particular location, applications for all waste facilities will be treated strictly on their merits taking account of need and will need to satisfy relevant waste disposal and other UDP policies. In view of the substantial permitted voidspace within the Borough, no specific sites have been identified in the Proposals Map for future waste disposal. As far as "Areas of Search" are concerned, it is expected that existing and proposed mineral extraction sites may, where appropriate, provide potential landfill capacity.

The environmental and land use problems associated with landfilling and other waste facilities, range from visual intrusion, the loss of farm land, damage to ecological/archaeological/scientific interests, pollution of water resources and the impact on roads and other local amenities.

Proposals for waste facilities will be expected to comply with the relevant policies contained within the UDP concerning agriculture, wildlife, landscape, the built heritage and transport (as set out in the Environment and Transport Chapters).

Replaced by Barnsley, Doncaster and Rotherham Joint Waste Plan. To view this policy please click here.

A particular problem associated with landfill sites and facilities handling putrescible and/or hazardous materials, is the serious risk of pollution of groundwater and water courses through the generation of damaging leachate or spillage of materials.

A large proportion of Doncaster's water supplies are obtained from groundwater and the protection of this resource is essential. For potentially polluting wastes therefore, one of the main criteria in assessing proposals will be the suitability, in hydrogeological terms, of the proposed site and the risks of pollution. There should be no tipping of materials or raising of ground levels within flood plain areas as defined by the National Rivers Authority. In assessing applications for landfill and other waste facilities the Borough Council will take account of the National Rivers Authority's policy document Policy and Practice for the Protection of Groundwater.

Replaced by Barnsley, Doncaster and Rotherham Joint Waste Plan. To view this policy please click here.

Despite the existence of substantial void space in Doncaster, some waste facilities may need to be located on agricultural land. In accordance with Policy ENV16 the development of such facilities will not be acceptable on agricultural land of grades 1, 2 or 3a. Where agricultural land of low quality is proposed for landfilling operations, an appropriately designed scheme can ensure a net improvement in local amenities.

Replaced by Barnsley, Doncaster and Rotherham Joint Waste Plan. To view this policy please click here.

Low lying, water logged or poor quality agricultural land may be unsuitable for landfilling in terms of visual intrusion or impact on amenities. In addition, such sites may have value, in their existing state, in conservation or amenity terms. Alternatives to landfill, such as improved drainage, may often be a more appropriate method of dealing with such problems. Alternatively, in a period of agricultural produce surpluses, diversification into other uses such as conservation, may well be a more appropriate use for the land than landfill. It is accepted however that there may be particular circumstances where landfilling can result in a genuine and lasting agricultural or environmental improvement to poor quality agricultural land, provided that operations are carried out in accordance with a detailed scheme.

This was not saved in 2007.

The impact on amenity of nearby residential properties will vary according to their distance from the site, the extent of the intervening tree cover, the intervening topography and the nature of the wastes to be deposited or treated. The policies contained within the UDP are designed to reduce any nuisance to a minimum. It must be acknowledged however that, in most cases, it is impossible to entirely eliminate the impact of a waste disposal site on residential and similar property.

Replaced by Barnsley, Doncaster and Rotherham Joint Waste Plan. To view this policy please click here.

As a consequence of waste disposal it may be necessary to divert the course of a public right of way. In these cases suitable means of alternative access must be provided for the duration of the development or longer.

Waste disposal issues are often closely linked to mineral extraction issues as mineral sites can provide voids for landfill sites, and landfilling is seen as a method of restoring mineral sites. A number of applications consist of combined proposals for both mineral extraction followed by landfilling. In such circumstances, the landfilling phase is dependent on the mineral extraction taking place and the creation of void spaces. Such combined proposals will therefore be primarily considered in terms of mineral extraction - i.e., whether the proposed site is suitable for mineral extraction and whether the proposal complies with relevant minerals/environment policies. Proposals can also be made for landfilling within existing mineral voids. Such proposals will be considered in accordance with policy WD 4. Proposals for waste facilities unrelated to minerals working (for example incinerators, waste treatment sites or landraising operations) may equally have an impact on sensitive sites of archaeological, conservation or landscape importance. In parallel with minerals policies M21 and M22, proposals for waste facilities in sensitive sites will be considered on a two tier basis in accordance with the above policies. For sites of national or international importance, developers will need to demonstrate that there is an overriding national need. For sites of regional or local importance, developers will need to demonstrate that there is no reasonable alternative site in the region.

The Borough Council will normally limit the duration of any planning permission to ensure that disturbance to the surrounding area is minimised and that restoration of the completed site is not unnecessarily delayed. Waste disposal will be required to be carried out in accordance with an agreed scheme involving, where practicable, phased restoration. It is essential that waste treatment, disposal facilities and their reclamation are properly designed at the planning application stage to ensure that both are technically and economically feasible, and that their impact can be fully assessed. "Restoration" refers to the use of subsoil, topsoil and soil making material for the restoration of the site following operations for the disposal of waste. "After care" relates to the management of the site following restoration and includes planting, cultivating, fertilising, watering, drainage or otherwise treating the land. "Reclamation", in this context, includes both restoration and aftercare but also includes events which take place before and during waste disposal or treatment activities (e.g. correct stripping and protection of soils, tree planting etc.) and may also include operations after land filling is completed such as ground contouring.

Replaced by Barnsley, Doncaster and Rotherham Joint Waste Plan. To view this policy please click here.

Waste facilities can have a major visual impact on the surrounding environment and the policy is designed to minimise visual disturbance and to ensure that existing tree cover is conserved to provide screening.

The policy is designed to ensure that the site blends with the surrounding area, minimises drainage problems and to ensure that the site is put to a beneficial after use.

Replaced by Barnsley, Doncaster and Rotherham Joint Waste Plan. To view this policy please click here.

A fully detailed restoration scheme is required to ensure that restoration of landfill sites proceeds in a planned and orderly fashion and does not lag unduly behind waste disposal operations. The agreed scheme of restoration will be incorporated into the planning permission and will be related to the planned after use of the site.

Replaced by Barnsley, Doncaster and Rotherham Joint Waste Plan. To view this policy please click here.

Replaced by Barnsley, Doncaster and Rotherham Joint Waste Plan. To view this policy please click here.

A fully detailed scheme of working is required to minimise environmental disturbance and the impact on local amenities.

Landfill sites can pose severe problems for built development. Landfill gas and damaging leachate can be generated for many years, and settlement of the tipped material can occur. Landfill gas can also migrate for significant distances from the landfill site. These potential problems need to be addressed before development commences.

The disposal of spoil at locations away from the producing collieries (remote disposal) can have environmental or other benefits. The costs and benefits of alternative sites need to be carefully assessed through the Evaluative Frameworks procedure. There will normally be a presumption against the importation of colliery spoil into the Borough, in particular the disposal of imported spoil onto green field sites. The use of worked out mineral sites for the disposal of imported colliery spoil may, however, provide an acceptable means of restoring such sites.