Waste Management Plan Update and Draft Circular Economy Strategy Consultation Document
Perth and Kinross Council · 20 August 2025
Back to Climate Change and Sustainability Committee — 20 August 2025 and its agenda
Text extracted from the council's PDF. Layout and reading order may differ from the original.
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Our vision is a Perth and Kinross where everyone can live life well, free from poverty and inequality ___________________________________________________________________ Committee or Board: Climate Change & Sustainability Date of Meeting: 20 August 2025 Report Title: Waste Management Plan update and Draft Circular Economy Strategy Consultation Document Report Number: 25/208 Report Author: Pete Leonard, Climate Change & Zero Waste Manager Organisational Lead: Fraser Crofts, Strategic Lead - Environment and Infrastructure ___________________________________________________________________ 1. Purpose 1.1 The purpose of this Report is to provide members of the Climate Change & Sustainability Committee with a final update on the Council’s Waste Management Plan 2010-2025 and to table a draft Circular Economy Strategy and Action Plan consultation document for review and approval. 1.2 Sections 1. Purpose 2. Recommendation(s) 3. Background/Context 4. Main Issues 5. Proposals 6. Conclusion 7. Impact Value Assessment 8. Appendices 2. Recommendations It is recommended that the Committee: 2.1 Notes the update on the Council’s Waste Management Plan 2010-2025, and that, as the plan comes to an end this year, this will be the final update. 2.2 Approves the draft Circular Economy Strategy and Action Plan consultation document (at Appendix 1).
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2.3 Notes that, following a period of public consultation in the autumn, a final Circular Economy Strategy and Action Plan will be brought back to the Committee in early 2026. 3. Background/Context 3.1 In November 2010, the Environment Committee approved a new Perth and Kinross Waste Management Plan 2010-2025 (Report No 10/597) The aim of the Waste Management Plan was to map out a way to achieve national recycling and composting rates at a local level, control waste arisings and waste growth, develop partnership agreements for managing waste and ensure best value for waste management in Perth and Kinross. 3.2 The plan set a 70% recycling/composting rate to be achieved by 2025 as follows. 2013 – 50% 2020 – 60% 2025 – 70% 3.3 The target was predicated on assumptions that by 2025, no more than 5% of waste would be landfilled, anticipating that there would be a landfill ban for specific waste and restrictions on the input to all energy from waste facilities 3.4 The main elements of the plan were: A commitment to optimise the amount of waste segregated at source through separate kerbside collections and development of recycling centres and points. Implementation of waste awareness campaigns and initiatives which aim to encourage waste prevention and increase participation in recycling and composting schemes. The plan put priority on waste prevention, recycling and composting in line with the Waste Hierarchy at the time and provided clear strategic direction for the following 15 years. An action plan was developed, and progress was reported to Committee on an annual basis (apart from the time around the global pandemic). 3.5 The most recent Waste Management Plan update was presented to the Environment, Infrastructure and Economic Development Committee on 29 March 2023 (report No. 23/106). The key updates since then are set out under the Main Issues section of this report. 4. Main Issues Waste Management Plan 2010-2025 – final update 4.1 Introduction of twin stream recycling service
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4.2 Following the successful securing of £2.72m of capital investment from the Scottish Government Recycling Improvement Fund (RIF), in 2022 the Council moved from a co-mingled kerbside recycling service to a new twin stream collection in 2 phases; the first being Perth city centre recycling hubs and the second being the delivery of an improved kerbside recycling service for householders and businesses by introducing a 4th bin. In Autumn/winter 2023 the new twin stream kerbside recycling service was successfully delivered to circa 71,000 households in PKC. This included 71,000 new individual 240 litre wheelie bins and 1350 special containers for communal collection points. 4.3 The new service split the traditional Dry Mixed Recycling collection into a twin stream model; the existing blue lidded bin would hold paper and card only the new grey lidded bin would hold plastic bottles, tubs and trays, flexible plastic film, can tins and foils and cartons (Tetrapaks) 4.4 The changes created an easier/clearer service for the public and as a result we have seen recycling rates improve from 49.3% to 51.7%. There has also been a reduction in contamination, with levels for blue and grey lidded bins at 2.36% and 11.63% respectively, compared to a contamination rate of 21.78% for October 2023, the last month of the mixed DMR contract. We have also seen an increase in income from recyclable materials, especially for paper and card. Residual waste procurement 4.5 The Council required a long-term solution for residual waste in order to comply with the ban of municipal biodegradable waste to landfill due to come into force from 1st January 2026. Following a procurement process, a contract notice was published in January 2023 and a contract with Paprec Energies – Binn commenced on 1st August 2023. This is a 10-year contract with the option to extend by a further 5 years, which has an emphasis on diverting waste from landfill, and which places the requirement on the contractor to comply with the ban on biodegradable household waste going to landfill from midnight on 31 December 2025. Food waste action plan 4.6 Work is ongoing to develop a Food Waste Action Plan, however the approach is cautious due to the outstanding uncertainty from the Scottish Government with regards to whether they will enforce separate food and garden waste collections and if the current rural collection will remain exempt. Until such time, mini projects have been underway, these include, food waste hub roll outs, which included Perth City Centre, Blairgowrie, Crieff & Auchterarder which have increased access to food recycling for 182 households. Along with this, a food waste campaign is planned to run throughout the Summer/Autumn of 2025.
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Asset management review 4.7 The Council’s waste-related property assets are aging, and their condition and suitability do not meet the needs of a modern waste and recycling service. An asset management review has been commissioned to provide an initial high- level assessment of the Councils operational infrastructure and to objectively evaluate the impact on collection services of various options for depot rationalisation. This will provide an understanding of the number of collection resources relating to crews and vehicles that will be required to complete collections across Perth & Kinross. The output of this work will be considered as part of a detailed depot & waste transfer station feasibility assessment workstream, which will be used to inform the Council’s overall asset management approach as part of the Investment Blueprint and Investment Plan. National Deposit Return Scheme 4.8 The Deposit Return for Scotland (DRS) was approved by the Scottish Parliament on May 13, 2020. The intention was to roll out the scheme where a 20p deposit would be placed on all single use beverage containers made of PET (Polyethylene terephthalate) plastic, cans and glass and refunded when returned for recycling. The return to retail model would see all retailers who sell drinks being required to accept returned containers over the counter, through reverse-vending machines or through take-back schemes. The commencement date was to be 16 August 2023; however, it was announced in June 2023 that the scheme was being delayed until at least March 2024 (now revised to October 2027) to allow alignment with schemes in England and Northern Ireland. It has also been announced that glass will no longer be included. Extended Producer Responsibility for Packaging (pEPR) 4.9 New Packaging Extended Producer Responsibility was formally launched on 21 January 2025 and shifts the cost of managing household packaging waste from Local Authorities to those businesses who use and supply packaging, applying the ‘polluter pay’s’ principle. PackUK was appointed as the scheme administrator and is responsible for setting pEPR fees for obligated producers and then in turn manage the payments to local authorities. These payments then allow authorities to shape and deliver efficient and effective collection and recycling services. 4.10 In December 2024, DEFRA wrote to the Council setting out an estimated allocation of £4.975 million for 2025-26. At the budget meeting of 26 February, Council agreed to utilise this funding as follows: £1.67m to address existing pressures arising from loan charges for the waste fleet vehicle replacement programme £1.008m as an earmarked reserve to fund investment in waste/recycling initiatives
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The balance of £2.8m to be retained as a contingency, pending confirmation of government funding towards increased employers’ national insurance contributions. 4.11 In July 2025, correspondence from PackUK set out a revised allocation of £3.795m, therefore the allocation of this will require to be amended. However, an element of non-recurring funding is still available to support improvement projects over the next 2 years. 4.12 The Zero Waste and Operations teams have developed a list of projects and activities that it is hoped will lead to greater materials recovery and improved recycling, together with creating more operational efficiencies. Some examples include: Road End Improvements; to provide better recycling and waste disposal facilities for residents who are not on an individual, kerb side wheeled bin collection service and therefore may not have access to recycling. This work also addresses H&S concerns (manual handling) for refuse collection crews Additional city centre recycling and food waste hubs, including a ‘super hub’ to provide increased recycling facilities for people who don’t have access to a car Additional collection frequencies in places where bin capacity is insufficient to meet demand, which will reduce contamination levels and capture more recyclable material Behavioural campaigns and local media campaigns to raise awareness of issues such as waste minimisation, reuse, food waste reduction/recycling, textiles etc. Devising and running a 'Re-use Community Fund' whereby reuse networks and community groups could bid for funding to support reuse projects Improved use of digital technology and AI to improve business insights and customer service, including the provision of in-cab technology to more vehicles Provision of equipment at household recycling centres such as roller packers and compactors, which will increase the capacity of containers and result in fewer vehicle journeys Single use Vapes 4.13 In England, Scotland, Wales and Northern Ireland on 1 June 2025, the sale and supply of single-use vapes (also known as disposable vapes) is banned. These items are an inefficient use of critical resources and are often discarded as litter or thrown into residual (non-recycled) waste. They introduce harmful substances into the soil, rivers and streams, and cause harm to biodiversity.
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4.14 When single-use vapes are thrown into bins they often end up in landfill or are incinerated, which means critical resources are lost. They can also cause fires, which risks the safety of waste management workers, firefighters and the public. Single-use disposable beverage cups 4.15 It is estimated that in Scotland 388.4 million single-use (disposable) cups are used every year which equates to over 70 cups per person, per year. While many cups are recyclable, many are sent to landfill or even littered. 4.16 The Circular Economy (Scotland) Bill, gave Scottish Ministers new powers to introduce a minimum charge on single-use disposable beverage cups, much like the legislation introduced for plastic carrier bags in 2010. A commitment has been made to introduce a charge on single-use disposable beverage cups by the end of 2025 and a consultation ran from 22nd August – 14 November 2024 which proposed the introduction of a 25p charge on disposable cups. However, at the time of writing the results of the consultation had not yet been published. Recycling in Schools project 4.17 Perth and Kinross schools are currently spending more than £450,000 on all waste and recycling disposal per annum. 89% of the cost is for general waste disposal and only 11% is for recycling. A business case for investment in new waste and recycling containers was approved in 2024. The project is being led by a dedicated Waste Minimisation Officer who is working closely with colleagues in education, facilities management, Tayside Contracts and Mitie contractors. 4.18 The aim of this project is to ensure that all primary (71) and secondary schools (11) in Perth and Kinross will have appropriate internal and external recycling bins for paper and cardboard (blue); plastics, cans and cartons (grey) and food waste (brown); and that these are then utilised correctly by staff and pupils. 4.19 By achieving this we will: Reduce Council finances being spent on waste disposal Improve recycling Help meet the aims of the Council’s Climate Change Strategy and Action Plan Meet the obligations of the Scottish Government’s Waste (Scotland) Regulations 2012 Mirror the household recycling system, to encourage positive behaviour change at school and at home Enable our young people to lead by example, by engaging them in the project via STEM related activities such as design, measurement, financial and carbon impact assessment
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This will be a priority project to May 2027, when the measure of the impact of the work against the baseline information undertaken in 2024 will commence. Transitioning to a circular economy approach 4.20 The implementation of the waste management plan has seen the successful introduction of many of the planned improvements in service and associated waste and recycling infrastructure. 4.21 This has resulted in improved recycling and reduced levels of non-recycled waste. The recycling rate has risen from 42% in 2009/10, to 51.7% in 2023. The Scottish average for 2023 was 43.5%, with PKC placed 9th best from 32 local authorities. 4.22 Other improvements over the same period include: A reduction in the average weekly waste collected per person, from 10.4kg to 5.8kg A reduction in total annual waste to landfill from 54,208 tonnes to 23,178 tonnes Emissions from waste have fallen from 209,000 tonnes of carbon dioxide equivalent in 2011/12 to 135,557 TCO2e in 2023. 4.23 However, as with the national picture, recycling rates have stagnated over recent years, and the national target of recycling 70% of waste by 2025 has not been met. In part, this is due to delays in implementing national policy initiatives such as the Deposit Return Scheme (DRS) and Packaging Extended Producer Responsibility (pEPR). 4.24 Variable levels of public engagement with waste services are also a cause for concern. Whilst there has generally been a good response to the twin-stream recycling service that was rolled out across Perth and Kinross in 2023-24, there are households who do not use the system correctly. Also, in the urban and semi-urban localities where we provide a kerbside food recycling service, recycling rates remain stubbornly low, even though there is ample container provision. 4.25 With the waste management plan due to expire at the end of 2025, and in recognition of the national focus on the circular economy, the opportunity has been taken to incorporate and include the functions of the waste management plan within the scope of a wider circular economy strategy for Perth and Kinross. This will ensure that the Council is aligned to legislation and government policy and will provide a fresh impetus for further service improvement, including the provision of new services and a greater emphasis on public engagement and behaviour change. 5. Proposals 5.1 Appendix 1 sets out a draft Perth and Kinross Council Circular Economy Strategy and accompanying 5-year Action Plan (2026-2031).
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5.2 The circular economy is an approach that aims to reduce waste and keep products and materials in use for as long as possible. It focuses on designing out waste and pollution, reusing and recycling materials, and helping nature recover. This approach not only helps the environment but also boosts the economy and promotes fairness for everyone 5.3 Our draft strategy is driven by the Scottish Government’s vision to ‘deliver a fully circular economy in Scotland by 2045, driven by responsible consumption, responsible production, and maximising value from waste and energy’. 5.4 It also aligns with other national strategies together with the Council’s vision - ‘where everyone can live life well, free from poverty and inequality,’ and its strategic priorities of: Working in partnership with communities Tackling poverty Tackling climate change and supporting sustainable places Developing a resilient, stronger and greener local economy Enabling our children and young people to achieve their full potential Protecting and caring for our most vulnerable people Supporting and promoting physical and mental wellbeing 5.5 Our proposed vision for the circular economy is: 5.6 In order to develop a strategy to deliver this vision, a circular economy working group was established in February 2025 with members from across key Council Services. The focus of the group is to develop and set the strategic direction and priorities, provide baseline information to establish the Council’s current position in relation to these priorities, set key objectives for each theme and develop future actions, and prepare the consultation and final strategy and action plan. 5.7 The Working Group identified that there was benefit in aligning the strategic priorities of the Perth and Kinross Council Circular Economy Strategy with those adopted in Scotland's Circular Economy and Waste Routemap to 2030. The objectives set out in the routemap have been reviewed and modified to be appropriate to the Perth and Kinross context and associated levers of Council influence. The background information used in selecting and forming these objectives is presented in the draft strategy document in Appendix 1. "In Perth and Kinross, we aim to build communities where everyone understands how to use resources responsibly and reduce waste. We take pride in making thoughtful choices that support the environment and improve our quality of life, by protecting nature, growing the economy, creating jobs, and strengthening our communities. Together, we are working toward a greener and more sustainable future.”
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5.8 The proposed strategic priorities and delivery areas are: Strategic Priority 1 - Reduce and reuse Objective 1.1 Work with our residents and businesses to change patterns of production, consumption and disposal Objective 1.2 Improve circularity of the Tayside Food System to promote local, healthy eating and reduce food waste and food poverty Objective 1.3 Reduce textile waste Objective 1.4 Ensure Council services, including schools, model best practice to lead by example Strategic Priority 2 - Modernise recycling Objective 2.1 Modernise household recycling and reuse services to maximise performance and meet evolving needs Objective 2.2 Support businesses and commercial premises to reduce waste and maximise recycling Strategic Priority 3 - Decarbonise disposal Objective 3.1 Understand the best environmental outcomes for specific wastes Objective 3.2 Ensure there is an appropriate capacity to manage waste Objective 3.3 Improve environmental outcomes for waste through innovation Objective 3.4 Support the incentivisation of decarbonising waste Strategic Priority 4 - Strengthening the circular economy Objective 4.1 Set the strategic direction and act as a regional catalyst for change Objective 4.2 Grow the enabling environment to support and attract circular businesses Objective 4.3 Encourage circular construction practices Objective 4.4 Coordinate action across cross-cutting areas and robustly monitor, evaluate and report progress 5.9 The views of residents, local communities, businesses and stakeholders are crucial in ensuring that our strategy truly reflects the issues faced by local people and includes the correct priorities and actions to address these issues. So, before the final strategy is developed, we want to make sure that they have their say. To do this, we propose to carry out a public consultation from 1 September to 14 October.
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5.10 At the same time, we will carry out an internal consultation, to ensure that all PKC staff are aware of the strategy and the role that they can play in helping to deliver it. 5.11 Following this period of consultation, we will draft our final Circular Economy Strategy, incorporating responses, for formal approval by the Committee in early 2026. 6. Conclusion 6.1 The Council’s Waste Management Plan 2010-2015 has delivered significant improvements in service, leading to the recovery of additional materials, increased recycling and reduced levels of residual non-recyclable waste going to landfill. 6.2 With the plan reaching the end of its life, and the national focus on moving towards a more circular economy, a Circular Economy Strategy and Action Plan is required ensure that the Council is aligned to legislation and is better able to navigate the changing policy and technological environment. This will provide a fresh impetus for further service improvement, including the provision of new services and a greater emphasis on public engagement and behaviour change. It will also help to boost the local economy and promote fairness for everyone. 7. Impact Value Assessment Waste Management Plan update and Draft Circular Economy Strategy Consultation Document 8. Appendices 8.1 Appendix 1 – Circular Economy Draft Consultation Document