Bulky Waste Collection Service - Requirement to Separately Collect and Manage Waste Upholstered Domestic Seating
North Ayrshire Council · 3 June 2025
Back to Cabinet — 3 June 2025 and its agenda
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NORTH AYRSHIRE COUNCIL 3rd June 2025 Cabinet Title: Bulky Waste Collection Service – Requirement to separately collect and manage Waste Upholstered Domestic Seating. Purpose: To advise Cabinet of the requirement to separately collect and manage Waste Upholstered Domestic Seating items for disposal, the application of the Bulky Waste fee structure to Waste Upholstered Domestic Seating items and the proposed review of commercial waste charges at the Arran Waste Transfer Station. Recommendation: That Cabinet: a) Notes the requirement to separately collect Waste Upholstered Domestic Seating items for disposal; and b) Notes the proposed introduction of a collection scheme for Waste Upholstered Domestic Seating items previously collected as part of the bulky waste scheme. c) Agrees that the existing fees for the bulky waste scheme will apply for Waste Upholstered Domestic Seating uplifts d) Notes the proposed future review of the charges for disposal of Waste Upholstered Domestic Seating and other commercial waste streams at Arran Waste Transfer Station to ensure that the current commercial charges are covering the full cost of bulking, haulage and recycling/disposal. 1. Executive Summary 1.1 This report updates Cabinet on the requirement to separately collect and manage Waste Upholstered Domestic Seating (WUDS) that contain Persistent Organic Pollutants (POPs) through the bulky waste collection service. 1.2 The UK Persistent Organic Pollutants Regulation 2007 and guidance issued by the Scottish Environment Protection Agency (SEPA) requires that Waste Upholstered Domestic Seating, which includes items like sofas, sofa beds, chairs, stools etc., must be collected and managed separately from other bulky waste items. 1.3 These items, unless reusable, can no longer be processed to extract the recyclable component parts and must be sent for incineration only, which has significantly increased the costs for managing this type of waste, as well as it will have a negative
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impact on the Council’s household waste recycling performance. 1.4 The requirement to collect and manage Waste Upholstered Domestic Seating separately requires that changes be made to the existing bulky waste collection service and the approach to the application of the current bulky waste collection uplift charges. This change also supports a future review of the commercial charges at Arran Waste Transfer Station. 2. Background 2.1 The Stockholm Convention developed initiatives to address concerns of Persistent Organic Pollutants (POPs) to protect human health and the environment. The convention is noted within the UK Persistent Organic Pollutants Regulation 2007. The regulation places strict controls over the management of the POPs products and determines how they should be destroyed. POPs are contained within fire retardant foam materials included in many soft furnishings. POPs are also contained within some other products e.g., some building materials, non-stick cookware, tents etc. There is the possibility that in the future more items will be identified by the regulator to be treated in a similar manner to Waste Upholstered Domestic Seating (WUDS) containing POPs. 2.2 A study commissioned by the Environment Agency in England highlighted the presence of Persistent Organic Pollutants (POPs) in upholstered domestic seating. The study highlighted that the average concentration of Brominated Flame Retardants, and other POPs, found in items of upholstered domestic seating can be four times higher than the legal concentration limit. These chemicals were used as flame retardants in many covers and foams. This means that on becoming waste, these items of upholstered domestic seating are covered by existing legislative controls specific to wastes containing POPs and therefore must be managed accordingly. 2.3 Persistent Organic Pollutants remain intact in the environment for long periods, and if not disposed of properly become widely distributed geographically. They accumulate in the fatty tissue of humans and wildlife and can pose a risk to human health and the environment. 2.4 Typical WUDS items containing POPs include but are not limited to: • sofas, sofa beds, armchairs; • kitchen and dining chairs; • stools and footstools; • home office chairs, futons, beanbags; • floor and sofa cushions; • electrical recliner chairs; and • any part made of or containing, leather, synthetic leather, other fabric, or foam. 2.5 The specific requirements relating to the management of POPs waste which include: • Ban on the landfilling of POPs waste; • Requirement to incinerate POPs waste; • Preventing the mixing of POPs and non-POPs waste (unless not feasible); • Controls on the compaction of POPs waste; • Ban on recycling/recovery of POPs waste (excludes where the item has not been discarded as a waste, and where it can be safely reused).
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2.6 The Scottish Environment Protection Agency has issued guidance regarding WUDS containing POPs, however, it does not require a regulatory lead in time to allow for the amendment of legislation, due to the UK Persistent Organic Pollutants Regulation 2007 already being in place. This means that as new POPs are identified through research that are above the legal concentration limit, as they are added to the list of POPs chemicals, when these items are discarded as waste, they automatically fall within the scope of the 2007 legislation. 2.7 As a result of the SEPA guidance, separate skips had to be purchased and put in place for the separate collection, storage, and disposal of Waste Upholstered Domestic Seating at our Household Waste Recycling Centres and at the waste transfer station in Brodick. The Council’s website was also updated to include guidance for the public on how these items can be separately disposed of at our Household Waste Recycling Centres. 2.8 The Council’s bulky waste collection service (excluding white goods) on the mainland is currently collected in standard compaction type Refuse Collection Vehicles (RCVs). Arran and Cumbrae bulky uplifts are currently collected in smaller non-compaction flat- backed vehicles. The current collection method for bulky waste uplifts on the mainland is not in alignment with current guidance and this must be changed to collect separately using non-compaction vehicles. 2.9 As a result of the change to the requirements for managing the disposal of Waste Upholstered Domestic Seating within bulky waste, the cost of processing bulky waste containing Persistent Organic Pollutants has significantly increased, as the waste can no longer be broken into the constituent parts for recycling and must only be sent for incineration. Due to limited suppliers and capacity in the Scottish marketplace for processing and incinerating this material, the prices to deal with this material are expected to significantly increase further in 2025. Additional collection costs will also be incurred for additional staff and vehicle requirements to collect these elements of bulky waste separately from other items. 2.10 COSLA has recognised the additional burden the changes place on Councils and discussions with Scottish Government are ongoing regarding the additional costs of complying with the legislation and SEPA guidance. 2.11 The inability to process Waste Upholstered Domestic Seating for recycling of the constituent materials means that the guidance will have a negative impact on the Council’s household waste reuse and recycling performance, due to the requirement to incinerate Waste Upholstered Domestic Seating unless the item is suitable for reuse and has not been damaged. 2.12 A budget pressure of £179,805 was approved by Council on 26 February 2025 for implementing the changes required for managing Persistent Organic Pollutants with Waste Upholstered Domestic Seating. The pressure bid was an estimate and will be reviewed against tonnages, income and waste disposal costs once the new process is implemented. 2.13 The system for recording bulky waste uplifts that is used by the Customer Contact Centre is not currently able to accommodate the separate recording of bulky waste items that must be classified and collected as Waste Upholstered Domestic Seating containing Persistent Organic Pollutants. To support separate collection, amendments to the system are currently being actioned through IT.
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2.14 The current bulky waste collection uplift charge was approved by Council on 26 February 2025, which is £29.17 for up to five items and an additional £5.83 per item for six or more items. 2.15 The requirement to separately collect Waste Upholstered Domestic seating items will see the introduction of a separate uplift scheme. This will follow the existing bulky waste uplift arrangements and will see the same charging structure. The new arrangements will commence in the summer 2025 and will be widely advertised. From commencement, any requests for the uplift of Waste Upholstered Domestic Seating items previously collected as part of the existing bulky waste scheme will be dealt with separately. The existing uplift charging scheme of £29.17 for up to five items and £5.83 per additional item will be applied separately to uplifts for Waste Upholstered Domestic Seating items. The approach to the application of the current bulky waste collection charges would also apply for the collection of Waste Upholstered Domestic Seating on Arran and Cumbrae. 2.16 Householders will still be able to deposit Waste Upholstered Domestic Seating free of charge at our Household Waste Recycling Centres, or if the items are in good condition and suitable for reuse, they can still be donated to our reuse partner Cunninghame Furniture Recycling Company (CFRC), who offer a free kerbside uplift service, which the Council promotes on our web site and through the Customer Contact Centre. 2.17 Prior to commencing the separate collection service for Waste Upholstered Domestic Seating, it will be necessary to effectively communicate the information to our residents. This will include information regarding the need to separately collect these items through placing a separate bulky waste uplift, as well as explaining what these items are and the reason for having to collect them separately from other waste types. 2.18 Waste Upholstered Domestic Seating containing Persistent Organic Pollutants may also be delivered by commercial customers to the Arran Waste Transfer Station, which are charged through the existing pre-paid permit system, however it is proposed that the charges for disposal of Waste Upholstered Domestic Seating and other commercial waste streams are reviewed in 2025/26 to ensure that the current commercial charges cover the full cost of bulking, haulage and processing/disposal of the waste. 3. Proposals 3.1 That Cabinet: a) Notes the requirement to separately collect Waste Upholstered Domestic Seating items for disposal; and b) Notes the proposed introduction of a collection scheme for Waste Upholstered Domestic Seating items previously collected as part of the bulky waste scheme. c) Agrees that the existing fees for the bulky waste scheme will apply for Waste Upholstered Domestic Seating uplifts d) Notes the proposed future review of the charges for disposal of Waste Upholstered Domestic Seating and other commercial waste streams at Arran Waste Transfer Station to ensure that the current commercial charges are covering the full cost of bulking, haulage and recycling/disposal.
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4. Implications/Socio-economic Duty Financial 4.1 The requirement to separately collect Waste Upholstered Domestic Seating will incur additional costs for the separate collection, processing and disposal of the waste through incineration only. It is anticipated that the Council will receive additional funding through the Extended Producer Responsibility (EPR). A budget pressure of £179,805 was approved by Council on 26 February 2025 for implementing the changes required for managing Persistent Organic Pollutants with Waste Upholstered Domestic Seating taking cognisance of this anticipated additional funding. Due to limited suppliers and capacity in the Scottish marketplace for processing and incinerating Waste Upholstered Domestic Seating, the prices to deal with this material are expected to significantly increase further in 2025. Human Resources 4.2 Additional employees will be required to facilitate the separate collection of Waste Upholstered Domestic Seating through the bulky waste collection service. Legal 4.3 The separate collection of Waste Upholstered Domestic Seating is required to align with SEPA guidance and the UK Persistent Organic Pollutants Regulation 2007. Equality/Socio-economic 4.4 The requirement to separately collect Waste Upholstered Domestic Seating may have a negative impact on households by increasing the cost of disposing of these items through requiring a separate uplift from the bulky waste collection service, however, items can still be deposited free of charge at Household Waste Recycling Centres, or if in reusable and in good condition, they can be uplifted free of charge by our reuse partner Cunninghame Furniture Recycling Company (CFRC). Climate Change and Carbon 4.5 The requirement to separately collect Waste Upholstered Domestic Seating will have a negative effect in this area, as additional collections are required to be made from households, increasing the vehicle journeys and the associated carbon impact. The inability to process Waste Upholstered Domestic Seating for recycling of the constituent materials means that the guidance will have a negative impact on the Council’s household waste reuse and recycling performance, due to the requirement to incinerate Waste Upholstered Domestic Seating unless the item is in good condition and suitable for reuse. Key Priorities 4.6 The proposal supports the Council Plan strategic priority to be a sustainable council, through supporting the effective governance and management of resources.
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Community Wealth Building 4.7 None. 5. Consultation 5.1 The approach has been informed through consultation with Officers of the Council, SEPA and COSLA. RUSSELL McCUTCHEON Executive Director (Place) For further information please contact Thomas Reaney, Head of Service (Neighbourhood Services) Background Papers 0