Draft Waste Enforcement (England and Wales) Regulations 2018
(Limited Text - Ministerial Extracts only)
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The Parliamentary Under-Secretary of State for Environment, Food and Rural Affairs (Dr Thérèse Coffey)
I beg to move,
That the Committee has considered the draft Waste Enforcement (England and Wales) Regulations 2018.
It is a pleasure to serve under your chairmanship, Mr Robertson. Criminal activity in the waste industry is having significant and widespread consequences across our country. In particular, illegal activity at waste sites can severely damage the natural environment. Odours, and fly and vermin infestations, blight nearby communities, and fires at these sites can shut down main roads and railway lines, resulting in the public sector spending millions of pounds. The economic cost of waste crime is also significant: in 2015, the estimated cost to the economy in England was £604 million.
The draft regulations are another example of the series of measures the Government are taking to crack down on waste criminals, and we will set out a strategic approach to waste crime later this year as part of our resources and waste strategy. We have given the Environment Agency an additional £30 million over the next four years to target waste crime. Owing to the Barnett formula, the Welsh Government will have further funding to allocate to Natural Resources Wales to tackle waste crime, if they choose to do so.
The draft regulations are a composite statutory instrument, meaning a single instrument with provisions that apply to both England and Wales, but which is made by the UK Government in relation to England, and to the Welsh Government in relation to Wales. The Welsh Assembly is due to debate the draft regulations on 6 March inasmuch as they apply to Wales. The draft regulations set out two new powers to tackle illegal activity at waste sites. We developed the regulations in consultation with the waste industry and others in response to the regulators’ calls for further enforcement powers at waste sites.
One of the most effective ways to prevent issues at waste sites from escalating out of control is to act quickly to stop more waste entering the site. The first power in the draft regulations will enable the Environment Agency to restrict access and the importation of further waste on to a site by physical means, such as by locking the gates or barring access. The Environment Agency will be able to do this where there is a risk of serious pollution to the environment or serious harm to human health as a result of the waste on the site, and where action is necessary to prevent the risks from continuing. The agency will also be able to do this when an offence has been committed and there is pollution or harm to human health from the waste on the site.
The Environment Agency will be able to issue an immediate restriction notice for up to 72 hours. It will also be able to apply to a magistrates court for a restriction order for up to six months. A restriction order can be applied for without a restriction notice being issued first. This power will make a critical difference and will be a significant addition to the Environment Agency’s toolbox, allowing it to act quickly and decisively when the situation requires it.
The second power will enable the Environment Agency and local authorities, in their role as waste collection authorities, to require all waste at a site to be cleared, not just waste that has been deposited unlawfully. The gap in the regulations was exposed when we lost a court case and, as a result, all the waste stockpiled at a particularly problematic site could not be cleared.
The Environment Agency and local authorities can require an occupier or landowner to remove waste that has been unlawfully deposited at a site—for example, waste deposited above the limit specified in a permit. However, they do not have the power to require the removal of waste deposited lawfully at the time, within the conditions specified in the permit or under a registered exemption, but is subsequently unlawfully kept or disposed of. That has led to situations in which, after permit conditions were breached, or waste was kept for longer than the time specified in the registered exemption, or a business went into liquidation, all the waste could not be cleared.
Through the regulations, we are closing that loophole. The new power will enable the Environment Agency and local authorities to require occupiers or landowners to remove all the waste at a site, irrespective of whether it was deposited unlawfully or not. This will be a significant change that will ensure full clearance of waste sites that blight our country. Giving the regulators these two additional powers will enable them to tackle illegal activity at waste sites, and demonstrates our commitment to cracking down on all criminals operating in the waste sector. I commend the draft regulations to the Committee.
Dr David Drew (Stroud) (Lab/Co-op)
I am delighted to serve under your chairmanship again, Mr Robertson. It must be waste, because all three of us—you, the Minister and I—are here. I welcome the Minister to her seat.
Dr Drew
Yes. At least we know we are not dealing with the bag of black waste; this time, we are dealing with more than that. We will not get into an argument over that.
I will make some general comments to start with and then home in on the statutory instrument, because this is an important issue. For anyone who lives in a rural area such as mine, there are three areas of constant complaint: potholes, dog excrement and waste—largely fly-tipping, because that is growing. I caught a little bit of what the Minister said yesterday—I am sorry that I could not stay longer—and I would love to see the evidence that shows that when local councils impose a charge, it does not lead to more fly-tipping. It is important for us to know what the empirical evidence is, so I hope she will provide it, otherwise she will get a raft of parliamentary questions from me.
The SI puts the onus on the landowner who has had something tipped on to their land to take even more responsibility for dealing with it. In her summing up, will the Minister say what the safeguards are around that? The landowner seems to get hit every which way: they have stuff dumped on their land, and if it is toxic material such as asbestos, which needs specialised treatment and removal arrangements, they have to pay for that, too. That leads us into interesting areas of responsibility and blame.
The problem of stuff being tipped is growing by 7% a year. The figures show that local authorities have dealt with more than 1 million incidents of fly-tipping. Whether that is going to legitimate waste sites or not, that is still dealing with the problem of waste in a way that we do not want. Inevitably, people will find alternative ways to try to dispose of their waste, which is when we see fly-tipping. In particular, people who are on the more criminal side will see an opportunity to open up sites and to take money from people.
Local authorities have carried out 474,000 enforcement actions, which cost them about £16 million. It is great that the Minister is giving £30 million to the Environment Agency, but my big question is: what is she giving to local authorities at the front end? They will only bring the Environment Agency in afterwards because, initially, it is local authorities’ responsibility. There does not seem to be any more money going to local authorities, which is a worry, because it means that there will be a build-up. Once people see a pile of rubbish, they tend to add to it, and it becomes more and more of a problem.
Today’s SI is pretty obscure; one has to like legal documents or like reading what SIs are about to want to read it. It is not even as clear as chucking things from vehicles, which we eventually agreed that we understood. To pick up on specific points, proposed new section 59ZB on page 3 gives a waste regulation or collection authority the power to issue notices where waste is kept or disposed of in their areas. It goes into detail about what they are, and about the notion of 21 days. In some respects, 21 days is far too long, because the waste will mount up if it is not dealt with quickly, but if there is an argument about responsibility, that may end up in the courts and be difficult to resolve in that period.
The explanatory memorandum is the most interesting and clear bit in many respects. On page 2, it states categorically:
“More waste has been diverted away from landfill and put to beneficial use, with clear benefits to the environment and the tax payer.”
The sad fact is that it will not be recycled—recycling is flatlining—but will go to incineration.
The Opposition increasingly question, and look at alternatives to, incineration; to me, sticking stuff into the atmosphere is no better than sticking it in the ground. I know it may be lower down the waste hierarchy, but it is something that we ignore at our cost in the long run. When all this waste is collected, what pressure is on local authorities or the Environment Agency to deal with it appropriately? Clearly, most of us want to recycle what we can, and to avoid waste being incinerated or, dare I say, going into landfill.
Dr Coffey
I thank right hon. and hon. Members for their contributions to the debate. I will restrict my comments to the draft regulations, apart from on one or two very specific issues. We do not seek to propose more broadly the concept that the landowner has liability. Of course, we expect any waste to be treated in accordance with the waste hierarchy.
I welcome the support from the hon. Members for Blaydon, and for Bristol North West, not only for the Environment Agency but for the powers in the draft regulations. The Environment Agency is undertaking the consultation on cost recovery. However, I point out to the hon. Member for Bristol East that that is just one of a series of powers we will introduce as a result of the initial 2015 consultation.
I agree with the hon. Member for Bristol North West on the need for partnership. That is very much in evidence around the country, with the Environment Agency working with other groups. Some of the issues that the hon. Member for Bristol East raises, particularly in regard to waste licences and homeowners, are being addressed and are subject to a separate consultation. Two thirds of fly-tipped waste is believed to come from households.
The 21-day period that the hon. Member for Stroud referred to is to allow an occupier or landowner served with a notice to challenge that notice with an appeal to the magistrates court. That provision is closely linked to the existing provision in section 59 of the 1990 Act. He also talked about funding. The point is that we are giving powers that local authorities and the Environment Agency have asked for. The powers that local authorities will have are not about restricting access, but about a requirement to clear an entire site.
The reason for having a second consultation—it was deliberately short, so that we could make progress—was that the 2015 consultation was somewhat broad. The second consultation allowed us to confirm certain aspects of our approach, and to be prudent in making sure that the draft regulations were correct and effective. It is important to get these things right.
I recognise that quite a lot of the law dealing with waste is complex. However, in regard to the idea about primary legislation, the Committee will be interested to know that the draft regulations are in fact an example of using what is commonly referred to as a Henry VIII power: using secondary legislation to amend primary legislation. I am pleased that the draft regulations have had the scrutiny they have had. They have been subject to extensive consultation, and I hope the Committee will wholeheartedly support the two new powers, which I think will do a lot to tackle a lot of the waste sites around today.
Question put and agreed to.
Resolved,
That the Committee has considered the draft Waste Enforcement (England and Wales) Regulations 2018.