CARDIFF COUNCIL CYNGOR CAERDYDD CABINET MEETING: 10 APRIL 2014 LITTER BIN POLICY REPORT OF ENVIRONMENT DIRECTOR AGENDA ITEM:10 PORTFOLIO : ENVIRONMENT Reason for this Report 1. To present and invite the Cabinet to endorse the Litter Bin Policy and that presents a standard suite of litter bins for the city and also guidance on litter bin placement and their replacement. Background 2. As part of the Leading Cardiff Building Communities strategy it was identified that there is a need for a litter bin policy to capture and address the following issues to improve the cleanliness of our streets; Ensure litter bins are in the right design and in the right location Deliver litter bins that are fit for purpose and support the street scene needs across Cardiff Outline the placement requirements for litter bins so they are provided in the correct locations. Consider the need to support recycling on the go. Develop standards of constancy for location, facilitate servicing and maintenance across all service areas. Set a standard that can be reflected for private land owners that have to install litter bins. 3. Although the Environment Directorate is the main directorate that provides and services litter bins, there are also numerous services that provide, service and maintain their own litter bins; such as Parks, Cardiff Harbour Authority, City Centre Management, Housing, Bereavement, Facilities Management and the Adshel bus stop contract. As a result there are over twenty different styles and colours of litter bins across Cardiff; the bin shapes vary between square, round and rectangular, and colours range from green and red, silver, yellow to black. With no one clear policy for litter bins across the city this has led to inconsistencies in the bin style, suitability of locations, frequency of emptying, increased purchase and maintenance costs. This policy will ensure cohesive deign principles can be applied to the public realm and street furniture design for any new developments. Page 1 of 6
4. Until 2013, no comprehensive survey of the Council s litter bin stock had been undertaken and no direction had been provided on the style, placement or type of litter bin to be used across the various service areas. Combined with under investment in our litter bin assets this has led to a deteriorating and under funded service provision across the city. Issues 5. In late 2012 and early 2013 a city wide survey of all the litter bins provided by the council was undertaken. It has been established that Street Cleansing and other services currently service 2359 litter bins across the city, with over 90% of these being serviced by the Environment Directorate. As well as establishing their locations, the condition of the litter bins was determined. It was found that almost 13% of the current stock are in need of repair or replacement. In addition, a further 10% have been identified as requiring minor repairs. 6. In addition to the poor state of the current street scene provision, it is estimated that on average a further 50 litter bins require natural repair or replacement each year and the Directorate receives approximately 150 requests for additional litter bins each year. All meaning, that if the council continues with the current approach, the existing stock will deteriorate year on year. 7. From the ward by ward survey, initial improvements were made by reviewing the current locations of litter bins. Clusters and voids of litter bins where identified and where possible litter bins were moved to improve the efficiency and coverage within wards. There were 31 clusters of litter bins that did not reflect the service demands i.e. there is an over provision of bins in these areas. These bins were then relocated to new areas where insufficient litter bins (voids) had been identified. Further details can be found in the Litter Bin Policy (Appendix C ward by ward review) this includes the work undertaken by the cleansing survey team and also local Councillor feedback on litter bin provision in their ward. 8. To start improving the litter bin stock and provision it is important to go back to the basics and establish the principles of where litter bins will be provided and areas that are not suitable for litter bins. The policy aims to set out the basic principles on litter bin placement to provide consistency and ideally appropriate coverage in all wards. This should provide greater understanding of litter bin provision and inform requests for new litter bins. In summary; a. Areas that should receive high priority for litter bin placements are; i. Fast food outlets ii. Commercial sales and food retailers iii. Main routes to schools iv. High footfall and through areas v. Areas where people congregate e.g. bus stops, benches vi. Parks and play areas vii. Established dog walking routes Page 2 of 6
viii. Secondary school common walk ways b. Areas that are not suitable for litter bin as they can attract dumping, vandalism are; i. Purely residential areas with no mixed usage, as they attract dumping of household waste around the litter bins ii. Litter bins in alleyways or excluded locations as they are prone to vandalism, fires and/ graffiti iii. Recycling litter bins close to fast food outlets and/or night time economy as the level of contamination is too high. Further detail can be found in the Litter Bin Policy (Appendix A Litter Bin Placement Policy). 9. It is not the intension of this policy to bring all litter bins under the control of the Environment Directorate, but to work with other service teams to provide a consistent look and feel to litter bin provision across Cardiff. This will provide economies of scale and potentially reduce future costs. In addition it will provide a strong brand identify for the public; such considerations include the style, appearance, placement, positioning, and usability, ease of cleaning and service, initial purchase and replacement costs. 10. Due to the range of locations that require litter bins, one single solution and approach is not possible, therefore the Litter Bin policy (Appendix B Litter Bin Suite Policy) presents a suite of litter bins that can be adapted to service all areas, but still provide a consistent look and feel to the city s litter bin stock. By procuring a narrower and consistent range of litter bins savings can be made in purchasing the stock, maintenance and repairs as the replacement parts will be consistent and can be purchased in larger numbers. 11. The approach for recycling litter bins will be considered in more detail once the future direction for recycling collections has been confirmed for the city. Recycling on the go remains an important reminder for residents and visitors to help keep our streets clean and instil recycling messages, but until the future of recycling collections is determined for Cardiff caution should be taken in investing in one specific type of recycling litter bin. 12. A uniform approach to the litter bin styles will allow the Cardiff Outdoors programme to set standards for servicing and maintenance, so bring further value for money for residents. Further work on Cardiff Outdoors and cleansing improvements will be brought forwards in 2014. 13. New approaches such as gum drop and green nudge theory have also been explored and trialled. The gum drop trial to improve the capture of gum off our streets is currently drawing to a close. The green nudge theory of placing visual reminders (e.g. foot prints on pavements leading to litter bins) yielded good results in Cathays with a suggested overall reduction in litter across the locations studied by 39%. Such Page 3 of 6
simple methods to encourage the use of litter bins can be replicated across areas of the city to improve responsible litter disposal. 14. For many years the funding to support litter bin replacement and provision has been inadequate, which has led to the growing state of disrepair across the city. The cost of replacing the entire litter bin suite would be in excess of 1 million. In the current financial climate such a large scale replacement programme is not affordable and as many of the current litter bins are still fit for purpose this would not be a best value approach. Instead a combination of smaller long term capital investment and use of alternative funding sources is recommended. Further value for money would be achieved through standardising the style and type of litter bins used, so providing economies of scale when purchasing litter bins, spare parts and conducting repairs. 15. To bring the existing stock up to the good working order (i.e. no repair needed) it will cost approximately 90,000 as a one off backlog cost. Taking into account the annual demand for repair and damage, with an average replacement rate of 10% there is currently a significant budget shortfall of 70,000 per year in existing budgets to clear this backlog. 16. The stock continues to age and the number of litter bins falling into disrepair grows. It is expected that to retain a good quality asset in situ, 10% of litter bins should be planned to be repaired and/or replaced each year. At an average cost of 350 per bin this equates to a further 80,000. Previously these replacements have been funded by Tidy Towns and capital grants from Welsh Government and fines which are no longer available or are being redirected. If left unchecked the cost of bringing the litter bin suite up to good working order will increase to 250,000 by 2016. New funding streams and approaches need to be considered to provide the investment required across the city and support the replacement programme across the city. Income from advertising and sponsorship will be a priority in order to support the replacement programme for our litter bins. 17. Partnerships, planning, enforcement, advertising and sponsorship are all methods where contributions and funding can be found to share the financial burden of replacement and repair: a. Partnerships can be formed to attract shared funding bids such as TidyTowns.e.g. Neighbourhood renewal projects have been successful in attracting funding and included the provision of new litter bins. b. Planning powers can be used to provide litter bin provision for new domestic and commercial developments. c. Waste enforcement powers can be used to encourage retail and fast food outlets to take more ownership of the litter produced from their premises and in turn provide more litter bins in the immediate area. d. Advertising and sponsorship is a new area that can provide income and the provision of new litter bins. Many local authorities already sell advertising space on litter bins and this model could Page 4 of 6
be easily adopted in Cardiff. City Business and the Cardiff Business Council will be a focus for partnership as to how this can be delivered. In addition to this work, the Council currently has an initiative in place, to maximise potential income streams from commercial advertising. A study is now underway, taking the information gathered in 2012/13 Litter Bin Mapping exercise. Taking local footfall, location and vicinity information, bin size and condition information into account, commercial advertising opportunities and potential value will be assessed, with the view to achieving maximum revenue return from those sites with such potential. The Cardiff Outdoors programme is currently reviewing all litter bin stock across all Council land, further operational and functional assessment of Council wide bins installation, servicing and maintenance will be made for efficiencies and a full bin replacement programme requirements set out. 18. The Council are recommended to aspire to use all funding streams possible to increase the current funding provision for litter bins. Initial progress for litter bin replacement will be slow as the financial climate is very difficult, but with the correct building blocks that this strategy provides over the next one to three years the overall position of litter bin provision across the city will begin to improve. It is therefore recommended that the Council should move from a reactive position to a proactive approach in line with the Litter Bin Policy to remove the ongoing depletion of the asset. Local Member Consultation 19. Local members were asked to provide feedback on litter bin provision and locations within their wards in 2012/13; this is provided in appendix C of the Litter Bin Policy attached as appendix 1 to this report. Reasons for Recommendations 20. To present and invite the Cabinet to endorse the Litter Bin Policy that presents a standard suite of litter bins for the city and sets out the policy on litter bin placement. To note the financial implications of both delivering the policy and the impact of failing to find appropriate investment routes such as sponsorship. Resources Implications 21. There are no HR implications associated with this report Legal Implications 22. The Council is under a statutory duty (Environmental Protection Act 1990 section 89) to ensure that highways for which it is responsible and other land under its control to which the public have access is kept clear of litter and refuse. Page 5 of 6
23. That duty must be undertaken so far as is practicable which requires regard to be given to the character and use of the land, highway or road as well as the measures which are practicable in the circumstances. 24. In implementing the duty it is also necessary to have due regard to the code of practice issued pursuant to the Act (the Code of Practice for Litter and Refuse and Associated Guidance 2007 (Welsh Assembly Government). 25. The provision and maintenance of litter bins will form part of the Council s methodology to meet its duty. Financial Implications 26. External funding sources will be required to fund on-going replacement and maintenance once the initial backlog is cleared. The Environment Directorate will need to ensure that this position is reviewed regularly to ensure that if this external funding is less than anticipated then either activity can be reduced accordingly or any additional costs falling on the Council can be managed within the budgets available at that time. RECOMMENDATIONS Cabinet is recommended to endorse the Litter Bin Policy set out in appendix 1 that presents a standard suite of litter bins for the city and includes the policy on litter bin placement. JANE FORSHAW Director 4 April 2014 The following Appendix is attached; Appendix 1 Litter Bin Policy Page 6 of 6
Appendix 1 Cardiff Council Litter Bin Policy 2014-17 Foreword Councillor Derbyshire I recognise that a clean, safe, attractive and sustainable environment is important for the people in Cardiff. Cleaning up our streets is a priority that we take seriously. So as well as new approaches to cleansing underway, improved community engagement and strong enforcement it is important that we provide the residents and visitors of Cardiff with the adequate tools to dispose of their litter responsibly. By setting out the standard style and type of litter bins we will provide across Cardiff, we will provide strong visual impact to encourage in people a strong social responsibility for litter. The financial challenges we face for the future are unprecedented for Cardiff, but in spite of that, I am confident we can lead the way for better litter bin provision through efficiencies in delivering economies of scale and innovation to funding approaches. As such, Cardiff Council is committed in tackling issues such as littering, and understands the importance of supporting and working with residents, businesses, and visitors to deliver the outcomes we all want a cleaner and attractive city. 1. Introduction Cardiff Council receives many requests for the installation of litter bins, particularly on the adopted highway and in parks, from both members of the public and also Elected Members. Cardiff Council will work with other statutory providers and local businesses to ensure that the most appropriate litter bin provision is delivered in the city. Previously, informal criteria have been used to decide whether the request should be granted. This document now aims to establish formal criteria regarding where bins will be appropriate, the type of bins that should be used, and also the process to be followed for both installing a bin and removing a bin if it becomes necessary to do so. The Environment Directorate aims to provide, maintain, empty and cleanse a sufficient number of litter bins throughout the city on the adopted highway as needed to help fulfil its statutory duty as a Principal Litter Authority, to keep its 1
relevant land clear of litter if it is open to the air, under their control to which the public have access. Examples of how this can be met are as follows: Providing litter bins both free standing and post-mounted types which meet the needs of the local community, whilst causing the minimum impact on the surrounding environment. Emptying bins at an appropriate frequency to prevent them from becoming a nuisance or giving reasonable grounds for complaint; Cleansing bins at such a frequency as necessary to prevent them from becoming a nuisance or giving reasonable grounds for complaint; Setting standards for provision, servicing, maintenance and repairs across all service areas. Deliver value for money through economies of scale. As part of the leading Cardiff Building Communities strategy it has been identified that there is a need for a litter bin policy to capture and address the following issues to improve the cleanliness of our streets; Ensure litter bins are in the right design and in the right location Deliver litter bins that are fit for purpose and support the street scene needs across Cardiff Outline the placement requirements for litter bins so they are provided in the correct locations. Consider the need to support recycling on the go. Develop standards of constancy for location, servicing and maintenance across all service areas. Set a standard for private land owners that have to install litter bins The purpose of this policy is also to outline operational arrangements, maintenance and repair arrangements and budgets. This includes reviewing the type of bins used and the frequency of emptying. The variety and quality of bins has an impact on the character and look of the City. Currently bins vary due to changes in bin specification over the years. Bin shapes vary between square, round and rectangular, and colours range from green and red to black. In order to improve the aesthetics of litter bin provision and increase efficiency, it is advocated that litter bins should be streamlined in order to provide economy of scale and ease of emptying. 2. Objectives There are four elements that need addressing to deliver a consistent and cost efficient service for litter; An agreed litter bin suite for all Service Areas A programme of replacement for existing bins A review of existing provision and method for assessing future requests A standard approach to servicing and maintenance; the approach to service standards and consistency across all service areas will be 2
explored and delivered through the Cardiff Outdoors programme. This strategy will form the building block to support this wider programme of council wide work. 3. Current position Litter is unsightly, unhealthy, and in some circumstances, potentially dangerous. In the Ask Cardiff survey, litter has repeatedly been in the top three concerns of residents and therefore is high on the Cabinet agenda for improvement. Litter can range in size from a single sweet wrapper or cigarette butt, to a bag of rubbish or multiple lorry loads of fly tipped waste. Litter bins are an important tool for reducing litter, but their location needs to be carefully considered alongside operational and financial constraints. 4. Litter bin mapping In 2013 a full city wide survey was conducted across all service areas to identify the Councils current litter bin assets. The level of information obtained for all service area bins is as follows: The location of litter bins provided by other service areas The size of each bin The frequency of its collection. The amount of litter in the bin when it is collected. The condition of each bin This data has been mapped onto a GIS to allow information for each bin to be stored within the system therefore providing a good management tool for managing these assets long term. Street cleansing and other service areas currently service over 2359 litter bins across the city. These are broken down in to: Post Mounted - 358 Freestanding - 1803 Dual (recycling & litter) - 128 Thanks Banks (Recycling) - 8 Events - 25 Unidentified (Parks) models - 37 1677 are serviced by street cleansing which includes bins provided by housing, harbour authority & city centre management and 682 are serviced by parks, which also includes areas such as bereavement. 3
Thanksbank, recycling advertising the Cardiff festival 2012 From the city wide litter bin survey it has been identified that 5 post-mounted and 51 free standing bins are in very poor condition and a high priority to replace. A further 23 post-mounted and 225 free-standing bins have been highlighted as requiring repair or replacement. This equates to almost 13% of the current stock being in need of repair or replacement. In addition, a further 172 have been identified as requiring new or repaired locks and/or doors. On average 50 new litter bins require repair or replacement each year and the service area receives approximately 150 requests for additional litter bins each year. All meaning, that if the council continues with the current approach the existing stock will deteriorate year on year. The life expectancy of conventional litter bins is approximately five to seven years. From the city survey the following have been identified and action taken to improve service coverage: All clusters and problem bins have been identified in each ward area 31 clusters of litter bins (freestanding and lamp post) were identified that were not reflective of service demands i.e. there is an over provision of bins in these areas There are a number of bins in areas that cannot be easily accessed for servicing and repair or have health and safety related concerns. Some clusters do exist that are essential to capture litter material and correctly reflect service demand A number of gaps exist in the provision of litter bins in some ward areas; these gaps have been filled by utilising bins that can be moved from existing clusters where there was an over provision 4
In total, 24 free standing bins and 6 lamp post bins have been identified as effectively extra that can be used to address some of the litter bins in poor condition. 5. Litter bin locations There is no best practice in relation to the location and placement of litter bins, as the local situation and publics attitude towards littering can have a major impact on the need for litter bins. Areas that should receive high priority for litter bin placements are; Fast food outlets Commercial sales and food retailers Main routes to schools High footfall and through areas Areas where people congregate e.g. bus stops, benches Parks and play areas Established dog walking routes Secondary school common walk ways Areas that are not suitable for litter bin as they can attract dumping, vandalism are; Purely residential areas with no mixed usage, as they attract dumping of household waste around the litter bins Litter bins in alleyways or excluded locations as they are prone to vandalism, fires and/ graffiti Recycling litter bins close to fast food outlets and/or night time economy as the level of contamination is too high. 6. Litter bin providers Although Environment is the main service area to provide and service litter bins, Parks also provide and service litter bins. Numerous service areas provide litter bins and then request either Street Cleansing or Parks to service and maintain the litter bins on their behalf; Serviced by street cleansing 1677 litter bins o Street Cleansing o Harbour Authority o City Centre Management o Housing o Facilities Management o Adshel contract for bus shelters Serviced by Parks 682 litter bins 5
o Parks & open spaces o Bereavement These litter bins are not always in the direct control of Street Cleansing, which can lead to inconsistencies in the bin style, suitability, frequency of emptying and maintenance. As a result there are over twenty different styles and colours of litter bins across Cardiff It is not the intension of this policy to bring all these litter bins under the control of street cleansing, but to provide a Council-wide approach to bin provision and provide a consistent look and feel to litter bin provision across Cardiff, set standards for servicing and maintenance. 7. Legal Powers and responsibilities Cardiff Council is a principal litter authority in accordance with part 4 of the Environmental Protection Act 1990 as amended by Clean Neighbourhoods and Environmental Act 1995. This legislation gives powers to the authority in dealing with refuse and litter. Section 5(1) of the Litter Act 1983 enables litter authorities to provide and maintain refuse or litter bins in any street or public place. Careful consideration is given to the design and location of the bins to ensure they are where the public most need to dispose of litter. Where bins are provided by Cardiff Council, section 5 (3) of the 1983 Act requires them to be emptied, cleansed and maintained so that the bin and its contents do not create issues to the public. Litter bins erected on private land are the responsibility of the respective owner. Examples would include litter bins in a private car park or private shopping precinct. The Council has the power to address any litter related issues on private land under section 215 of the Town and Country Planning Act. 8. Litter bin suite Litter bin design for each area enhances the character of the particular area. Such considerations include the style, appearance, placement, positioning, usability, ease of cleaning and service, initial purchase and replacement costs. In addition the litter bin style can support underlying messages for antilittering, providing a standard look and feel to litter bins can carry and important message to residents and also make the litter bins easier to identify for the public. 6
There are several types of litter bins and it is important to recognise that certain types of litter bins are influenced by their location. For example Community and district shopping areas Conservation areas Prestige areas (city centre & Cardiff bay) Night time economy and those in close proximity to fast food outlets Equally it has to be recognised that there are many locations where the installation of litter bins would not be suitable and/or practical. Historically some service areas in Cardiff have provided dog waste bins, these where discontinued in some areas when a change in legislation meant that the dog waste had to be treated as hazardous waste when separately collected. This lead to increased collection and disposal costs. This can also lead residents to misunderstand that dog waste cannot be placed in ordinary litter bins, therefore it has been established that separate dog bins will not be provided. The focus is needed on ensuring that sufficient general litter bins are in the right locations whilst also promoting the use of those general litter bins for dog waste and other litter. Whichever type of bin is used, it is important that the bins are durable, of a suitable size and of a type that can be safely emptied. It is the aim of this policy to ensure that when bins are replaced or new bins are installed they are part of a standard suite of bins. However, it is recognised that there is a need for litter bins to be categorised into four main types: standard litter bins, recycling litter bins, post mounted litter bins and smoking litter bins. Therefore there will be some variation in specifications between these categories. Further more litter bins for conservation and high prestige areas will also need separate consideration. The current specification for litter bins installed by Street Cleansing is detailed in appendix A. The desired requirements for the standard suite of litter bins are as follows; Fit for purpose and location Enclosed top Universal branding and signage Smoking stub tray Universal locking mechanisms and key Standard colour, logo and style Standard plastic liners for each type of bin (ie free-standing/postmounted) Bilingual Visibility Strip Key protector (retrofit) 7
9. Dog fouling bins The use of bespoke litter bins for dog fouling are used to varying degrees across Local Authorities. Some provide an extensive network; others range for parks only to none at all. They can work well in high dog walking areas such as parks, but equally they can cause confusion for residents not knowing if dog waste can be placed in ordinary litter bins or what they can do with their litter if only a dog fouling bin is present. Historically Cardiff s parks used dog fouling bins, but have moved away from bespoke dog fouling bins as the cost and resources of collecting the bins separately to original litter increased. The higher disposal costs apply as dog waste is classed as hazardous waste if collected separately from litter and in high volume. The cost of hazardous waste disposal is significantly higher compared to general waste. Plus an ordinary litter bin is also required in close proximity. Introducing dog fouling litter bins to parks and dog walking areas is possible, but would lead to increased costs due to requiring separate collections and a different litter bin, so reducing economies of scale in bin procurements. A better, more cost effective approach for Cardiff is to ensure the location of litter bins are correct and continue to promote the use of litter bins for dog fouling waste along with normal litter waste. This removes the need to provide 8
separate collections or have a litter bin and a dog fouling bin in close proximity. A further survey of high frequency dog walking areas needs to be undertaken and increased provision balanced with budget pressures where possible. 10. Recycling Litter Bins Cardiff provides strong recycling messages for the home and it is important that these messages also transfer to people when they are out and about around the city. Recycling on the go visual images from recycling litter bins can reinforce the recycling messages provided to householders and help cement recycling habits to deliver cultural changes. Across the city there are various recycling litter bins that work around a compartment for litter and one for mixed recycling. There are pros and cons to recycling litter bins; Pros Cons Reinforce recycling messages Expected in high recycling authorities High proportion of litter is recyclable e.g. bottles and cans Reduced the size of the bin capacity, unless a much larger bin is used Increased costs and resources to collect two or more waste streams. Required each compartment to be collected separately 9
They do not always work well in certain areas e.g. night time economy areas or fast food areas due to high content of food and liquids. Co-mingled recycling litter bin If the locations are carefully considered for the risk of contamination and abuse, then they are an important part of Cardiff s street scene and recycling culture. Currently, the legislation requirements around the way in which recycling are collected is changing. By 2015 local authorities must by collect recycling separately from the kerbside or have strong evidence that co-mingling is the more cost effective and suitable solution. In addition, the pending Environment Bill (Wales) is anticipated will go further to place greater restrictions on how waste is collected across all sectors and service areas. Until the future requirements are established the provision of new recycling litter bins should be limited. Accordingly any limited expansion of any recycling litter bins should be in line with the requirements outlined in Appendix B. 10
Kerbside sort recycling litter bin 11
11. Consultation of Elected Members When it is proposed to install a new litter bin, or remove an existing litter bin, the relevant Ward Members shall be first consulted. Appropriate details, including a plan showing the relevant location, shall be provided together with reasons relating to the proposal. Appropriate consideration shall be given to the Member responses, and confirmation of the proposed action provided to the Members, prior to the bin being installed/removed. 12. Other Litter Bin Providers Within the Council we can improve consistency in litter bin provision through working with colleagues who have responsibility for aspects of the local environment such Highways and Parks and working with others involved in the street scene such as City Centre Management. 13. Litter bin servicing The frequency of emptying litter bins shall be determined by the rate at which they become full. Therefore, the frequency will be dependent upon their size and location. Emptying frequencies vary from twice daily to once a week depending on the location of the bin and the time of year. Emptying of the litter bins is carried out separately from the cleansing of a street and is done by a separate vehicle. However, all bins will be emptied at least once per week. Most bins will be emptied on a more frequent basis. In busy locations, such as the city centre, bins will be emptied more than once per day. By working with partners such as Highways, Parks and City Centre Management, we can ensure consistent provision of facilities. This will provide the benefits of public understanding and recognition of litter bin and recycling facilities, improved local environmental quality and economies of scale through joint procurement. In addition, closer working with other service areas could ensure all litter bins are emptied to a consistent standard and improve the efficiency of the service. The Cardiff Outdoors project will be looking that such an approach to improve service delivery through one agreed approach. 14. Financial Implications The current Street Cleansing budget for all litter bin provision, installation, repair and maintenance for Adopted Highway bins is 20,000 per year. However this current budget is not sufficient to support the current level of repair required for the Adopted Highway and there is no capacity for 12
replacements or new installations. Each new litter bin can cost up to 450 new or up to 250 for repair. To bring the existing stock up to the good working order (i.e. no repair needed) it will cost currently 90,000 as a one off backlog cost. Taking into account the annual demand for repair and damage, with an average replacement rate of 10% there is currently a significant budget shortfall of 70,000 per year in existing budgets to clear this backlog. The stock continues to age and the number of litter bins falling into disrepair grows. It is expected that to retain a good quality asset in situ, 10% of litter bins should be planned to be repaired and/or replaced each year. At an average cost of 350 per bin this equates to a further 80,000. Previously these replacements have been funded by Tidy Towns and Capital grants from Welsh Government and fines which are no longer available or are being redirected. If left unchecked the cost of bringing the litter bin suite up to good working order will increase to 240,000 by 2016 and significant visible depletion of the stock would be visible. Further value for money can be achieved through standardising the style and type of litter bins used, so providing economies of scale when purchasing future litter bins, spare parts and conducting repairs. To deliver a wholesale change the cost of replacing the entire litter bin suite to unify the quality and approach would be in excess of 1 million. In the current financial climate such a large scale replacement programme is not affordable nor would it represent a best value approach. Instead a combination of smaller long term capital investments and use of alternative funding sources as listed below will be required to improve the appearance and quality and maintenance of Cardiff s litter bin stock. Cardiff Outdoors programme is currently reviewing all litter bin stock across all Council land, further operational and functional assessment of Council wide bins installation, servicing and maintenance will be made for efficiencies and a full bin replacement programme over under a life cycle cost assessment for asset management will be set out. 15. Use of littering fines monies Currently the enforcement activities generate income. The Council is permitted to keep the receipts from littering fines, however the money must be used to help improve enforcement activities in that area or a related service as both would lead to an improvement in the local environmental quality of the city. Examples of the activities that the money can be used for are: Graffiti removal Littering enforcement work (people resources) Preventative measures, rocks and soil bunds to prevent fly-tipping Community clean up initiatives 13
Waste and litter advice literature Enforcement equipment and technologies The betterment of Local Environmental Quality (e.g. litter bins) 16. Section 106 monies/community Infrastructure Levy Currently the Waste collections and storage Strategic Planning Guidance (SPG) requires updating to strengthen the provision of litter bins and smoking litter provision by businesses. Section 106 monies/community Infrastructure Levy can be used to provide additional litter provision and additional bring facilities for recycling. This money cannot be used to support the current stock replacement. 17. Sponsorship & Advertising An option for improving the current stock of litter bins would be through a sponsorship program which would generate a small income for the Authority and free up existing stock to be relocated to other areas with priority given to busy sites such as town centres and shop fronts. Sponsored bins need to be strategically located; therefore any introduction of such litter bins would first require a review of potential locations. There are companies that specialise in litter bin sponsorship and advertising. Such companies provide and maintain litter receptacles of a high quality and standard to suit local authorities and other public bodies, and have a client base of national advertisers who pay for advertising space. They have designed their receptacles with extra wide side openers and stay clean casings, and bins are also available with cigarette stub out facilities. However, such bins might not conform to the standardised suite that the Council is endeavouring to secure. Furthermore, they may not conform to our requirements to increase recycling via the provision of dual litter bins. Therefore, the preferred means would be to adopt the approach used by Sheffield and Teignbridge Councils, where businesses are asked to sponsor litter bins. Brass plaques (or an alternative) are then added to the standard litter bins stating Provided by (Company name), helping to Keep Cardiff Tidy. 14
Council s can charge from 100 per bin, per annum for sponsorship, meaning that by obtaining sponsorship from as few as 10 businesses can generate an income of 1000. However, this needs to be evaluated alongside the cost of securing the sponsorship deal. City Business and the Cardiff Business Council will be a focus for partnership as to how this can be delivered. Historical funding has also been provided by the Tidy Towns initiative for the provision of over 200 smoking litter bins to businesses throughout Cardiff. In addition to this work, the Council currently has an initiative in place, to maximise potential income streams from commercial advertising. Working with an external agent, the Council will gain a more detailed knowledge and understanding of the commercial advertising market place and how it can positively impact on service provision. This will assist the Council taking forward advertising opportunities, which will in turn in provide an income stream from strategically placed litter bins, to support the Council's commercial aims and also assist when considering a co-ordinated and more strategic approach when formulating its Strategy. A study is now underway, taking the information gathered in 2012/13 Litter Bin Mapping exercise. Taking local footfall, location and vicinity information, bin size and condition information into account, commercial advertising opportunities and potential value will be assessed, with the view to achieving maximum revenue return from those sites with such potential. 15
18. New Approaches and Innovation As well as the standard and traditional approaches to litter bin provision new approaches have been explored and evaluated, such as the provision of specialist gum disposal facilities, nudge theories and solar powered compaction. Gum drop Gum is a form of litter that people tend to over look, but the impacts on our street scene are extremely visible, long lasting and both difficult and expensive to remove. A new approach that is currently being tested is the Gum Drop. The highly visible pink balls in high footfall areas are a visual reminder to people to dispose of their gum responsibly. In addition the entire gum drop and its contents can then be recycled into more gum drops, providing a sustainable solution to gum. The trial will run from July 2013 to January 2014 and the results will be evaluated to determine the success of the trial and any longer term potential use of the bins. 16
Green nudge theory A trial was undertaken in 2013 to explore if visual reminders can also influence peoples behaviors. The theory that was explored was to see if foot prints places leading up to the litter bin can encourage people to use a litter bin. The trial area was surveyed for litter before and after the green foot prints were in place. The results in Cathays were very positive with a suggested overall reduction in litter across the locations studied of 39% and substantial increases in the recorded LEAMS scores. Other Local Authorities saw a 65% improvement, whilst others saw no change. The nudge theory may not work in all locations, but the results confirm that further expansion of the concept is worth investing in high footfall areas and local shopping communities. Solar Compaction New emerging litter bin technology is looking at how the servicing of litter bins can be reduced and improved. One such concept is litter bins that use solar power to compact the litter within the bin. This means that a standard sized litter bin can hold six to eight times more waste than the average street bin before requiring emptying. Although lease costs and maintenance costs can be incurred due to the technology used. We will continue to explore new innovation, technology and efficient working arrangements through trials and business case assessments for value for money and street scene benefits. 17
19. Partnership Working Keep Cardiff Tidy The Keep Cardiff Tidy (KCT) partnership has been established in Cardiff since 2000. The Partnership was set up to help reduce litter and fly-tipping in Cardiff. KCT run various promotions and events within Cardiff and have good links with the local press. The Council led partnership focuses on promoting waste awareness and ownership through regular meetings and initiatives. Partners include City Taxi, Real Radio, the South Wales Echo, City Centre Management and Cardiff Councils Waste Enforcement and Education teams. The partners work together to tackle issues such as incorrect presentation of waste, smoking litter, gum, dog fouling and graffiti. By working together to develop campaigns and pooling resources significant successes have been achieved; the Tidy Rivers Campaigns, Usual Suspects, Litter Champions, PCSO Dog Fouling, Get it out for Cardiff and the Olympics. We will continue to work with all of our partners to support one another s campaigns and to develop a City culture of caring for our Environment and zero tolerance and litter and waste. Tidy Towns The Tidy Towns Initiative is a grant funded scheme purely focused on improving local environmental quantity issues. Keep Wales Tidy provide funding to Cardiff Council via their Tidy Towns Initiative to facilitate the delivery major clean up projects and community ownership. The Tidy Towns Project is encouraging and supporting people across Wales to take responsibility for their local environment. Cleaner Cardiff work closely with the project in order to deliver such initiatives, including the procurement and distribution of smoking litter bins to businesses. 20. Enforcement It is an offence to drop litter of any kind. The Environmental Protection Act 1990 states that if a person drops, throws, deposits, or leaves anything that causes defacement in a public place, they commit an offence of littering. Authorised Officers of the Council, including Police Constables and PSCO s can issue an on the spot fine of up to 80 if a person is caught dropping litter. If brought before the court a fine of up to 2,500 can be administered if found guilty. Through working with the enforcement team in relation to litter and bins we can: 18
Ensure that where litter bins are abused, appropriate action is taken in line with fly-tipping powers (See Appendix D). Issue Street Litter Control Notices to those businesses of the A3 category (See Appendix D). Issue on the spot fixed penalty notices to those individuals witnessed dropping litter. 21. Conclusion By providing a standard approach to the litter bins provided across the city for all service areas the Council should achieve a range of benefits; Economies of scale will reduce costs of purchasing the litter bins, maintenance and repairs. Improved operational efficiency as standard approaches to litter bin provision and servicing can be provided through Cardiff Outdoors initiatives. Strong brand identity across the city for litter disposal Attract sponsorship through good litter bin placement Clear understanding on where litter bins can be placed to the public All of the above will deliver strong litter bin ownership for operational teams which will improve the cleanliness of our streets and open spaces and also provide a clear and simple visual impact for residents and visitors as to how and where to dispose of their litter responsibly. Plus, as importantly provide the best value for money for the residents of Cardiff. 19
Appendix A Litter Bin Placement Policy Criteria for installing new litter bins reactive Where a request for a new bin is received, a letter/e-mail confirming the receipt of the request shall be provided. In order to monitor budget commitments, all requests for new or remove litter bins will be reviewed on within 21 days of the request. An assessment will then be made regarding whether a new litter bin is required. This is likely to involve monitoring the relevant area for an appropriate period of time (how long). The following criteria will also be considered where appropriate: 1. Amount of litter that is experienced in the immediate vicinity over 7 calendar days. 2. Nature of the area and foot fall: i.e. shopping precincts, bus routes and schools and other high footfall areas near leisure facilities should be prioritised. 3. Number of requests received from the immediate area in relation to cleansing and installation of a litter bin. 4. Proximity of existing provision: Consideration will be given to other bins located in the same location to determine optimum coverage. 5. The operational implications: Consult with staff on appropriate locations for accessing the bins for emptying, e.g. can this be done safely? 6. Suitability of pavement and public access i.e. obstruction to mechanical sweeping, wheelchairs, prams etc. The location of litter bins should ideally allow a clear width of 2 metres. 7. Resources: There is sufficient budget available for installation. And availability of new litter bins 8. Planning restrictions i.e. conservation areas 9. Past history of vandalised bins in the area Please Note: Requests for new provision of bins for businesses generating litter consideration should be given to the business providing bins and emptying at their own expense linking in with voluntary litter agreements, and the Council s powers as discussed in Appendix D. Litter bins are not normally provided in purely residential areas, but consideration should be given where there is high demand due to levels of litter and footfall in the area. When the assessment has been completed, permission must first be sought from the highways authority to install a bin at the proposed location. Once approval is received from highways, a letter will be sent to the relevant person to confirm whether a bin will be installed. If it is not intended to install a bin, an appropriate reason will be given. 20
Criteria for Replacing Litter Bins proactive The litter bin stock across Cardiff is of varying ages and degrees of wear. In order to bring the current stock in line with the agreed standards all litter bins on the adopted highway will require inspection and a list of those that require replacement to be established. Capital funding may be required to progress the replacement of existing stock to an acceptable standard. Once the existing stock is up to the require standard, a reactive stance can be adopted. It should be noted that there is no economic sense in replacing existing litter bins that are fit for purpose and fully serviceable, just because they do not fit with the new agreed look and feel of litter bins. Criteria for Replacing Litter Bins - reactive A litter bin shall be replaced when it becomes damaged and its repair is not cost effective, or it is proposed to change the type of bin at a particular location, for example, due to refurbishment of an area. Where an area is being refurbished, funding should be sought from those managing the refurbishment for provision of a new litter bin. Where a request is received for the replacement of an existing bin the following shall be considered: The condition of the bin has to warrant replacement for health and safety reasons, AND If the current bin is damaged due to vandalism, we must be confident that if the litter bin is replaced the damage is not likely to re-occur. Movement of the litter bin to be new location should be considered before replacement. Litter bins that are servable but appear tired can only be addressed if sufficient budget is available, priority will always be given to damaged litter bins. Where it is deemed appropriate to replace a damaged bin, a replacement should be in place within 10 working days. Criteria for removing Litter Bins Where it is felt that to replace the bin will only lead to further vandalism, the bin shall be removed and alternatives considered, such as providing an alternative type of bin or working with businesses in the vicinity and waste enforcement officers to identify a solution. As well as issues regarding vandalism mentioned, issues in relation to flytipping also need to be considered. Where the location of a litter bin leads to dumping of waste, enforcement action can be pursued. Under the Environmental Protection Act (EPA) 1990 makes it an offence for any person or business to deposit waste anywhere other than a licensed waste facility. This includes depositing waste in or near a litter bin. Persons or businesses found to be fly-tipping can receive an unlimited fine and/or up to five years in 21
prison. Because of the seriousness of the crime, fly-tipping is an arrestable offence. However, where it is felt that the location of a bin is actually causing a detriment to an area it will be removed and alternative options considered. Litter bins from residents areas that are not close to any commercial or high footfall areas will be removed and relocated to prominent areas. 22
Appendix B Litter Bin Suite Policy Standard free standing litter bin These bins are used in a variety of locations including parks and shopping precincts, as well as near bus stops, schools and leisure facilities. The benefits are that they can hold larger volumes of litter than post-mounted litter bins. Plastic liners for manual emptying Metal, square outer body Black shell with gold council logo and gold trim (city centre and conservation areas) Covered to prevent litter escaping Flush to the floor to prevent litter and debris build up underneath Uniform lock and key system Cigarette tray on top (Specification) Bilingual signage and national branding Visibility Strip Key protector (retrofit) Recycling free standing litter bin Recycling on the go has an important role to play in Welsh Governments blueprint for waste and recycling. The provision of street recycling bins could be vital in establishing a widespread culture of recycling in the everyday life of the citizens of Wales. 23
These should be located in areas where they are likely to be used correctly. When installing these bins consideration needs to be given to the likely level of usage, for example; whether people are most likely to be disposing of recyclable or non recyclable litter in a given area. This in turn will help to determine the frequency with which the bins ill require emptying. Recycling bins should not be installed near fast food outlets where the waste generated is high in volume and non-recyclable as this will only lead to the recycling element becoming contaminated. The preferred option of recycling litter bin is one which is: Dual aperture (litter and mixed recycling) Plastic liners Metal, square outer body Black shell with gold council logo and gold trim Covered to prevent litter escaping Flush to the floor to prevent litter and debris build up underneath Uniform lock and key system (using same key as other bins in the Councils litter bin suite) Cigarette tray on top (Specification) Bilingual signage and national branding Visibility Strip Key protector (retrofit) It is noted that the any potential changes from the current mixed recyclate collections to separate material collections will require this specification to be reviewed. Smoking Litter Bins 24