Cabinet
Subject: Increasing recycling and introduction of food waste collections
Date of meeting: 15 May 2025
Report of: Cabinet member for Net Zero and Environmental Services
Contact Officer: Ali McManamon
Corporate Director, City Operations
Tel: 01273 0511
Email: alison.mcmanamon@brighton-hove.gov.uk
Ward(s) affected: (All Wards);
Key Decision: Yes
Reason Key: Is significant in terms of its effects on communities living or working in an area comprising two or more electoral divisions (wards).
1.1
The
council plan and our drive to deliver a Better Brighton & Hove for All
includes a mission to deliver an accessible, clean and sustainable city. This
includes managing and minimising our waste and increasing the percentage of
waste sent for reuse, recycling and composting.
1.2 This report details how we will increase opportunities to recycle through increasing the range of dry recycling materials collected and by introducing a separate weekly food waste collection.
2.1 Cabinet agrees to note the content of the report and agree the phased implementation of food waste collection [EC1] [RJ2] , with roll out to be completed by March 2026 as set out a paragraph 3.20 of the report.
2.2 Cabinet agrees to collecting additional dry mixed recycling materials[SF3] .
2.3 Cabinet delegates authority to the Corporate Director, City Operations to: -
1) Determine the phasing and implementation of the food waste collection service and additional dry mixed recycling materials collection services across the City in accordance with the above recommendations; and;
2) Following consultation with the Director Governance & Law, to enter into all legal arrangements necessary to bring recommendations 2.1 and 2.2 into effect including the variation of the Council’s disposal contract with Veolia and East Sussex County Council to allow for the increased Council collection services for the duration of that contract (end date 2033).
2.4 Cabinet delegates authority to the Corporate Director, City Operations to procure food waste vehicles and other equipment associated with introducing the new collection services.
2.5 Cabinet approves additional revenue budget of £0.678m to the £1.2m already in the service budget. This is to be funded in full from new burdens funding provided by DEFRA for one year only.
3.1 Brighton & Hove City Council’s approach to improving the environment and broader environmental goals are set out in the Council Plan 2023–2027,[1] the Circular Economy Routemap 2020–2035[2], and the Carbon Neutral Programme 2030.[3] These strategies collectively aim to reduce waste and emissions, promote sustainable resource use, support the shift to a circular economy, and deliver clean, inclusive, and responsive services.
3.2 Increasing recycling remains a key priority for the council and work is continuing to expand the range of dry recycling materials and introduce food waste and in compliance with the new legislative requirements of the Environment Act 2021This report sets out plans to achieve the long-held ambition to see separate food waste collection made available to every household in the city.
Wider Recycling
3.3 Plans to introduce the collection of dry mixed recycling materials were announced earlier this year[SF4] [SS5] [RJ6] . Plastic bottles, paper, card, tins, cans and aerosol bottles are already currently collected. An expanded range of materials will include food and drinks cartons such as fruit juice and plant-based milks, aluminium foil, foil tray and plastic pots, tubs and trays which includes items like yogurt pots, fruit trays and margarine tubs[SF7] [SS8] . The Veolia recovery facility in Hollingdean is being adapted to accept these materials and production line trials are currently taking place to ensure that these new materials can satisfactorily be processed. As soon as the trials show the new materials can successfully be processed through the plant a go live date will be provided. Due to the operational changes needed in the plant, a phased introduction is likely to be needed. It will be necessary for these arrangements to be in place no later than the end of March 2026 in accordance with the requirements of the new legislation. Overall volume will not increase as items are being moved from the waste stream to the recycling stream.
3.4 This report proposes to extend the domestic collections of these materials [SF9] [SS10] through to [EC11] the end of the Council’s current joint disposal contract with East Sussex County Council and Veolia, in[SF12] [SS13] 2033[SF14] [SS15] . It is important to understand that end markets for some of these additional streams are relatively underdeveloped because of the cost of turning these recyclable materials into useable, affordable and marketable products[SF16] [SS17] . Therefore, further work will need to be done at a national level between the waste industry, market innovators and government if the full benefits of wider recycling are to be realised. At present, high quality contaminant free materials are more likely to be recycled and the need to ensure this will form part of our marketing campaign.
Food waste
3.5 The global UK based charity organisation, Waste and Resources Action Programme estimated that total food waste in the UK amounted to 10.7 million tonnes in 2021, of which 60% comes from households. This is equivalent to around 95 kg per person per year. The food waste also contributes to climate change and environmental degradation, with estimated greenhouse gas emissions of 18 million tonnes of CO2 equivalent in 2021 and 2022.[4]
3.6 In Brighton & Hove, the most recent Waste Composition Analysis (2022) found that 31% of the material in residual bins consisted of food and drink waste. Of this, approximately 75% was classified as avoidable, with 51% of the avoidable food waste found to be still packaged, either partially or fully unopened.[5] This highlights the scale of food waste still entering the residual stream and the environmental opportunity in diverting it.
3.7 We estimate the total amount of food waste generated by households based on residual waste tonnage. In 2022, Brighton and Hove produced 69,787 tonnes of residual waste. Applying the 31% proportion from composition analysis suggests that approximately 21,634 tonnes per year of food waste is currently not being recycled and potentially could be. When divided across the estimated 146,000 households in the city, this equates to around 148.2 kg of food waste per household per year or 2.8kg per week.
3.8 However, not all food waste will be captured through the separate collection service. Based on benchmarking with CIPFA Nearest Neighbour local authorities with similar demographics, property types, and collection schemes, the projected annual food waste yield for Brighton & Hove is estimated at 5,057 tonnes, or 0.74 kg per household per week. This lower figure accounts for real-world variables such as participation rates, capture rate, and the fact that some residents may reduce their food waste once they become more aware of how much they discard. Both figures, one based on waste generation and the other on expected capture, help inform planning assumptions and performance targets for the new service.
3.9 Currently, any materials not recycled, including food waste, are disposed of by residents in the black bag residual stream which is taken to the Hollingdean Waste Transfer Station (WTS). It is then sent onwards to the Newhaven Energy Recovery Facility generating enough electricity to power 25,000 homes.
3.10 Some residents already compost food waste at home for which we do not have any data, and some participate in the community composting scheme run by the Brighton and Hove Food Partnership which recycled 196 tonnes from April 2024 to March 2025.
3.11 Brighton & Hove City Council has committed £1.2m revenue funding to introduce a food waste collection service to be delivered directly by the Council. This will enable the service to be introduced this year. Defra are also contributing to the capital cost of purchasing vehicles, caddies and bins as part of the future wider national requirement to collect separate food waste. In addition, Defra are also contributing to the project management and communication costs associated with the launch of the service.
3.12 The food waste collection service has required significant detailed planning of new rounds, shift patterns and procurement of the associated specialist equipment that will mean all households in the city, whether living in a kerbside, communal or flats area will be able to recycle their food waste.
3.13 All households will receive a year’s supply of liners, a 5-litre caddy to place in their kitchen and those living in kerbside areas will additionally receive a 23 litre outdoor caddy. Kerbside collections food waste will be made on a weekly basis with other areas’ frequency of food waste collection varying and determined through projected yields from these households. As a minimum all food waste will be collected at least weekly and some communal areas more frequently including daily if needed.
3.14 Detailed research has taken place to ensure the caddies are robust, minimise odour and are large enough to cope with the amounts of food waste projected from each household.
3.15 Those living in communal areas of the city will be able to dispose of their food waste in a specialist secure communal food waste bin. Please see appendix 1 for more details on the specialist caddies and containers. The communal bins have also been subject to rigorous tests and research prior to selection of the preferred type. They are already in use to collect food waste across the UK. They will be placed alongside the Council’s existing sites and any well-founded and meaningful concerns about their placement will be considered on a case-by-case basis after deployment. Food waste is already taken to waste and recycling facilities, from now on they will be collected in separate sealed containers which should reduce issues created by food waste decomposition.
3.16 New food waste vehicles are being procured to [SF18] [SS19] ensure the waste is collected in accordance with regulations, fitted with jet washing units for cleaning of communal bins and large enough to collect the quantities of food waste generated from households on a weekly basis.
3.17 The vehicles are specifically designed for food waste and will be fully sealed to ensure any leachate does not leak out. We have designed collections rounds meaning we will use five[SF20] 16 tonne vehicles to ensure collections can be made from all households across the city.
3.18 Food waste collected through the new service will be managed under the Council’s existing joint waste disposal contract with East Sussex County Council and Veolia.
3.19 Once collected the food will continue to be taken, as it is currently, to the Hollingdean WTS, tipped into relatively small sized dedicated, sealed food waste containers. Food waste will move out of Hollingdean frequently, which could be two or three container movements per day, meaning the food waste would move off-site quicker than if it were in the black bag stream. As the food waste will now be handled in sealed containers at Hollingdean our assessment is that smell emissions in the local area from food waste will be no worse and possibly better than they are now[SF21] [SS22] [JG23] .
3.20 As a result we do not envisage any issues with the food waste continuing to be taken to Hollingdean. Veolia has already implemented a range of odour control measures at the waste transfer station to minimise impacts on local communities and site operations. These include infrastructure upgrades, operational procedures, and staff training. Officers will continue to monitor and engage with Veolia to ensure these measures remain effective and use the learning throughout the implementation period, to improve any processes required accordingly.
3.21 Over time, a small increase in vehicle movements required for food waste handling will be offset by fewer vehicle movements required for the black bag stream as the volume of black bag waste will decrease as food waste yields are separated out.
3.22 From Hollingdean it will be hauled to an In-Vessel Composting (IVC) facility, in Woodlands, Lewes, the same facility where our garden waste is currently being processed. At the IVC facility, the food waste is biologically processed into compost in a controlled environment. This ensures compliance with hygiene standards and enables the efficient production of compost products.
3.23 The service will be introduced in phases across the city, and we are working to tight deadlines with decisions to go live or not with any phase being assessed meticulously throughout. A decision to go live or not will need to meet the set criteria in all phases to ensure introduction is as smooth as possible, with minimal issues. Roll out is anticipated to commence in September 2025 and will need to be completed by March 2026 to comply with the requirements of the Environmental Protection Act 1990 (as amended by the Environment Act 2021). From 1st April 2026 Waste Collection Authorities will be required to collect all recyclable household waste separately from other household waste, for recycling or composting at least once a week from 1st April 2026.
3.24 The implementation is being delivered using the principles of the council as a learning organisation with methods such as agile project management, used to ensure we are iterating improved processes, based on the learning throughout the project.
4.1 An alternative option has been considered to introduce the service across the whole city, on one day rather than phases, however this is too high risk, requiring high levels of staffing resources to successfully role out at once, phasing in the service gives a longer period to deal with any early delivery issues as they arise in each phase.
5.1 A comprehensive communication plan is under development to inform residents about the increased range of dry recycling materials and the new food waste service, including the equipment they will receive, what can and cannot go in food waste bins, how collections work, and the environmental benefits of participating.
5.2 Residents will receive an information leaflet prior to the service being implemented, and then a detailed instruction leaflet with their caddy.
5.3 A dedicated email will be launched at the time of implementation and the Environmental Services phoneline will be available for residents to ask questions in relation to the new service.
5.4 Communication on food waste will continue during and after the roll out of the service to highlight the importance of continuing to reduce all types of waste and encourage more recycling.
5.5 Officers will also be working with the Community Engagement Team to reach communities through existing well-established networks. These include the Trust for Developing Communities, Council Housing Area Panels as well as other local group meetings.
5.6 Prior
to each phase of the roll-out, engagement and communications will take place in
the relevant geographical area and the timeline for this is linked to the
phased introduction of the service.
5.7 Communication and engagement will take place to ensure that we work together with our valued staff and recognised Trade Unions on this change to the service. This report will be discussed at our Directorate Consultation meeting with the Trade Unions on 5th June, and ongoing engagement will continue to ensure that we are working with staff across the service to make this new service a success.
6.1 There is a cost of investment associated with the introduction of food waste of £1.878m collection and disposal, which will also result in an on-going running cost.
6.2 The 2025/26 budget report agreed by full Council on 22nd February 2025 included recurring revenue pressure funding of £1.2m. In addition to this, DEFRA have committed to providing grant funding for the cost of transition of £0.678m, meaning a total revenue budget for 2025/26 of £1.878m is available to roll the introduction of food waste collection and disposal during 2025/26. The anticipated initial investment includes the hire of vehicles in the short term whilst vehicle acquisitions are completed, crews to man the rounds, cost of distributing the containers, installations costs and project management time. All of this is to be met from within the budget available.
6.3 Vehicle acquisitions for the collection of food waste and disposal are to be made through the council’s capital investment programme where budget of £2.444m has already been approved, procurement of those vehicles will be carefully managed to ensure that the investment is managed within the budget allocation. Funding for these will be met in full from the DEFRA capital grant already received, therefore there are no financing costs associated with the purchases.
6.4 This investment will require on-going revenue investment, which has been represented by the recurring £1.2m revenue pressure approved as part of the 2025/26 budget setting paper. On current estimates there may be a minor pressure arising from those costs which would need to be managed within the service budgets as part of the TBM monitoring process.
6.5 Financial monitoring of the investment will be undertaken via the councils TBM reports to Cabinet, which will provide an update if the there is a financial issue to address, this is applicable to revenue budget as well as the capital budgets.
Name of finance officer consulted: Craig Garoghan Date: 07/05/2025
7.1 Section 45 of the Environmental Protection Act 1990 places a duty upon a Waste Collection Authority to arrange for the collection of household waste in its area. Section 45A of the Environmental Protection Act 1990 (as amended by Section 57 of the Environment Act 2021) requires, with effect from 1 April 2026, all recyclable household waste to be collected separately from other household waste, for recycling or composting at least once a week.
7.2 The Waste (England and Wales) Regulations 2011 places a duty on Waste Disposal Authorities to ensure that waste which is collected separately is not later mixed with other material with different properties.
7.3 The recommendations in this report are in keeping with the above duties and powers.
7.4 In exercising the delegated authority to vary the Veolia disposal contract (such variations being necessary as a consequence of the changes to the Council collection services) it will be necessary to comply with the requirements of the relevant procurement legislation.
Name of lawyer consulted: Siobhan Fry Date consulted: 2/05/2025
8.1 An Equality Impact Assessment (EIA) for the introduction of food waste collections is currently underway and has identified a number of initial impacts across protected and disadvantaged groups. While the service is being introduced in line with statutory requirements, the Council recognises its responsibility to ensure that implementation is inclusive and accessible for all residents. The EIA will continue to be developed in consultation with the Equality, Diversity, and Inclusion (EDI) team and will be finalised ahead of full rollout.
Initial findings highlight that:
- Older people and disabled residents may experience physical barriers in using the new containers or presenting them for collection. The Council will offer Assistive Collections (Acs) to residents who need them and will ensure this service is promoted effectively.
- Residents with visual impairments, those using mobility aids or pushchairs may face difficulties with food caddies placed on pavements. Collection crews will be briefed, and operational design will consider safe placement of containers after the collection.
- Pregnant residents and carers of young children may encounter similar access and mobility concerns; inclusive service design and communication will aim to mitigate these.
- Residents from migrant or non-English-speaking backgrounds may require translated information or culturally sensitive engagement. Communications will include accessible formats and be available in multiple languages to ensure clarity on how to use the service.
- Low-income households may perceive cost barriers in purchasing compostable liners (although liners are not required). Messaging will clarify that liners are optional, and the use of paper or newspaper is permitted.
- Broader implications for intersectional and minoritised groups, such as those facing digital exclusion, insecure housing, or socio-economic disadvantage, are being considered. The Council will review ongoing feedback and complaints data to identify any further adjustments needed.
8.2 The EIA process will continue to inform service development, and any disproportionate impacts will be mitigated through operational measures, inclusive communications, and targeted support.
9.1 The sustainability implications of recycling dry mixed materials and food waste are well documented and contained within the body of this report.
10. Procurement implications
10.1 Vehicle acquisitions are to be made through the council’s capital investment programme where a budget of £2.444m has already been approved.
10.2 The [SF26] [RJ27] preferred route to market is to engage a procurement service called The Procurement partnership Limited Home - The Procurement Partnership (TPPL).. TPPL use the NEPO framework Fleet | NEPO which offers value for money and access to a nationally-available solution that provides all UK public bodies with a compliant route to market for the acquisition of heavy goods vehicles (HGV) and specialist vehicles. This nationally recognised compliant framework which was let under public contract regulations 2015 (PCR 2015), it is one of the leading compliant frameworks which allow for the direct award and mini competition under the fleet category. Enabling a complaint access to the fleet market accessing specialty Waste collection trucks.
10.3 The Procurement partnership limited (TPPL) will share the documents via the Delta e-sourcing portal, with the North Eastern Purchasing Organisation (NEPO) framework supplier cohort in a closed mini-competition, the tenderer submissions will be evaluated to determine the most economically advantageous tender(s) (MEAT) on the basis of the award criteria set out in the mini competition documents and a contract for the food waste vehicles will be awarded to the preferred winning bidder. Because this competition will be conducted under an existing NEPO framework the procurement is subject to Public Contract regulations 2015.
11. Crime & disorder implications:
11.1 Graffiti tagging remains a concern for public assets and the communal bins procured have been assessed and will include an anti-graffiti coating to minimise potential damage.
12.1 A phased approach to the introduction of the new service causes less disruption and affords the opportunity for learning before introducing the subsequent phases. This reduces the risk of service failure in too many areas where it might be possible to recover in a satisfactory timeframe and increased costs.
Supporting Documentation
[EC1]Nb do we need a recommendation agreeing to procure new vehicles? And to amend 3.14?
[RJ2]Liz - here is the procurement advice from James - Vehicle acquisitions are to be made through the council’s capital investment programme where a budget of £2.444m has already been approved. The procurement will be conducted by The Procurement partnership limited (TPPL) who will share the documents via the Delta e-sourcing portal, with the North Eastern Purchasing Organisation (NEPO) framework supplier cohort in a closed mini-competition, the tenderer submissions will be evaluated to determine the most economically advantageous tender(s) (MEAT) on the basis of the award criteria set out in the mini competition documents and a contract for the food waste vehicles will be awarded to the preferred winning bidder. Because this competition will be conducted under an existing NEPO framework the procurement is subject to Public Contract regulations 2015(PCR 2025).
[SF3]I understand the veolia contract has to be varied for the food waste transfer too - and all of this is subject to the agreement with Veolia.
I’ve deleted an actual approval to enter into the variation as Cabinet haven’t been provided with details of what the variations entail/ I understand it is all subject to negotiation (see my comments on the finance imps)
[SF4]By whom - was this approved by Cabinet somewhere?
[SS5]There was a news story and Cllr Tim Rowkins had announced it at the start of a cabinet meeting earlier this year.
[RJ6]I took an officer decision based on advice from Legal and Finance to introduce the service for a year. We now need to go back and extend it beyond a year.
[SF7]Is this just for residential collections - can it be made clear what collections this covers?
[SS8]Yes only domestic collections included in this report.
[SF9]Is Veolia doing the collection or the Council?
[SS10]BHCC will collect
[EC11]The recommendations states to the end
[SF12]“in place with Veolia”?
[SS13]We are in a joint disposal partnership with ESCC and Veolia.
[SF14]When and how will this be implemented - can this be explained how this will be achieved?
[SF16]What is the cost implication for the Council of this and the implications for the Veolia contract? This needs to be set out so Cabinet can understand what the impact is of agreeing to this further recycling and utilising the Veolia Contract. Is a contract variation with Veolia required and what are the implications of this (any cost implications?)
[SS17]Craig to include something on this.
[SF18]Is this the subject of another report or does the approval to procure for these need to be covered by this report?
[SS19]It’ll be covered in this report and recommendations will be updated once we have a bit more information from procurement colleagues.
[SF20]Use?
[SF21]Can this be done under the current Veolia contract which is in place until 2033? Can it be clarified in the report?
[SS22]It can under the current terms but linked to contract variation - ESCC to clarify
[JG23]Will we monitor the smell for any changes? Can we say something about our learning approach to this?
[SF24]I am conscious we have no real details for members of what the implications (primarily I would think, costs) of the variations to the Veolia contract are going to be and what the budget is going to be for that variation - and this is also still subject to negotiation with Veolia - is there any way of adding some extra text which at least gives a budget envelope (without giving away our negotiating position, I know it’s too late for an exempt appendix)? - my understanding is that it is likely to be around a £2.3 spend overall but there may be other capital costs to add?
[RJ25]Siobhan the disposal costs and indeed income from compost will be handled through the waste pfi and don’t fall directly on general fund.
[SF26]Have amended as it is the Council has to be satisfied that this is the best route. (as per our e-mail correspondence)
[RJ27]Thanks