Corporate report

Progress report on recycling and recovery targets for England 2020

Published 5 January 2022

Applies to England

Executive summary

This report provides an update on progress towards several recycling and recovery targets in England. Although progress has been made on recycling, England has not met the target to recycle 50% of 'waste from households' by 2020. In 2020, the 'waste from households' recycling rate was 44.0%, down from 45.5% in 2019.

This decrease reflects the impact the COVID-19 pandemic. Total 'waste from households' increased to 22.6 million tonnes in 2020 from 22.1 million tonnes in 2019, as people spent more time at home due to lockdowns.

Alongside this, the total amount of recycled 'waste from households' decreased by 1.2% due to service disruptions, for instance the closure of Household Waste and Recycling Centres (HWRCs).

The 2020 non-hazardous waste construction and demolition target of 70% recovery has been achieved. In 2018, the recovery rate was 93.8%. We will publish the 2019 and 2020 data on non-hazardous construction and demolition waste (including recovery rate) once the information is available.

Regarding future targets on municipal waste recycling rates, the municipal waste indicator is under development. Local authority collected waste is used as a proxy. In 2020 to 2021, 41.4% of local authority collected waste was recycled.

Context

As part of its commitment on environmental standards and reporting, the UK government is committed to publish a progress report for England by January 2022 regarding certain targets set out in Article 11(2) of the Waste Framework Directive 2008. The commitment was enacted through the Waste (Miscellaneous Amendments) (EU Exit) Regulations 2019. The targets are:

  • by 2020, the preparing for re-use and the recycling of waste materials such as at least paper, metal, plastic and glass from households and possibly from other origins as far as these waste streams are similar to waste from households, shall be increased to a minimum of overall 50% by weight
  • by 2020, the preparing for re-use, recycling and other material recovery, including backfilling operations using waste to substitute other materials, of non-hazardous construction and demolition waste excluding naturally occurring material defined in category 17 05 04 in the list of waste shall be increased to a minimum of 70% by weight
  • by 2025, the preparing for re-use and the recycling of municipal waste shall be increased to a minimum of 55% by weight
  • by 2030, the preparing for re-use and the recycling of municipal waste shall be increased to a minimum of 60% by weight
  • by 2035, the preparing for re-use and the recycling of municipal waste shall be increased to a minimum of 65% by weight

Waste from households

Progress on recycling rate

'Waste from households' is the official recycling measure used as the basis for reporting at a harmonised UK level. It excludes waste not collected directly from households, such as street bins and street sweepings.

See Annex 1 of this report for further information about the 'waste from households' calculation methodology.

In England, the 'waste from households' recycling rate increased from 41.2% in 2010 to 45.5% in 2019. Recycling rates for England are published annually and a year in arrears. The 2020 recycling rate for England was published in December 2021: Local authority collected waste management - annual results.

In 2020, the 'waste from households' recycling rate was 44.0%, meaning that the 50% target has not been met. This reflects the impact of the COVID-19 pandemic on recycling systems, particularly due to lockdowns and other restrictions.

Overall, in 2020, total 'waste from households' increased to 22.6 million tonnes from 22.1 million tonnes in 2019. This is equivalent to 399kg per person, up from 392kg per person in 2019, an increase of 1.8%. This increase is most likely due to the COVID-19 pandemic, as people spent more time at home due to lockdowns.

The amount of residual waste treated was 12.6 million tonnes, up from 12 million tonnes in 2019, an increase of 5.1%. Residual waste accounted for 55.7% of total 'waste from households'.

The total amount of 'waste from households' recycled decreased. In 2020, it was 9.9 million tonnes, down from 10.1 million tonnes in 2019. This was a decrease of 1.2%. This decrease is most likely due to service disruptions caused by the COVID-19 pandemic.

During the first lockdown which began on 23 March 2020, some local authorities were unable to maintain collections of dry recyclates, there were suspensions of garden waste collections and widespread closure of Household Waste and Recycling Centres (HWRCs). This was due to staff shortages and the introduction of changes to working practices.

Recycling collected at HWRCs usually makes a significant contribution to overall recycling tonnages from households. As a result of the HWRC closures and limited reopening, tonnages of organics and dry recycling collected at HWRCs were around 0.8 million tonnes lower in 2020.

Figure 1 shows the impact of widespread HWRC closures during April to June 2020, which was the first period of national lockdown. HWRC residual waste fell by 58% compared to April to June 2019, dry recycling by 65% and organics fell by 59%.

Figure 1: Quarterly tonnages of Household waste deposited at HWRCs during April 2018 to March 2021

Figure 1 is a line chart to show the quarterly tonnages of household waste deposited at HWRCs in England for April 2018 to March 2021. The horizontal axis runs from April to June 2018 to January to March 2021. The vertical axis shows the collected tonnage and runs from 0 to 800,000 tonnes. It shows the impact of widespread HWRC closures during April to June 2020, which was the first period of national lockdown.

Despite the impact of the COVID-19 pandemic on some waste services, there was a large increase in dry recycled waste collected kerbside from households which helped to offset the impact of HWRC closures (see Figure 2). Dry recycled waste accounted for 59.1% of the recycled 'waste from households' in 2020.

The tonnage of dry recycling, which includes paper and card, glass, plastic, waste electrical and electronic equipment (WEEE), and scrap metals including those reclaimed from incinerator bottom ash, as well as other materials remained at around 5.9 million tonnes in 2020. However, as a proportion of total 'waste from households', it was still down from 2019 at 26.0%.

Figure 2: Quarterly kerbside collections from Household by waste stream April 2018 to March 2021

Figure 2 is a line chart to show the quarterly kerbside collection tonnages by waste stream in England for April 2018 to March 2021. The horizontal axis runs from April to June 2018 to January to March 2021. The vertical axis shows the collected tonnage and runs from 0 to 3,500,000 tonnes. It shows large increases in the quantity of waste collected kerbside from households.

From Figures 1 and 2, it is also evident that the amount of organic waste collected separately from kerbside and HWRCs for recycling decreased overall in 2020.

Separately collected food waste actually rose by 11.0% in 2020, to 485,000 tonnes in 2020 from 437,000 tonnes in 2019. However, it remained only a small proportion of total 'waste from households,' at 2.2%.

Garden waste tends to be heavier than other waste materials, and therefore accounts for a relatively large proportion of overall waste. In 2020, other organic waste, which includes green garden waste and mixed garden and food waste, accounted for 15.8% of total waste in England in 2020, compared to 17.0% in 2019.

As well as the closure of HWRCs during the COVID-19 pandemic, many local authorities reported the suspension of garden waste collections due to prioritisation of other more critical services. It is likely that some of this organic waste may have been put into the residual waste stream.

The tonnage of other organics recycled decreased by 0.2 million tonnes or 4.4% to 3.6 million tonnes in 2020. This decrease has the impact of decreasing the overall recycling rate by around 0.7 of a percentage point.

Note that the generation of garden waste is highly seasonal, increasing sharply and pushing up recycling rates in the spring and summer months. For this reason, comparisons should be made with the same quarter in previous years or using full 12 month periods.

However, it should be remembered that in 2020 and 2021 this seasonal effect is obscured by COVID-19, particularly in the period from April to September.

Figure 3 illustrates the overall 'waste from households' composition in England from 2016 to 2020.

Figure 3: Waste composition: Waste stream proportions as a percentage of total 'waste from households', 2016 to 2020, England

Figure 3 is a stacked bar chart showing the waste from households waste stream proportions for the past five years. The horizontal axis runs from years 2016 to 2020. The vertical axis show the percentage of waste from households and runs from 0% to 100%. Total waste from household is broken down into the proportion of separately collected food waste, other organics, dry recycling, and residual waste. In 2020, 2.2 per cent was separately collected food waste, 15.9 per cent was other organics, 26.1 per cent was dry recycling, and 55.9 per cent was residual waste.

Notes

  • residual waste includes residual 'waste from households' regular collections (black bags), bulky waste, residual waste from civic amenity centres, and rejects from recycling. It excludes waste diverted for recycling from residual waste
  • dry recycling includes paper and card, glass, plastic, waste electrical and electronic equipment (WEEE), scrap metals including those reclaimed from incinerator bottom ash as well as other materials
  • other organics includes green garden waste, mixed garden and food waste, wood for composting and other compostable waste
  • numbers may not add to exactly 100. This is due to rounding

Dry recycling composition

Figure 4: 'Waste from households' dry recycling composition, England, 2016 to 2020 (in thousand tonnes)

Figure 4 is a stacked bar chart to show dry recycling composition over the past 5 years, broken into the tonnes that each material has contributed to the total tonnage of dry recycling. The horizontal axis runs from years 2016 to 2020. The vertical axis shows the amount of waste recycled in 1,000 tonnes and runs from 0 to 6,000. The following materials are shown: textiles, IBA metal, metals, plastic, WEEE and other scrap metals, other materials, glass, and paper and card. Plastics increased by 26,000 tonnes, metals by 21,000 tonnes and glass 209,000 tonnes (17 per cent) in 2020.

Notes

  • other materials includes batteries (both automotive and post-consumer), bric-a-brac, chipboard and MDF, composite food and beverage cartons, composite wood materials, fire extinguishers, furniture, ink and toner cartridges, mattresses, mineral oil, paint, tyres (cars, large vehicles, vans and mixed tyres), vegetable oil, video tapes, DVDs and CDs, wood, and other

Figure 4 shows the composition of 'waste from households' dry recycling in England from 2016 to 2020. It is noticeable that in 2020, despite disruption to kerbside collection services, there were some large increases in the tonnage of materials recycled as lockdown increased consumption of food and drink at home.

Plastics increased by 26,000 tonnes or (5.2%), metals by 21,000 tonnes (8.4%), and glass 209,000 tonnes (17%). Paper and card decreased very slightly by 5,000 tonnes ( decreased by 0.2%).

The extensive closure of HWRCs and charity shops in 2020 due to the COVID-19 pandemic had a notable negative impact on recycling of WEEE and textiles.

Next steps

The UK government is committed to implementing reforms to our recycling system in England to make progress on our recycling rates. The 2018 Resources and Waste Strategy sets out the government's ambitions for higher recycling rates, increased resource efficiency and a more circular economy in England.

To achieve this, we want to make recycling easier and ensure that there is a comprehensive, consistent service across England. As part of the Resources and Waste Strategy, Defra launched 3 major reforms designed to improve recycling rates, through:

  1. improving consistency in household and business recycling collections in England
  2. a Deposit Return Scheme for drinks containers in England, Wales and Northern Ireland
  3. reforming the UK packaging producer responsibility system through Extended Producer Responsibility for Packaging

These reforms together make up the Collection and Packaging Reforms which will reduce confusion around recycling, provide higher quality recyclate for reprocessors, increase recycling rates and reduce unnecessary and difficult-to-recycle packaging.

Furthermore, the 2021 Net Zero Strategy outlined our commitment to explore options for the near elimination of biodegradable municipal waste to landfill from 2028.

Rolling out separate weekly food waste collections for households will significantly impact overall recycling rates in England.

To achieve this, we will provide £295 million of funding by 2025 to enable local authorities in England to prepare to introduce separate food waste collections for all households.

Consultations on each of the Collection and Packaging Reforms were held in 2021. The government response to each consultation, which will include further detail on policies and implementation plans as well as final impact assessments, will be published in early 2022.

Non-hazardous construction and demolition waste

Progress on recovery rate

For non-hazardous construction and demolition waste, the most up-to-date recovery rate available is from 2018 (published in 2021). The UK government is awaiting data in order to calculate the 2019 and 2020 recovery rate.

We will publish the 2019 and 2020 data on non-hazardous construction and demolition waste (including recovery rate) once the information is available. Data for non-hazardous construction and demolition waste in England is published every 2 years.

In 2018, England generated 61.4 million tonnes of non-hazardous construction and demolition waste, of which 57.5 million tonnes was recovered. This represents a recovery rate of 93.8%, exceeding the target of 70%.

The recovery rate from non-hazardous construction and demolition waste has remained at similar levels from 2010 to 2018.

See table 1 for data on the recovery and backfilling of non-hazardous construction and demolition waste in England from 2010 to 2018. Note that backfilling is a form of recovery and so the tonnages are listed separately as well as included in the recovery data.

Table 1: Recovery rate from non-hazardous construction and demolition waste, England, 2010 to 2018

Category 2010 2011 2012 2013 2014 2015 2016 2017 2018
Generation 53,628 54,913 50,491 51,685 55,902 57,734 59,650 62,187 61,376
Total from Recovery 49,444 50,768 46,438 47,558 51,679 53,266 54,958 57,867 57,546
Recovery (backfilling) 620 535 661 860 1,114 584 424 375 353
Recovery rate (per cent) 92.2% 92.5% 92.0% 92.0% 92.4% 92.3% 92.1% 93.1% 93.8%

Notes

  • excludes excavation waste
  • percentages calculated using unrounded figures

Annex III of the recycling Decision requires the UK government to report how this data has been calculated if using our own reporting system: see Annex 2 of this report for information on this.

Next steps

As outlined in the Resources and Waste Strategy, although the construction sector has already made considerable progress in increasing resource efficiency, there is considerable scope for further improvement.

The forthcoming revised Waste Prevention Programme will set out a number of actions for improving resource efficiency in the construction area, working with industry and other UK government departments.

Municipal waste

Progress on recycling rate

In respect of the targets for municipal waste recycling rates for the years 2025, 2030 and 2035, the municipal waste indicator is currently under development. In order to provide detail of the progress made towards these targets, local authority collected waste is used as a proxy.

Local authority collected waste is a slightly narrower measure than municipal waste but broader than 'waste from households', as it incorporates non-household local authority collected waste, including from commercial and industrial sources.

For further detail, see Annex 1 of Local authority waste statistics – recycling measures on GOV.UK.

Figure 5 illustrates the management of local authority collected waste and recycling over time.

Total local authority collected waste in England in the financial year 2020 to 2021 was 25.9 million tonnes, up by 0.3 million tonnes (1.3%) from the financial year 2019 to 2020. The amount of local authority collected waste sent for recycling in the financial year 2020 to 2021 was 10.7 million tonnes, down 0.2 million tonnes from the financial year 2019 to 2020.

Therefore, waste sent for recycling comprised 41.4% of all local authority waste, a decrease of 1.5 percentage points from the financial year 2019 to 2020.

Similarly, to the 'waste from households' recycling rate, this decrease reflects disruption to recycling collections and HWRCs, and increases in residual waste caused by the COVID-19 pandemic and lockdowns.

Figure 5: Management of all local authority collected waste and recycling rates, England, 2000 to 2001 to 2020 to 2021

Figure 5 is a bar chart to show the tonnage of local authority collected waste sent to landfill, incineration with energy recovery, incineration without energy recovery, recycling, and other for the years 2000 to 2001 to 2020 to 2021. It also shows the waste from households recycling rate and the household waste recycling rate before 2010 to 2011. The horizontal axis runs from years 2000 to 2001 to 2020 to 2021. The left vertical axis shows the amount of waste recycled in million tonnes and runs from 0 to 35. The right vertical axis shows the recycling rate and runs from 0% to 50%. It shows that the proportion of local authority collected waste sent to landfill has decreased significantly since 2000 to 2001, and the proportion sent to incineration with energy recovery has significantly increased.

Notes

  • * incineration with energy recover or without energy recovery includes incinerator bottom ash (IBA) and metals from IBA. This is consistent with the existing definition for household waste recycling so is not impacted by the change in 'waste from households' recycling definition
  • ** other includes waste treated or disposed of through other unspecified methods as well as process and moisture loss
  • *** the household waste recycling rate is based on a broader measure of waste and is not directly comparable to the 'waste from households' recycling rate
  • IBA metals are included within the 'waste from households' recycling rate shown on this chart from April 2015 to 2016 onwards but is not included in household waste recycling

Next steps

The indicator for municipal waste recycling rate is under development and will be published in due course. In line with our Resources and Waste Strategy commitment, the Waste (England and Wales) Regulations 2011 were amended to contain a requirement that the UK government include in the waste management plan for England measures to be taken to ensure that 65% of municipal waste is prepared for re-use or recycled by 2035.

Annex 1: waste from households calculation methodology

The recycling rate is calculated according to method 3 as listed in Annex I to the recycling Decision (as amended by SI 2019/620). A more detailed explanation of the methodology is available on the Local authority collected waste management - annual results page on GOV.UK.

See table 2 for a list of materials that are included in the 'waste from households' calculation.

Table 2: Municipal waste materials and relevant sources for calculation methods 1, 2 and 3 of Annex I to the recycling Decision, relevant cells are marked with 'yes'

Waste materials List of Waste code Com. Dec. 2000/532/EC Generated by households Generated by small enterprises Generated by restaurants, canteens Generated by public areas Generated by others (please specify)
Paper and cardboard 20 01 01, 15 01 01 Yes        
Metals 20 01 40, 15 01 04 Yes        
Plastic 20 01 39, 15 01 02 Yes        
Glass 20 01 02, 15 01 07 Yes        
Biodegradable kitchen and canteen waste 20 01 08 Yes, but does not include home composting        
Biodegradable garden and park waste 20 02 01 Yes, but does not include home composting        
Non-biodegradable garden and park waste 20 02 02, 20 02 03 Yes        
Wood 20 01 38, 15 01 03 Yes        
Textiles 20 01 10, 20 01 11, 15 01 09 Yes        
Batteries 20 01 34, 20 01 33* Yes        
Discarded equipment 20 01 21*, 20 01 23*, 20 01 35*, 20 01 36 Yes        
Other municipal waste 20 03 01, 20 03 02,20 03 07, 15 01 06 Yes        
Municipal waste not mentioned above (please specify)   Rubble, soil and plasterboard generated by households are excluded as these are considered to be generated by the construction industry.

The following are excluded from the household measure:

separately collected healthcare waste

beach cleansing

street cleaning and gully emptyings

asbestos

fly-tipped materials

street bins
       

Annex 2: recovery rate calculation methodology

Accurately quantifying construction and demolition waste is challenging and whilst the absolute tonnage figures are subject to a relatively high level of uncertainty, sensitivity analysis suggests there is not a significant impact on the final recovery rate. Whilst efforts were made to synchronise approaches across UK countries, methodologies are not identical.

The England methodology was originally devised in conjunction with industry. Estimates are dependent on several key assumptions relating to the role of permitted sites, simple registrations and the volume of aggregate production.

Within the UK, some construction and demolition waste is transferred across borders for treatment, primarily into England. This may slightly inflate the England recovery rate and deflate rates for Devolved Administrations.

To calculate the non-hazardous construction and demolition waste recovery rate, we include all chapter 17 codes except for those relating to soils and dredging spoils (as well as relevant chapter 19 codes).