Circular11/91 (DepartmentoftheEnvironment) Circular34/91 (WelshOffice) Circular18/91 (ScottishOfficeEnvironmentDepartment) JointCircularfromthe DepartmentoftheEnvironment 2MarshamStreet, LondonSWIP3EB WelshOffice CathaysPark, CardiffCFl 3NQ ScottishOfficeEnvironmentDepartment 27PerthStreet,EdinburghEH3 5RB My 24 1991 ControlofPollution(Amendment)Act1989 The Controlled Waste (Registration ofCarriers and Seizure of Vehicles)Regulations1991 1. We are directed by the Secretary of State for the Environment, the SecretaryofState—forWalesandtheSecretaryofStateforScotlandtodraw yourattentionto: (a) TheEnvironmentalProtectionAct1990(CommencementNo.8) Order1991(S.1.1991No.1319(C.36); (b) The Control of Pollution (Amendment) Act 1989 (Commencement)Order1991(S.1.1991No.1618(C.43));and (c) TheControlledWaste (RegistrationofCarriersandSeizureof Vehicles)Regulations1991(S.1.1991No.1624). 2. CopiesoftheS.1.mentionedinparagraph1(a)weredistributedinEngland andWaleson17June1991.CopiesoftheS.I.smentionedinparagraph1(b) and(c)areenclosedforwasteregulationauthorities. Introduction 3. TheControlofPollution(Amendment)Act 1989(“rfte1989Act”)and 1 PrintedimagedigitisedbytheUniversityofSouthamptonLibraryDigitisationUnit - The ControlledWaste(RegistrationofCarriers andSeizure ofVehicles) Regulations1991{'‘theregulations'’)havetwomainfeatures.Theseare:— (a) theregistrationofcarriersofcontrolledwaste^;and (b) aprocedurewhichenablesawasteregulationauthoritytoapply forawarranttoseizeavehiclewheretherearereasonablegrounds forbelieving that ithas been used in the illegal disposal of controlledwaste(fly-tipping). 4. Theregistrationofcarriersisanintegralpartofthedutyofcare,whichwill beimpostbysection34(1)oftheEnvironmentalProtectionAct1990{“the 1990Act”),Amongothermatters,section34(l)(c)ofthe1990Actwillrequire miyonetowhomthedutyofcareappliestosecurethatanycontrolledwaste istransferredonlytoan“authorisedperson.”Aregisteredcarrier,oraperson whoisexemptfromregistration,willbeanauthorisedpersonforthepurpose ofthedutyofcare.RegistrationalsogiveseffecttoArticle12ofCouncil Directive91/156/EEConwastewhichrequiresundertakingswhichcollector transportwasteonaprofessionalbasistoberegistered. 5. Thepurposeoftheprocedureunderwhicharegulationauthoritymay applyforawarranttoseizeavehicleistoaidthedetectionandprosecutionof thoseinvolvedinfly-tipping.Theprocedureisnotconcernedwiththepunitive (X3iifiscationofvehicles.Anauthoritywillberequiredtoreturnavehicletoa claimantwhosatisfactorilyestablisheshisentitlementtoit.However,oncethe 7ba.eutttheorriptlyacheadvteoeasstcaebrltiasihnedthtehaitdepnetristoyno’fstehnetiptelresmoenntustihnegytwhilelvbeehiccolneswihdeernabthley fly-tippingoccurred.Thisprocedurewillbecomplementedinduecourseby the implementation ofsection 33(5) ofthe 1^0 Actwhich will extend responsibilityfortheillegaldisposalofwaste. c6.onGtuaiindeadncinetohneAtnhneerxeeqsuitoretmheinstCsirocuflatrh.eT1h9e8s9eAacrte:a—ndtheregulations is Annex1:Theregistrationofcarriersofcontrolledwaste; Annex2:Theseizureanddisposalofvehicles;and Annex3:Furtherenforcementprovisions. Timetableforimplementation The1989Actisbeingbroughtintoforceinthreestages: (a) StageOneconsistsoftwophasesandprovidestheframeworkfor pthheasiemplceommepnrtiasteisonTohfetheEn1v9i8r9oAncmtenatnadlthPerroetgeucltaitoinonsA.cTthe1f9ir9s0t May1991mostoftheamendmentsmadberotougthhtei1n9t8o9foArccteobvn para^aph31ofSchedule15tothe1990Act.Theseamendments ThrexSptionsarT^^ accountinthedraftingoftheregulations. (1) paragraph31(4)(b)ofSchedule15tothe1990Actwhich cameintoforceon 1January 1991byvirtueofsections 2 ^paragraphs1.7-1.9. 2 PrintedimagedigitisedbytheUniversityofSouthamptonLibraryDigitisationUnit 164(2)and162(1)ofthatAct.ITieeffectofthisamendment istoomitsection7(2)(b)ofthe1989Act(seeparagraph3.3 below);and (2) paragraphs31(5)(a)and(6)ofSchedule15tothe1990Act which relate to the definition of controlled waste (see paragraphs1.7-1.9below); (b) The second phase comprises The Control of Pollution (Amendment) Act 1989 (Commencement) Order 1991^ which broughtintoforceon16July1991thoseprovisionsofthe1989Act necessary to enable the Secretaries of State to make the regulations; (c) Stage Two will bring into force on 14 October 1991 the outstanding provisionsofthe 1989 Act otherthanthe offence provisionsofsections1and5.Theregulationswillalsocomeinto forceon14October1991.Thebroadeffectofimplementingthese provisionsandtheregulationswillbetorequireeachregulation authoritytoestablishandmaintainaregisterofwastecarriers;to allowcarrierstoapplyforregistration;andtoenableregulation authoritiestoinitiatetheproceduresleadingtotheseizureofa vehicle;and (d) Stage Three will bringinto forceon 1 April 1992the offence provisions of sections 1 and 5 and will complete the implementationofthe1989Act.Thebroadeffectofimplementing theseprovisionswillbetomakeitanoffenceforanypersonto transportcontrolledwasteinthecourseofhisbusiness,orinany otherwayforprofit,withoutbeingregistered;andacarrierniay bestoppedandrequiredtoproducehisauthorityfortransporting controlledwaste.TheSecretariesofStatealsoproposetobringthe dutyofcareintoforceon1April1992. Co-ordinatedlocalauthoritydatabaseofwastecarriers 8. Eachcarrierwillberequiredtoregisterwithonlyoneregulationauthority and,onacceptanceofhisapplication,hisregistrationwillbevalidthroughout Great Britain. This means that circumstances may arise in which it is necessaryforregulationauthoritiestoexchangeinformationheldontheir individualregisters.Thepracticaleffectofsection7(2)ofthe1989Actisto facilitatetheestablishmentofarrangementsfortheexchangeofinformation betweenregulationauthorities,orbetweenregulationauthoritiesandother localauthorities,forthepurposeofcarryingouttheirfunctionsunderthe 1989 Act and the regulations (see paragraph 3.3 below). This provision complementsauthorities’generalpowerstodothingswhicharecalculatedto facilitate,orareconduciveorincidentalto,thedischargeoftheirfunctions. 9. TheLocalAuthorityAssociations'^haveestablishedasteeringgroupknown as CLADWAC^ to co-ordinate the arrangements for the exchange of information. Acentral featureofthesearrangementswillbe anational, co- ordinateddatabaseofwastecarriers.IntheviewoftheSecretariesofState, 5TS.h1.e1o9r9g1anNios.ati1o6n1s8r(eCp.r4e3s)e.ntedonCLADWACaretheAssociationofCountyCouncils,The AssociationofMetropolitanAuthorities,TheCouncilofWelshDistricts,TheConventionof ScottishLocalAuthoritiesandtheLondonWasteRegulationApthority. *Co-ordinatedLocalAuthorityDatabaseofWasteCarriers. 3 PrintedimagedigitisedbytheUniversityofSouthamptonLibraryDigitisationUnit « byauthoritiesintheco-ordinateddatabasewillhelptoensurethe andeffectiveofKrationofcarrierregistrationandisthereforetobe commetided.Withthisaiminview,thelevelofchargessetforapplicationsfor regfctrationrecognisesthatauthoritiesmayconsideritappropriatetoconsult t!«databaseaspartoftheirconsiderationofapplications(seeparagraph1.23 tetow).RegulationauthoritiesshouldcontacttheappropriateLocalAuthority A»odatlonforfurtherinformationabouttheco-ordinateddatabase. Fmmcmlandmanpowerimplications 10. Intheirpreparationoftheregulations,theSecretariesofStatehavebeen mliidfiil of the implications for regulation authorities’ expenditure and manpower.Theregulationshavebeendesignedtoensurethattheregistration operateeffectivelybutdoessowithoutimposingunnecessaryadditional sI1le^9t^rf^^dmemmnresSenc^o»tttnrslaartnoeidng,oun1ml3asathdDioeeounclcedlaembuabterhetrorehraeil1tvi9isie9tse0i.wciaonTnfhEdtenhsgehlcSooaeunnclsrddueltfatuanalrdltiyieWomsannelfeepStsat,aaputeaterhnotdrhiias1tts7iuteeDhsde’ecccbhoeysamtrbsgteeihrsne apphcarions.Thechargeswhichhavenowbeenset(seeparagraphs ^L22o--n1.m24bmelao^w)areintendedtofiilfiltheseobjectivesandtakeaccountofthe oOtTrtehgoisnttraetwioinlabnetdroreeqtguhiiesrtecedromteonutlmrtiaaekst.eiorneaesxoenrcaibslee.cIhnargaedsdiftoirocnoptioesthoefsceerctihfaircgaetse,s MRSLACSIMJTCOCK,AssistantS\ejrcrrwje.tary ECREAVLEY,AssistantSecretary DM[TIMLIN,SeniorPrincipal iWrfct«|Has*C«w*kSo^sd Lw*a Ctow* TitTmmofCthMe&,fcQ$oyfofLootkm TieU»doaWMteR^tkmAutimky TheMemyside ReWgiMitkteioRo^AIaaAlokriwiyAath(»ity P>OEI£Q/5iW5| [SOEnDWPB/1/136J fWOWEP/12/3/71] 4 PrintedimagedigitisedbytheUniversityofSouthamptonLibraryDigitisationUnit :: 9 CONTENTS Paragraphs ANNEX1 TheRegistrationofCarriersofControlledWaste Introduction 1.1 Therequirementtoregister 1.2-1.6 Controlledwaste 1.7-1, Exemptionfromregistration 1.lO Registers 1.11-1,12 Applicationsforregistration 1.13-1,26 Refusalofapplicationsforregistration l.27-1.29 Groundsforrefusalofanapplicationforregistration 1.30-1.47 ARemgeinstdrmaetinotnoasfraegciasrtreirerentries 11..4585--11..5546 Changeofcircumstancesandregistrationofadditional partners 1.57-1.63 Copiesofcertificatesofregistration 1.64-1.65 Revocationofregistration 1.66-1.68 Durationofregistration 1.69-1.79 DAlutteyrattoiornetoufrnrecgeirsttiefrictaotersefeltecctcessationofregistration 11..8801 Productionofauthority 1.82-1.89 Appeals L90-L94 Timelimitforbringinganappeal 1.95 Hearings 1.96 Notificationofdetermination 1.97-1.98 Table1.1 Considerationofapplicationsforregistration(Diagram ofprocedureinreachinga decisionontherefusal of registration) Table1.2: Theprescribedoffences Table1.3: RehabilitationofOffendersAct 1974-Rehabilitation periods Table1,4: Thecontentsoftheregisterofcarriers Table1.5 Circumstancesinwhichregistrationceasestohaveeffect ANNEX2 TheSeizureandDisposalofVehicles Introduction 2.1 Thepurposeofsection6 2.2-2.7 Prescribedinformation 2.8-2.9 Prescribedstepsbefore applyingforawarrantto seize V^opeity 2.10-2.15 Removalofvehiclesseized 2.16-2.19 Returnofpropertyseized 2.20-2.24 Disposalofpropertyseized 2.25-2.28 Noticeofdisposalofavehicle 2.29-2.30 Applicationofproceedsofsale 2.31-2.33 Serviceofdocuments 9qa 5 PrintedimagedigitisedbytheUniversityofSouthamptonLibraryDigitisationUnit ANNEX3 FurtherEnforcementProvisions 3.1-3.8 6 PrintedimagedigitisedbytheUniversityofSouthamptonLibraryDigitisationUnit — ANNEX 1 THEREGISTRATIONOFCARRIERSOFCONTROLLEDWASTE Introduction 1.1 ThepurposeofthisAnnexistoexplaintheprovisionsmadeinthe1989 Actandtheregulationsfortheregistrationofcarriersofcontrolledwaste. Theseprovisionsarecontainedinsections1-5ofthe1989Actandregulations 2-18.Subsequentreferencestosectionsarereferencestosectionsofthe1989 Actunlessindicatedotherwise.AndsubsequentreferencestotheSecretaryof State should be read as references to the Secretary of State for the Environment,theSecretaryofStateforWalesandtheSecretaryofStatefor Scotland,unlessindicatedotherwise. Therequirementtoregister 1.2 Therequirementtoregisterarisesfromsection1(1)whichprovidesthat, subjecttotheprovisionssetoutinsubsections(2)-(6),itisanoffence^forany personwhoisnotaregisteredcarriertotransportcontrolledwastetoorfrom anyplaceinGreatBritaininthecourseofanybusinessofhisorotherwisewith aviewtoprofit.Section9(1)providesthat:— “transport”includesthetransportofcontrolled.wastebyroad,rail,air, seaorinlandwaterwaybutdoesnotincludemovmgitfromoneplaceto anotherbymeansofanypipeorotherapparatusthatjoinsthosetwo places;and “controlledwaste”hasthesamemeaningasinPartIoftheControlof PollutionAct1974,whichincludesregulationsmadeundersection30(4) ofthatAct(seeparagraphs1.7-1.9below). 1.3 Itshouldbenotedthattherequirementtoregisterappliesto'*anyperson” anddoesnotrelatetothevehiclewhichthatpersonmayuseto transport controlledwaste.Forexample,apersonmayneedtoapplyforwastecarrier registrationevenifheoperatesavehicleoflessthan3.5tonnesanddoesnot needanoperator’slicenceundersection60oftheTransportAct1968.Forthe purposeofsection1,“aperson”mayincludeabodycorporate,amemberof apartnershiporaself-employedperson.Asabodycorporate,eachcompany inagroupofcompaniesisapersonforthepurposesofsection1 andeach company must separately applywhere necessary for registration. In the Departments’view, itwillnotbe possible for a company to relyon the registration of another company in the same group as authority for transportingcontrolledwaste. 1.4 Section1(2)providesthat apersonisnotguilty ofan offence under section1inrespectof: (a) thetransportofcontrolledwastebetweendifferentplaceswithin thesamepremises; ®Asindicatedinparagraph7(d)oftheCircular,theoffencecreatedbysection1(1)willcomeinto forceon1April1992. 7 PrintedimagedigitisedbytheUniversityofSouthamptonLibraryDigitisationUnit (b) thetransporttoaplaceinGreatBritainofcontrolledwastewhich hMadsibseenontblraonudgehdtifnrGormeaatcoBurinttariynournttielrrititaorrryivoeustsatidtehaGtrpelaatceB.riTthaaitn IS to say,where controlledwasteis beingimported, section 1 appliesonlyfromthepointatwhichitislandedinGreatBritain: ^ GreatBnSn^^ controlledwastebeingexportedfrom a1.g5ainSsetctaiopner1s(o4n)fporroavindoefsfecnecretauinndederfseenccteisonwh1.eTrheepsreoacreeed:i—ngs arebrought (a) rdwtheeaats^toletaghdihevomewnna,ssaeutratetshiwoosranios1to(ytn6r)ianaanssnwpdhpoorrmsateceeatdinacisranebaaalneniyteacomfictecrerucrgruremiesntdtc.ayonc“cocEefusmrwreihernidgw,cehhnitccnooyht,”tihciieens worasatreetgoisbteerter^daonefrsaedprnomaeromrtva;eegdeofrrtoroemtdhouenceeenvpailnraycoesnemtreoinoatun,soitdthaiesnrgneewcriettshosoaturhtyetfphouerbultsiheec reasonablegroundsforsuspecting wthce«tKhaeUristuwcahsstceopnstraotslrlaietndswpwaoasrsttreee;dawsooarnsacbolnettrooUteadkewafsotreaaasscncedernttaahiauntuinhngeB (c) thatheactedunderinstructionsfromhisemployer. s^^°fc pro-videsthatthepenaltyforcommittinganoffenceunder Stods^e 5 onthe Controlledwaste cOoTm^meerrcaiaallwwaasstteewaorireiaduenwfyiwnsueudchiwnawssaeiscettei.onTm3he0ea(n3t)seromfnstohuhesoeu1hs9oe7lh4do.Alcdt,,inidnudsutsrtirailalannnHd Stet^o «^®fi™honoffcontro“lledwaste“b*y“prescribingStehcartetcearrtyaionf household,iidustiialo?co^?,S W4aS- ^ ®regulationshavebeenmadeundersection30(4)ofthe (a) Control of Pollution (Licensing of Waste (Scotland)Regulations1977(S.1.1977No.2006); ^I.198?No“ R^gnlntions1987 8 PrintedimagedigitisedbytheUniversityofSouthamptonLibraryDigitisationUnit (c) TheCollectionandDisposalofWasteRegulations1988(S.1.1988 No.819)^;and (d) TheControlofPollution(LandedShips’ Waste)(Amendment) Regulations1989(S.1.1989No.65). 1.9 Regulationswillbemadeinduecourseundersection75(8)ofthe1990 Actextendingthedefinitionofcontrolledwasteinsection75(4)ofthatAct. TheSecretaryofStatethenproposestobringintoforcetheamendmentsmade tothe1989Actbyparagraphs31(5)(a)and(6)ofSchedule15tothe1990Act. Exemptionfromregistration 1.10 Section1(3)empowerstheSecretaryofStatetomakeexemptionsfrom therequirementtoregister.Regulation2(1)setsouttheexemptionswhichthe SecretaryofStatehasdecidedtoprovide.Theseare:— (a) anauthoritywhichisawastecollectionauthority,wastedisposal authorityorwasteregulationauthorityforthepurposesofPartII of the 1990 Act. T^e terms of this exemption apply to the “authority”whichisawastecollectionauthorityetc.Thismeans thatthe exemption applies also to thetransport ofcontrolled waste by any such authority in the fulfilment of their extant functionsinEnglandandWalesunderPartIoftheControlof PollutionAct1974(eghousehold,industrialorcommercialwaste collectedundersection12ofthe1974Act.)However,thetermsof this exemption do not include a “waste disposal contractor” withinthemeaningofsection30(5)ofthe1990Act; (b) theproducerofthecontrolledwasteinquestionexceptwhereitis buildingordemolitionwaste.Regulation2(2)defines“buildingor demolitionwaste”aswastearisingfromworksofconstructionor demolition, including waste arising from work preparatory thereto®; (c) theBritishRailwaysBoardinrelationtocarriagebyrail; (d) aferryoperatorinrelationtothecarriageontheferryofany vehiclecarryingcontrolledwaste; (e) (1)theoperatorofavessel,aircraft,hovercraft,floatingcontainer orvehicleinrelationtoitsusefortransportingwasteinorderto carryoutanyoperationmentionedinsection5or6oftheFood andEnvironmentProtectionAct1985 afterithasbeenloaded withthewasteincircumstancesinwhichalicenceunderPartIIof thatActisneededorwouldbeneededbutforanorderunder section7ofthatAct.Regulation2(2)providesthat“vessel”hasthe samemeaningasinsection742oftheMerchantShipping Act 1894; (2)ThedepositofwasteintheseaiscontrolledbytheAgriculture ’ The1988RegulationsapplyinEnglandandWales. ®Thetermsofthisdefinitionarethesameasthoseofparagraph6ofSchedule3totheCollection andDisposalofWasteRegulations1988(SI1988No.819)whichclassifysuchwasteas industrialwasteinEnglandandWales. 9 A*2 PrintedimagedigitisedbytheUniversityofSouthamptonLibraryDigitisationUnit Departments^underPartIIofthe1985Act.Thepurposeofthis exemptionistoavoiddualcontrolwiththatsystem.However,the exemptionappliesonlytothetransportofcontrolledwaste in circumstancesinwhichthecontrolsimposedbyPartIIofthe1985 Act apply. This means, for example, that the transport of controlledwastebyroadtotheplaceatwhichitisloadedontoa vesseldoesnotfallwithinthescopeofthisexemption; (f) acharity; (g) avoluntaryorganisationwithinthemeaningofsection48(11)of theLocalGovernmentAct1985^®orsection83(2D)oftheLocal Government(Scotland)Act1973“; (h) (1)apersonwhobefore1April1992appliesinaccordancewith theregulationsforregistrationasacarrierofcontrolledwastebut onlywhilsthisapplicationispending.Regulation1(3) provides thatanapplicationistobetreatedaspending:— (a) whilstitisbeingconsideredbytheregulationauthority;or (b) ifithas been refused or the relevant period^^ from the making of the application has expired wi—thout the applicant’shavingbeenre^stered,whilsteither: (1) theperiodforappealinginrelationtothatapplication hasnotexpired;or (2) theapplicationisthesubjectofanappealwhichhas notbeendisposedof^^; (2)Thisexemptionisatransitionalprovision. Asexplained in paragraph7(d)oftheCircular,theoffenceprovisionsofsections1 and5willcomeintoforceon1April1992.Itisproposedthatthe dutyofcareimposedbysection34ofthe1990Actshouldalso ^colmoewianntyopfeorrscoenownhtohastubdmaittes.aThvaeliedffaepcptloifcatthiiosnefxoermrpetgiisotnraitsitoon before1April1992tocontinuetotransportcontrolledwasteinthe course ofhis business after that date until his application is acceptedbytheregulationauthorityor,ifitisrefused,untilthe appealprocessiscompleted. Registers a1.n1d1mRaemgutlaatmioanr3eg(iDstiemrpoofsceasrroineresaocfhcroengturloaltlieodnwaausttheoraitnyd:a—dutytoestablish (a) tosecurethattheregisterisopenforinspectionattheirprincipal officebymembersofthepublicfreeofchargeataUreasonable hours;and O'- eavronleudntoanryotohregrawiimsaettihoann”fmoeraprnosfiat.bodywhichisnotapublicbodybuuutiwwhnoosseeaaccttiivviittiieessasrree Reflation1(2)andsection4(1^)^^perwoavlidoefthhiastrtehgeisrterlaetviaonntbpyeraipoedrissotnwwohmoonitsh^saodrTeSxscteoetriln^t^h^e question® betweentheapplicantandtheregulationLtlSrityin *'Sn4(8).^^^^ “disposedof”,inrelationtoanappeal,hasthemeaninggivenby 10 PrintedimagedigitisedbytheUniversityofSouthamptonLibraryDigitisationUnit