Waste Management Strategy 2015-2020: Background Document - December 2014
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Waste Management Strategy 2015–2020: Background Document December 2014
Author: Helen Millicer Reviewer: David Rako Acknowledgements Appreciation for their contribution to this project go to: Representatives at Wheelie Waste, Sustainability Victoria, Loddon-Mallee Regional Waste and Resource Recovery Management Group, Mornington Peninsula Shire Council, Hume City Council, Whittlesea City Council, City of Yarra, City of Greater Bendigo and Mt Alexander Shire Council. Disclaimer While reasonable efforts have been made to ensure that the contents of this publication are factually correct, One Planet Consulting and Macedon Ranges Shire Council give no warranty regarding its accuracy, completeness, currency or suitability for any particular purpose and to the extent permitted by law, does not accept liability for loss or damages incurred as a result of reliance placed upon the content of this publication. This publication is provided on the basis that all persons accessing it undertake responsibility for assessing the relevance and accuracy of its content.
1 CONTENTS
1 INTRODUCTION ............................................................................................................................. 1
2 SUMMARY OF PAST WASTE STRATEGIES AND PERFORMANCE FOR MACEDON RANGES
SHIRE .............................................................................................................................................. 2
3 BENCHMARKING WITH OTHER COUNCILS ................................................................................ 5
4 EXTERNAL INFLUENCES ON WASTE STRATEGY ..................................................................... 9
4.1 PESTEL analysis .................................................................................................................... 9
4.2 Strategic framework .............................................................................................................. 11
5 DETAILED ACTION PLAN 2015-2020 .......................................................................................... 16
5.1 Gather useful data and maintain information systems .......................................................... 16
5.2 Track local and external trends and forecast implications .................................................... 18
5.3 Provide leadership through example and procurement ........................................................ 19
5.4 Provide cost effective services .............................................................................................. 20
5.5 Encourage and promote resource efficiency and productivity .............................................. 29
5.6 Inform, promote and engage the community on the costs and benefits of actions .............. 33
5.7 Support innovative programs and communications that target difficult or environmentally
potent waste streams ............................................................................................................ 35
5.8 Provide consistent and effective public place infrastructure and systems ............................ 37
5.9 Summary of Actions .............................................................................................................. 40
6 REFERENCES .............................................................................................................................. 461 INTRODUCTION
The Macedon Ranges Waste Management Strategy 2015-2020 has been developed to
guide Council and the community towards a future of less waste. It outlines key actions for
improving waste management – to reduce the volume of waste being sent to landfill, and to
increase the volume of material resources recovered for re-use and recycling.
This Background Document supports the directions and recommendations of the strategy,
by providing information on findings from the research undertaken in development of the
strategy.
The development of the Macedon Ranges Waste Management Strategy 2015-2020 drew on
existing data obtained from Council and other sources, now represented in this Background
Document. Where anomalies were identified in data, either it was not used, or was used
with caution and qualifications. The most reliable benchmark data is the 2013 report by
Sustainability Victoria (SV), Victorian Local Government Annual Survey, 2010-11. Reference
is also made to the 2011 report by Calder Regional Waste Management Group (CRWMG),
Waste Composition Report, 2013.
To inform the development of recommendations presented in the Macedon Ranges Waste
Management Strategy 2015-2020, a review of Council waste activities and performance was
undertaken, alongside a scan of work in other councils, and a review of external factors
impacting on waste management. 21 recommendations were developed and matched to 3
objectives, reflecting goals of the Council Plan:
- Deliver affordable, efficient, productive and coordinated waste and resource reuse
systems
- Empower and involve the community in reducing waste and litter and increasing reuse
and recovery
- Protect the amenity of townships and landscapes for current and future generations
through clean and litter free spaces
It should be noted that although recommendations are presented according to objectives in
this background document, the adopted Macedon Ranges Waste Management Strategy
2015-2020 presents the recommendations according to implementation timeframes.
12 SUMMARY OF PAST WASTE STRATEGIES AND PERFORMANCE
FOR MACEDON RANGES SHIRE
MRSC has produced a number of Waste Strategies (2000 and 2007) that have contributed
to Council making important changes to its waste and recycling assets, services and
programs. The most significant changes in the last 15 years have been:
Closure of all three landfills within the Shire (Kyneton, Lancefield and Bullengarook)
Environment Protection Authority (EPA) Pollution Abatement Notices (PANs) being
issued for all three landfills, necessitating remedial action and investment (detailed in
section 6.4.5)
Closure of Recycling Depots at Daraweit Guim, Malmsbury and Tylden (late 2011)
Standardisation of operations at all three Transfer Stations (Kyneton, Woodend,
Romsey)
Commencement of residential recyclables and garden organics kerbside collection
from major townships.
The 2007 Waste Management Strategy adopted on 22 August 2007 contained nine key
recommendations, most of which have been adopted, as outlined in Table 1 below.
Key Recommendation (as written in the 2007 Strategy) Action since 2007 Strategy
Landfill Closure and Regional Disposal Options
1. That Council continue to rehabilitate, maintain and monitor Council has received 3 Pollution
the Kyneton, Bullengarook and Lancefield closed landfills Abatement Notices (PANs) for the
consistent with statutory obligations three landfills. Council is
conducting monitoring works as
required by EPA Victoria.
Remedial works at Kyneton are to
be completed by 1 July 2015.
2. That Council through the Calder and Metropolitan No formal agreement negotiated.
Regional Waste Management Groups develop long term Currently paying market rate for
agreements with the City of Hume for disposal of waste disposal.
from Macedon Ranges Shire
Resource Recovery Facilities
3. That Council agrees to maintain and operate the Council has made investments in
Woodend Resource Recovery Facility consistent with the improved site layout and
statutory obligations operations at Woodend.
24. That Council agrees not to pursue an additional Resource Council has not pursued any
Recovery Facility for the southern district at this stage but additional facility beyond its
retains the Council owned industrial land located off existing three transfer stations.
Newry Drive with a view to obtaining a more suitable site
in the future
Extensions to Collection Areas
5. That the kerbside collection area be extended subject to: Kerbside services have been
extended by Council. New waste
a) Preliminary discussions with the collection contractor and recycling kerbside collections
to identify areas which can be economically serviced.
contracts commenced in January
b) A survey of residents in identified areas in
accordance with Council policy. 2010 with Wheelie Waste and this
c) Negotiations with the current contractor, Cleanaway, extended to garden organics in
to determine a contract rate for areas identified for October 2011.
collection.
d) A report to Council to approve any variation to the
contract rate and to declare extensions to the
garbage district.
6. Notwithstanding the above, that at least two years prior to To be considered within the
the expiry of the new kerbside waste and recycling preparation of the 2015-2020
collection contract, Council will review the area serviced Waste Management Strategy.
with a view to extending the area to the whole of the Shire.
Additional Kerbside Services
7. Hard Waste. Council has not proceeded with a
hard rubbish collection service.
That Council decides not to proceed with a hard rubbish Residents are able to deliver to
collection service at this stage due to OH&S and public the Sunbury or Mt Alexander
liability issues and costs. landfills, or to any of three Council
transfer stations.
8. Clothing and other Recycling. Council has not proceeded with
trials of charity bins at transfer
a) That the results of trials being carried out for a stations for clothing collections.
collection of clothing and other recyclables materials
There are approximately a dozen
be considered by Council in future deliberations.
b) That a charity bin(s) be placed in one of the transfer charity bins in the Shire.
stations as a trial to assess whether this would be a Council has expanded and
more effective way of capturing this part of the waste standardised bin collections at all
stream. transfer stations to include
batteries, waste lube oil,
mattresses, and a number of
other materials/products.
39. Green Waste Council investigated options and
in 2011 commenced a fortnightly
a) That Council investigates options for, and the viability green waste kerbside collection
of, introducing a green waste service, both as part of
service in township areas. This
the new kerbside contract in 2011 and as an
additional service within the terms of the current will have inevitably cut the
contract. quantity of garden waste to landfill
b) That proposals being currently considered by the City and associated costs.
of Bendigo for green waste collection and treatment
be considered by Council in future deliberations.
Table 1 Key Recommendations from 2007 Waste Management Strategy and actions to date
43 BENCHMARKING WITH OTHER COUNCILS
One of the largest contributing factors to the quantity and composition of waste and recycling
entering the council collection system is its location and economy. Highly urbanised
communities such as Hume have higher quantities in the council system than do peri-urban/
agricultural areas such as Mornington Peninsula or Macedon Ranges (Figure 1).
Since its survey data was presented to Sustainability Victoria in 2010-11 to inform the graph
in Figure 1 below, MRSC has introduced garden organics kerbside collection. This will have
resulted in some of the weight moving from the general waste (GW) to the recycling system.
However, Mornington Peninsula has both a garden organics kerbside and drop-off service,
and higher quantities in its recyclable collection. Most notably it has smaller overall waste
generation from households than MRSC, largely due to its smaller bin (80 litres) and long
standing education program, particularly targeting schools and groups.
1000.00
900.00
800.00
700.00
600.00
500.00
400.00
300.00
200.00
100.00
0.00
Macedon Hume Bendigo Whittlesea Mt Moorabool Mornington Victoria
Ranges Alexander Shire Pen Shire
Shire
Kerbside GW /hshold kg/a Kerbside recyclables /hshold kg/a
Figure 1 Comparison of kerbside collection quantities (kg) per household, 2010-11
3.1 Mornington Peninsula Shire Council (2013 po pulation 152,260,
budget $143M)
Mornington Peninsula Shire Council attributes its low landfill costs and quantities to 10 years
of ‘training to recycle’. Over 10 years ago Council replaced the 240 litre general waste bins
with 80 litre bins and education programs. While there were concerns about going to smaller
bins, it was clear that the aim was to reduce waste and costs of landfill. At the same time
Council introduced recycling bins. Residents can choose a 120litre bin at greater cost,
paying $3.25 per extra litre ($130 extra).
Council owns the three transfer stations and contracts out the operations and these have
been dramatically improved since diversion targets and incentives were included in the
tenders and contracts. These targets continue to climb each year and incentives are paid out
as a percentage of avoided landfill fees. The contractor is investing capital and resources
into improved resource recovery. Council also has three smaller satellite sites that operate
on weekends from which material is transported for improved sorting at the transfer stations.
5For many years Council had a dedicated waste/recycling education officer successfully
engaging with schools, community and business groups (many now have their own recycling
programs). This position has disappeared due to amalgamations of the regional waste
management groups and so Council is considering and negotiating options.
All festivals and events in the region must submit a waste and recycling plan to Council’s
Recreation Department.
Council’s next big moves are a new strategy, and it is expanding the range of products
included in the recycling bin. Effective from 1 July 2014 residents can include: hard plastics
(Tupperware, plates, toys), metals (pots and pans). All this goes to the SKM processing
facility in Coolaroo.
3.2 City of Whittlesea (2013 population 179,260, budget $168M)
The City of Whittlesea has constraints in that there are no landfill sites and no transfer
stations where materials can be sorted in the municipality. The priorities in council’s new
strategy are:
Reduce contamination of recycling
Reduce recyclables in the waste stream
Work with commercial businesses to trial recycling
Move away from voucher system for landfill to pre-booked hard waste collection
service.
Council has been conducting an annual audit of 200 household waste and recycling bins for
several years to assess contents and contamination trends. A more direct action is that a
contractor walks the streets doing inspection of residential bins prior to pick up (on rotation of
areas). They apply stickers and do visits to rectify behaviour. Estimated cost around $30,000
but it repays in reduction of contamination, improved recycling behaviour and higher rebate.
Council is very happy with the current garden organics system as there is a very low
contamination rate (1%), because the service is optional and user pays (45% = 30,000
households) rather than compulsory for all households. This means participants are keen
and more inclined to use the service correctly. The current fee is $65, rising with CPI to $74-
75. Council also offers a prebooked bundled service. All organics gets made into certified
compost.
While council has public place recycling bins, contamination rates are too high in some
areas, and in these areas all contents go to landfill. Council will be ramping up public
signage and education.
3.3 City of Greater Bendigo (2013 population 105,332, budget
$155.9M)
The City of Bendigo’s very recent Waste & Resource Management Strategy (early 2014)
sets ambitious numeric targets for reduction of waste to landfill and increased diversion.
They have two landfills, and the Eaglehawk facility is nearing capacity (5-7yrs). Their
priorities are:
6 Commence an organics collection once they are confident that it is appropriately
treated
Determine the feasibility of an advanced recovery facility for Eaglehawk site.
Currently Bendigo transports 50% of its waste to the Patho site near Echuca at a reasonable
price and deposits the other 50% into its own landfill.
Council is happy with successful social enterprise contractor at Eaglehawk TipShop. ‘Future
Employment Opportunities’ has also won tenders to set up similar ventures in Portland and
Hamilton. Council intends to maintain services in-house rather than engaging external
contractors (with exception for Elwaste for recycling). A motivation is to preserve local
employment and investment.
3.4 Hume City Council (2013 population 183,263, budget $186M)
Hume City Council’s current Waste Strategy concludes in 2016. In terms of kerbside
collections, waste bins are 80 litre and 140 litre, with an incentive rebate of $16 paid to move
to the smaller bin. Garden organics kerbside collection is an optional user pays system
offering two sized bins (140 litre bin = $96.50 and 240 litre bin = $113) fruit and vegetables
are accepted. Hume also offers all households two free prebooked hard waste collections or
one tip trip voucher.
There are two council landfills and recycling centres in Sunbury and Cambellfield and a
private landfill at Bulla. Council manages the gatehouse and weighbridge, and private
operators manage the sites.
A private contractor has been running a successful TipShop at the Sunbury site for 18 years
with around 30,000 visitors p/a, including from MRSC especially Gisborne. There is
generally a 4 week turn around on items such as bikes. They handle timber, tools, furniture,
toys, books, magazines and more.
These buildings and circulation area for sorting materials has been recently expanded by
Council with $150,000 grant from Sustainability Victoria.
Hume also accepts free of charge:
household chemicals
paint (up to 20 litre)
white goods.
3.5 Mt Alexander Shire Council (2013 population 17,994, budget
$30.5M)
Mt Alexander Shire Council’s 5 year Waste Strategy concludes in 2015.
Council only provides waste and recycling kerbside collections, no organics kerbside
collection. A move to lower waste to landfill was the introduction of 80 litre bins for kerbside
waste collection in place of the standard 140 litre bins in 2011-12. Some 30% properties
have made the move and pay ~$100 less on waste rates. More people are making the
switch with each rate notice.
7Council also offers a discount on worm farms and compost bins to encourage lower
quantities of food in the waste bin. This appears to be popular.
Mt Alexander has its own landfill in Castlemaine with a weighbridge and transfer station for
sorting and distribution, and a second transfer station in Maldon. In addition to the items
received by MRSC at its transfer stations, Mt Alexander receives all plastics 1-7, white
goods, timber and building rubble.
84 EXTERNAL INFLUENCES ON WASTE STRATEGY
4.1 PESTEL analysis
There are a number of external influences acting upon MRSC’s current and future waste and
recycling operations. These have been grouped using the PESTEL analysis headings
(political, economic, social, technological, environmental and legal).
4.1.1 Political
The policy push for market cost recovery extends to increases in landfill fees, monitoring
and open reporting of quantities, contamination and performance. There has been an
increase in the funds retained by the Victorian government from landfill levies resulting in a
drop in the number and size of grants available to local councils and communities for
individual, discrete projects.
Within Victoria the State Government has strengthened the role of the regulator, EPA
Victoria to be clearer on regulations and enforce compliance. Sustainability Victoria has
increased its focus on cost effective market recovery of materials, and investigations into
material flows as a means to support efficiency and waste reduction, particularly in
commercial and industrial sectors such as manufacturing, and in regards to organics (food
and garden material). There will continue to be support for recycling infrastructure for local
councils, attention on major waste streams like organics.
Federal and state waste and resource recovery policies are raising the standards around
the waste and recovery sectors, such as introducing market mechanisms such as Product
Stewardship programs (targets, levies and rules) upon manufacturers/importers to recover
products at ‘end of life’1.
Increased diversion through voluntary schemes will grow. Industry, local governments
and communities will increasingly pursue and support initiatives that lower landfill costs and
‘waste’ through diversion and better sorting of materials.
4.1.2 Economic
The Australian economy will change shape with a slowing mining sector, particularly coal
exports, increased international investment in food production and land. With increased
global demand for commodities and product, price of goods and fuel will increase in
Australia. The trend toward lower average wages in real terms will continue and provide
motivation for people to keep products longer and recover more product/materials.
This will provide greater incentive for recovery of product and materials through improved
separation (at source i.e. at home and at Transfer Stations), repair (Men’s sheds), resale
(Tip Shop) and sorting (at recycling facilities i.e. VISY).
Higher cost of fuel will impact economic activity, and the economics of transport of waste,
and may contribute to increases in illegal dumping.
1 Australian Government, Dept of Environment, 2014, Product list and notices
9Climate change will hit regional rural areas hard with another extended drought and hotter
weather, and possibly more flooding events. This will impact the agricultural productivity and
economic activity within regions. This will dint consumer confidence and economic activity.
Federal, state and local councils will make greater investments in protecting and repairing
infrastructure and communities, minimising risks and costs of bushfire, heat waves and
floods.
4.1.3 Social
Growing population will impact upon quantities of waste and recycling, provision of
services and education programs in the municipality. This plus an aging population and early
retirement may mean more people are running micro-businesses from home and in the
region.
Fashion trends may continue to encompass retro clothing and furniture, with interest in
improved separation of product through charity stores or ‘Tip Shops’.
The resurgence of community social cohesion activities such as the Men’s Sheds and
community markets may provide a social/employment aspect to Council’s collection services
and transfer stations.
4.1.4 Technological
Continuing rapid adoption of new technologies, such as electronic goods, TVs, mobile
phones generates greater quantities of still working products from homes and workplaces
across MRSC.
The rise of innovations such as 3D printing may enable the repair of more products.
Council may consider expanding and integrating its collection system with other
organisations and businesses across the municipality to improve economies of scale,
collection, retrieval, repair and reuse or transport to a central location.
Increasing number of companies will be shifting out of carbon intensive fuels with vehicle
fleets moving across to electric, hybrid and low emission fuels. Council may include this as a
requirement in future council contracts.
4.1.5 Environmental
The impacts of climate change will lead to increased quantities of material entering the
waste stream as rubbish after fires, floods or other extreme weather events. A challenge for
councils will be dealing with large quantities during and after emergencies, and the costs. It
will also extend to increased focus upon possible contamination of water supply and
combustion of landfill. There may also be growing interest in improving the productivity and
resilience of land through soil improvement via composting and organic soil conditioner.
Life cycle analysis of the real environmental cost of materials and products will become
increasingly commonplace, as purchasing policies and procurement tenders by companies
10such as Coles and local governments require suppliers to measure and report their
environmental footprint. This will extend to increasing scrutiny of the real cost of resources,
in terms of all steps in the production and disposal supply chain.
There may be growing community and business expectation for lowering emissions from
waste collection and landfill. This may extend to a push to measure, monitor and flare
methane from landfills and organic treatment systems.
4.1.6 Legislation/regulations
State and federal legislation and regulations around pollution, contamination, landfill and
waste might be streamlined, but are not likely to be diminished. There will be an increased
array of materials and products collected through formal and informal product stewardship
arrangements.
The approach to carbon emissions will eventually settle with an increasing shift away from
carbon based energy sources to low emission or zero emission sources. This will be partly
driven by government policy and legislation, business and community action and pressure,
investment and cost. Groups such as 350.org that are mobilising communities around the
world to divest from carbon-intensive businesses and sectors will grow in influence. This will
result in changes to the business case and reputation of carbon-intensive activities.
There may be renewed calls for revised EPA regulations enabling easier reuse of materials
and products, subject to streamlined processing, measurement and monitoring. This would
assist reduce the quantity of material going to landfill through greater recovery and reuse.
4.2 Strategic framework
This section outlines relevant external policies and legislation that impact upon current and
future waste and recycling activities within the Shire.
4.2.1 Calder Regional Waste Management Group (replaced by Loddon-Mallee
Waste and Resource Recovery Group)
Prior to 1 August 2014, MRSC was one of three member Councils of the Calder Regional
Waste Management Group (CRWMG); the other two member Councils being Mount
Alexander Shire Council and the City of Greater Bendigo.
Due to recent reforms to the structure of the regional waste management groups (RWMG)
by the Victorian Government through a legislative bill, the CRWMG amalgamated with
Central Murray RWMG and the Mildura RWMG to form the Loddon Mallee Waste and
Resource Recovery Group from 1 August 2014. The new LMWRRG is made up of the
following eight municipalities: MRSC, Mount Alexander Shire Council, City of Greater
Bendigo, Loddon Shire Council, Buloke Shire Council, Gannawarra Shire Council, Swan Hill
Rural City Council and Mildura Rural City Council.
The intent is that the new groups are able to allocate more resources to on-the-ground
delivery than they were previously able to do. Some responsibilities are being moved from
11local government to the regional groups, giving them an increased role in facilitating joint
procurement of infrastructure and resource recovery services. The planning role has also
been broadened to include all material streams, including commercial and industrial and
construction and demolition.
One of the first requirements of the new LMWRRG will be the appointment of staff and
formation of a strategic plan for the LMWRRG. This will be high level and take into account
the diverse needs, circumstances and capacity of LMWRRG to service the needs of the
eight member Councils. This is likely to cover issues such as education materials, joint
studies and tenders for services, review of infrastructure and planning.
In terms of purpose and outcomes, in recent years the current CRWMG has investigated
joint initiatives. In 2010 CRWMG coordinated a study into the composition of kerbside
general waste collection bins of the three member councils. These findings lead to MRSC
deciding to introduce garden organics kerbside collection in 2011. More recently the
CRWMG undertook preliminary investigations into garden organics treatment in windrows
and joint kerbside collection contracts for all three member municipalities. However, this was
not of interest to Bendigo given they run their waste and recycling in-house.
4.2.2 Victorian Government waste policy: Getting Full Value
In April 2013 the Victoria State Government released Getting Full Value: The Victorian
Waste and Resource Recovery Policy (Getting Full Value). Getting Full Value provides a 30
year vision for waste and resource recovery across Victoria with actions to provide guidance
over the next 10 years.
The goals and strategic direction include:
Assist Victorians to reduce waste generation and achieve financial savings through
efficient resource use
Facilitate strong markets for recovered resources
Reduce illegal dumping and littering.
MRSC will be impacted by this policy as it provides key strategic vision for resource recovery
across Victoria, direction on levies, fees, grants and priority areas for government action.
A particular focus is upon organic material given the high proportion found in general waste
and going to landfill. A number of studies have been recently undertaken by Sustainability
Victoria into different organic streams, the sources and options for diversion. This includes
food, timber and garden organics. It is possible that a number of recent studies undertaken
by SV and others around organic streams will become publicly available in the next year.
124.2.3 Draft Statewide Waste and Resource Recovery Infras tructure Plan 2013-
2043 Victoria, September 2013: Sustainability Victoria
In September 2013 Sustainability Victoria released its Draft Statewide Waste and Resource
Recovery Infrastructure Plan 2013-2043 Victoria (SWRRIP). This is a partner document to
the state policy (above).
The purpose of the SWRRIP is to provide a detailed picture of the current waste and
resource recovery sites across Victoria. Via a consultation process the SWRRIP has also
identified current and future gaps for infrastructure such as landfills and transfer stations in
what it calls a ‘hub and spoke’ approach to streamline efficiencies and costs.
For MRSC the final SWRRIP will highlight future resource recovery and disposal
infrastructure planned for Victoria over the next 30 years.
4.2.4 2013 Consultation Draft: Metropolitan Waste & Resource Recovery
Strategic Plan
In October 2013 the (former) Metropolitan Waste Management Group released the 2013
Consultation Draft: Metropolitan Waste & Resource Recovery Strategic Plan (Plan). The
Plan supports the SWRRIP and provides a road map for delivery of waste and resource
recovery services for metropolitan Melbourne.
When released the final Plan will also provide a range a market based actions and solutions
to secure infrastructure investment in both waste disposal and resource recovery.
While MRSC is located outside the boundary of metropolitan Melbourne, the Plan will have a
significant impact on MRSC as all general waste, comingled kerbside material and
recyclables collected from the three transfer stations are sent to facilities located in
metropolitan Melbourne.
4.2.5 Federal Government National Waste Policy
The National Waste Policy was finalised in 2009 and agreed to by all Australian environment
ministers. The Policy provides direction for Australia’s waste management and resource
recovery direction to 20202. The aims of the Policy are to:
avoid the generation of waste, reduce the amount of waste (including hazardous
waste) for disposal
manage waste as a resource
ensure that waste treatment, disposal, recovery and re-use is undertaken in a safe,
scientific and environmentally sound manner
contribute to the reduction in greenhouse gas emissions, energy conservation and
production, water efficiency and the productivity of the land.
4.2.6 Product stewardship programs and National Act (2011).
2 Australian Government, Dept of Environment, Water, Heritage and the Arts, 2013, Fact Sheet
13‘Product stewardship’ is a term used globally covering programs created to manage the
impacts of specific products and materials, such as computers, and to stop them from
entering landfills. It acknowledges that those companies and people involved in producing,
selling, using and disposing of products have a shared responsibility.
There have been a host of voluntary programs operating for some time, some which now are
covered by the 2011 Australian Product Stewardship Act3. Programs for these items follow
the Act:
Ewaste (computers, TVs, printers) (2012)
Tyres (2014)
There are recovery targets, rules, penalties and funds managed for recovery of these items
at ‘end of life’. Other similar programs for consideration/formation in the next few years
cover:
Mercury containing lamps
Air conditioners and refrigerators with small gas charges
Architectural and decorative paint
Hand held batteries (While there are fugitive emissions from the three closed landfills within MRSC however,
Council was not, and is not required to pay for these emissions. Council could consider the
cost/benefit of installing flaring equipment or other treatment systems to cut emissions.
From the information currently available on Direct Action, it appears that the Federal
Government’s Direct Action program will not entail measures that will provide direction or
incentive through a price or other mechanisms for improved waste reduction or recycling by
comparatively small councils such as MRSC.
The main premise of Direct Action is that entities apply to the government for grant funds to
deliver lowest cost carbon abatement. It is not likely that MSRC has waste and recycling
projects of sufficient scale and abatement potential that would meet the criteria for such
funds.
155 DETAILED ACTION PLAN 2015-2020
OBJECTIVE 1.
Deliver affordable, efficient, productive and coordinated waste and resource
reuse systems
5.1 Gather useful data and maintain information systems
In order to effectively plan and gain maximum return on initiatives around waste, recycling
and reuse services, Councils require good data.
While MRSC operates waste and recycling assets and services for the local community, the
shortage of reliable data makes it difficult to calculate and gauge the real cost and benefit of
waste and resources management and the effectiveness of actions undertaken for different
materials.
For example, a breakdown of figures for waste at landfill in 2012-13 financial year shows that
7,481 tonnes was generated from kerbside collections and 3,168 tonnes generated from
transfer station operations, in total 10,649 tonnes from Council collections. This equates to
244.7kg per person in 2012-13. According to SV’s Annual Survey, 2013, the Victorian
average in 2010-11 was 197kg per person4.
50,000
45,000
40,000
35,000
30,000
25,000
20,000
15,000
10,000
5,000
0
2011/12 2012/13 2013/14
Population Total waste to landfill (t) Kerbside recycling (t) Kerbside organics (t)
Figure 2 MRSC population, waste and kerbside recycling and organics quantities
The figures for recycling within MRSC are fairly reliable showing a recycling rate of 95kg per
person in 2010-11 rising to 105.6kg in 2012-13. According to SV’s Annual Survey, 2013, the
Victorian average in 2010-11 was around 112kg of recyclables per person.
If these figures are correct, they show that MRSC is performing below average for both
waste to landfill and recycling. In respect to waste generation, MRSC is on a per person
4 Sustainability Victoria, 2013, Victorian Local Government Annual Survey, 2010-11, p.5
16basis about 18% higher, while in the area of recycling MRSC is about 17% lower than the
average across Victoria.
A key priority over the next few years is for council to collect reliable and consistent data sets
on waste, including costs and weights, volumes and composition from both in-house and
contractor services for:
Waste from kerbside and transfer stations
Recycling from kerbside and transfer stations
Street sweeping and public bins
Litter and illegal roadside dumping.
Recommendation 1. Establish data and information systems
Require waste and recycling teams and contractors to provide recent data, and
going forward, to establish and maintain meaningful data sets in electronic form
for council’s analysis, covering: quantities, costs, rebates, destination,
composition, levels of contamination, bin lifts, frequency and capacity of bins
upon collection.
In preparation of tender specifications for future contract services, consider
engaging contractors that use GPS tracking and weighing systems on lifting arms
of trucks to obtain certified data on quantities collected within council contracts.
The intended use of this data needs to be determined, and the contractors
engaged accordingly.
Unfortunately, few contractors (unless required within the terms of the contract) collect data
on three key aspects of waste management: composition, contamination and volume of bins
upon collection. It is therefore commonplace for Councils to conduct annual or biannual
audits, and pre and post project audits to measure effectiveness of initiatives and consider
corrective modifications.
It is important that audits are comprehensive on these three aspects of waste management
as this informs such activities and investments as education programs and changes to
frequency of bin collection and size.
Recommendation 2. Conduct targeted and representative audits to obtain baseline
data on volume and composition of household and public place bins
Conduct targeted and representative audits of waste, recycling and green bins
from kerbside collections.
Conduct an audit of public place waste litter bins in different townships and public
locations to assess quantity, composition and volume capacity of bins with a view
to potential introduction of public place recycling in future years.
One person’s trash is another person’s treasure. There are likely to be valuable ‘waste’
streams within the municipality that are currently under-utilised. It is possible that some of
these will be outside of council’s collection system and that combined may be more cost-
effective for the benefit of all.
For example, Council’s contactors currently transport garden material from the green
organics bin to Camperdown Composting (a round trip of approximately 400km). This
existing arrangement works well and the material is treated to become quality compost,
however, it appears there may be major untapped opportunities for a composting facility
within the Shire given the high quality and consistent organic material streams arising locally.
17This is from farms, food processing facilities, abattoir, stock sales yards, wood lots and
sawmills. Likewise there are other valuable material streams such as cardboard, plastics,
paper, and textiles that could be reused or recycled within the region.
One example of how this material may be mapped is provided by Mount Alexander Shire
Council, who is currently embarking upon a waste audit and resource mapping exercise
within its community entitled the ‘Waste Less’ project. It may be possible for MRSC to tap
into this project and share data to help identify smart local reuse and recycling options.
Recommendation 3. Survey local organisations and trader groups to identify
resource use options to support increased reuse of valuable materials
Survey major local organisations and trader groups in the municipality to identify
waste, recycling and reuse opportunities.
Use this information to consider business cases and potential market activity for
appropriate activities or to facilitate business- to- business exchange.
5.2 Track local and external trends and forecast impl ications
Many councils are grappling with identical problems to those experienced at MRSC (such as
rising quantities to landfill and high rates of contamination in recycling bins), and are trialing
different approaches to improve waste, recycling, reuse, contracts, education and
communications. State and federal governments also undertake major assessments into
improvements and problem trends in waste, recycling and reuse.5
Council will gain from linking into networks where such robust and comprehensive data and
information is shared. This includes attending conferences and memberships to relevant
peak industry groups such as Waste Management Association of Australia (WMAA). Being
on the fringe of Metropolitan Melbourne, MRSC can tap into both the information networks
for both the regional and the metropolitan Waste and Resource Recovery Groups. Council
should engage with these groups by publishing and sharing its audits and reports,
presenting at events and discussing needs and opportunities. Council can also meet with the
Board and senior staff, and seek to have input into the Strategic Plans and projects for these
organisations.
Council needs to recognise that many studies are retrospective and forecast scenarios
typically around ‘business as usual’, seldom considering scenarios involving factors such as
changing fuel prices or scarcity of materials. In conducting any business case analysis
around waste and recycling in the future, and in the next waste management strategy, it is
important that Council assesses the impacts of such major factors upon services, prices,
risks and options.
Recommendation 4. Track trends and forecast implications of factors such as
chancing fuel and resource prices for waste systems and council’s own operations
Participate and share information through networks such as the Metropolitan and
the Loddon Mallee Regional Waste and Resource Recovery Groups.
5Sustainability Victoria, 2013, Draft Statewide Waste and Resource Recovery Infrastructure Plan,
p.62
18 Participate in relevant conferences and expert seminars to hear of recent
initiatives in other councils and agencies.
Track the trends within council’s own data on waste and recycling quantities,
costs and forecast a number of scenarios with key factors.
5.3 Provide leadership through example and procurement
5.3.1 Leadership through Council’s own operations
Council has an opportunity to be a leader within the municipality in reducing its own waste to
landfill, increasing recycling and reuse of materials and products. This may also provide an
opportunity to reduce its own costs and increase the rebate paid for recyclables. Council will
then be able to promote such benefits to other organisations within the Shire.
Currently all Council facilities are serviced by both general waste and recycling services.
Consistent with the residential kerbside service, Wheelie Waste collect 240 litre bins from
libraries and maternal and child health centres. Larger premises such as the Council offices,
leisure centres and a public pool are serviced by 3m3 front lift bins by a another contractor.
Council does not have data on whether its bins are at capacity or otherwise when collected,
the composition of waste or recycling, or the levels of contamination.
There may be opportunity to rationalise some of the contract services to reduce costs, and to
provide incentives for actions that result in lower waste to landfill, lower emissions and
higher recycling rates. Other actions can be cost effective, like improving signage within
these facilities and next to bin systems to ensure staff and visitors correctly separate into
bins, and to reinforce good habits.
Council also has the capacity to adopt and model good systems with staff, visitors and
cleaners. With the current reformation of its internal Green Team, there is the opportunity to
introduce targets for teams across the organisation, increase re-use and recycling, and offer
team rewards. Another key action is to ensure cleaners at council facilities correctly handle
waste and recycling. One common and significant error is placing bin liners in recycling bins
which results in the bag and recyclable contents being discarded at the sorting facility and
sent to landfill. Such items must be loose for recycling and not bagged.
Council can also consider introducing annual reporting on a few measures into its Annual
Report to demonstrate its commitment to improving waste behaviour.6
Recommendation 5. Demonstrate leadership in waste management and resource
recovery through Council’s operations and contracts, and report on performance
Set a target for Council to be a leader in waste, recycling and reuse within the
municipality. Integrate targets and actions into departmental teams, performance
measures and council reporting, including its Annual Report.
Gather data sets on council performance from existing contractors and ensure
electronic data provision is a requirement in future contracts.
Publish and share data and trends with council staff and visitors to show action
and impact.
6 Encycle Consulting, 2013, Study into commercial and industrial waste and recycling in Australia by
industry division, Australian Government.
19 Ensure council cleaners practice correct separation, handling and disposal of
materials into bins and if necessary support training.
5.3.2 Council’s procurement power
Council also has the capacity to show leadership, plan for the future and benefit from
exercising its buying power. It can do this in a number of ways, including:
Reviewing its Procurement Policy and exploring a new direction towards more
sustainable procurement such as products with a high proportion of recycled content
for office supplies including paper, parks and gardens supplies including signs and
benches, construction supplies including cement, plaster board and flooring.
Promoting one of the discretionary criteria in evaluation of tenders, concerning
whether the Tenderer is able to offer an environmental advantage with products and
works that are (a) environmentally sound in manufacture and disposal, (b) recyclable,
(c) energy efficient and (d) have a long life cycle with minimal maintenance and
repair. An initial focus would be to employ the criteria when considering tenders for
major areas of expenditure.
Requiring improved performance on carbon emissions and fuel efficiency from its
waste collection contractor from, for example, the use of hybrid electric and fuel
trucks.
Recommendation 6. Enhance Council’s procurement policy and power
Promote more sustainable procurement such as products with a high proportion
of recycled content.
Encourage Officers to actively use the discretionary procurement criteria of
“environmental advantage” in which products and works that are:
a) environmentally sound in manufacture and disposal
b) recyclable
c) energy efficient
d) with a long life cycle with minimal maintenance and repair,
to attract a higher score than products and works without these characteristics.
Require better reporting and improved performance on carbon emissions and fuel
efficiency from its waste and recycling collection contractors the next time tenders
are invited for the waste and recycling contracts.
5.4 Provide cost effective services
5.4.1 Staff and contractor performance
Council’s waste and recycling services and sites are managed by a combination of council
staff and contractors. It was beyond the scope and capacity of this project and available data
to make recommendations on changes to allocations between staff and contractors on the
basis of cost or performance, however good examples are available in other Councils.
Irrespective of whether staff or contractors, Council should establish performance targets
and incentives to ensure cost effective and increasingly efficient services are provided.
20Both Council staff and contractors are an essential part of Council’s service delivery, and as
such they both should reflect the values and priorities of Council.
It is important that staff performance targets and contract tender specifications reflect
Council’s objectives and goals for the period of this Strategy to 2020. Without the
cooperation of Council staff and contractors, Council and the community will not be able to
shift from current trends of increased waste to landfill, increased costs for disposal and
negative environmental impacts.
Service Provider
Education programs Council
Street cleaning Council
Roadside litter and dumping collection Council
Roadside litter, dumping and hazardous land management fines and Council
enforcement
Transfer stations operations Council
Recycling and waste collections from Transfer stations Contractors
Street and park litter bins collection Contractors
Recycling and waste collections from Council facilities Contractors
Residential kerbside bin collections Contractors
Landfill management (closed sites) Council
Landfill capital upgrades and monitoring Contractors
Table 2 Current providers of services in Macedon Ranges Shire
For example, the City of Whittlesea requires their contractor to do periodic visual inspections
of residential kerbside bins to identify and exclude contaminated bins from collection. The
contractor walks, inspects and applies stickers to contaminated bins, and following a report
to Council repeat offenders receive a letter from Council and finally a visit to explain and help
rectify behaviour. Whittlesea believes the cost is repaid through a reduction in
contamination, higher rebates, and improved recycling behaviour overall.
21Likewise, Mornington Peninsula Shire Council has recently entered into a new recycling
contract which has expanded the range of items accepted in recycling, including hard
plastics (Tupperware, plates, toys) and metals (pots and pans). This will help lower volumes
of waste to landfill and associated costs, and help improve performance.
Recommendation 7. Guide staff and contractor performance
Introduce measurement, targets and reporting into Council waste and recycling
services tenders and contracts.
Integrate objectives, goals and cooperative arrangements that provide support
and incentive for continuous improvement in cost effective service delivery.
5.4.2 Kerbside collection systems
Council currently offers three kerbside collection systems for households (general waste,
comingled recycling and garden organics) and receives a rebate for the comingled
recyclable collection.
Bin Size
Currently MRSC is increasing the size of waste bins from 120 litres to 140 litres when the
most common waste bin size amongst Victorian Councils is 120 litres (50 of 79 councils use
120 litre bins) and the statewide trend is to downsize bins. By contrast, in both Mornington
Peninsula and Mt Alexander Shire Councils, the 80 litre bin is the default bin size and
residents have strong incentive in pricing structures to use the smaller bin rather than 120 or
360 litre bins.
The recent trend in increased quantities and costs of waste to landfill within MRSC (evident
in Figure ) is likely to be partly due to the shift to the larger bin.
Eleven years of statewide data shows ‘as the bin size increases, the corresponding
household yield increases’. SV’s Annual Survey, 2013 goes on to say:
‘Smaller bins, such as the preferred 80 L bin produced on average 426 kg of garbage
per household per year, compared to the 240 L bin which yielded 590 kg per
household. This represents 164 kg (38%) more garbage generated annually by a 240
L bin compared to the 80 L bin.’ 7
600
500
Household yield (kg)
400
300
200
100
0
80L 120L 140L 240L
Garbage bin system
Figure 3 Waste yield by collection system, Victoria 2010-11
7 Sustainability Victoria, 2013, Victorian Local Government Annual Survey, 2010-11, p.24
22In aiming to reduce the volume of waste generated at the household level and then being
sent to landfill, Council needs to determine the feasibility of introducing smaller bin sizes.
The open landscape and windy conditions of the region present problems with smaller bins
being more vulnerable to being blown over, indicating that an alternative option, like retaining
the existing bin sizes but collecting on a fortnightly basis, may be a more appropriate means
to encourage better waste management at the household level. The collection could remain
weekly for 3 or 4 months over summer to avoid potential problems with odor, and in special
circumstances, a second bin could be provided. A fortnightly collection would provide the
added benefit of reduced operational costs and reduced greenhouse emissions from
transport.
Recommendation 8. Investigate the business case for different service options to
encourage reduction of waste at the household level:
a) Potential introduction of 80 litre bins for general waste, retaining the current
weekly collection cycle
b) Potential introduction of a fortnightly collection schedule for general waste,
retaining the existing 120 and 140 litre bins.
Council may consider:
Costs, benefits and means of introducing 80 litre bins, possibly through a
progressive roll out of 80 litre bins with a sunset for all larger bins by 2020, or a
faster changeover.
Costs, benefits and means of converting to a fortnightly collection for general
waste, possibly timed with collection of recycling materials
A proportional cost structure that will provide clear and strong incentive for
residents to choose the smallest bin or less frequent collection
A requirement that the contractor seek out bins made with recycled plastic
content and that all discarded bins are recycled.
Waste bin contents
In 2011 the CRWMG commissioned an audit of 200 residential kerbside general waste bins
in each three member municipalities (Macedon, Bendigo and Mt Alexander)8. This audit is
the only recent data on any of the three kerbside collections in the Shire. The audit
measured both the weight and composition of general waste bin contents focusing upon
recyclables in the waste bin; it did not assess capacity of the bins (% full) or do a breakdown
of ‘other waste’.
8 Calder Regional Waste Management Group, 2011, Garbage Audits
23Figure 4 Composition of domestic kerbside general waste collection for MRSC (% by weight)
The audit found that the average weight of general waste in the region was 10.54kg per
household, while in MRSC the average weight was 13.28kg per household (higher by
2.74kg). Recyclables incorrectly placed in the waste bin instead of the comingled recycling
bin included aluminium and steel cans, glass, paper and cardboard. Together with garden
organics, this accounted for 13.6% composition by weight.
While this is a reduction from the previous year’s audit of 20.1%, it illustrates that nearly
1.5kg in each MRSC general waste bin was put in the wrong bin as it would be accepted
under the terms of the recycling collection agreement. With the introduction of kerbside
garden organics collection in late 2011, the proportions will have changed. However,
observations by contractors indicate that the average household is still disposing of valuable
recyclable material to landfill, incurring landfill costs and a loss from the recycling rebate.
‘Other waste’ in the general waste bin that could be accommodated in an expanded
recycling contract or deposited at the transfer stations for proper disposal, recycling or reuse
included:
electrical items and wires = toasters, telephones, mobile phone charges, cables,
extension leads
organics = garden material, food, clothing, hats, bags, timber
containers = oil containers
medical items = sharp containers and syringes
metals = tow ball, meat grinder, fans.
There are significant opportunities for households to reduce the quantity and cost of material
disposed to landfill by placing items in the correct bin or dropping off material at a transfer
station.
It is unfortunate that at 86.4%, this ‘other waste’ stream was not further assessed. Typically,
organics can be as high as 40% by weight, even amongst Councils with garden recycling
bins (for more detail refer to Section 6.4.4)
Recycling bins
24Furthermore, with regard to comingled recycling, the available data suggests that MRSC
receives a lower rebate payment than many other councils. Recycling rebates paid to
councils vary according to the value of the material within the collection. Specifically this
means that a high rebate is paid for delivery of a high percentage of valuable materials
(cardboard, metals, and certain plastics) with a low rate of contamination of material that
cannot be processed by the recycling facility (food scraps, garden material, soft plastics).
The price is generally fixed at the time of the contract and also takes account of local and
global demand and commodity prices for raw and recyclable materials.
Contamination rate (%)
Year Metro Non-metro State
2000-01 10.5 5.9 9.5
2001-02 6.5 6.8 6.6
2002-03 5.8 9.5 6.7
2003-04 8.3 9.8 8.7
2004-05 9.9 11.5 10.3
2005-06 11.1 11.9 11.3
2006-07 9.4 11.5 10.0
2007-08 9.8 11.8 10.3
2008-09 8.0 10.8 8.8
2009-10 6.9 8.8 7.5
2010-11 8.2 8.4 8.3
Table 3 Kerbside recyclables contamination rate, Victoria 2000-01 to 2010-11
MRSC currently has no data on the composition of either its kerbside recycling or garden
organics collections, and therefore is unsure of its contamination rate and value of the
collection. However, Council’s collection contractor, Wheelie Waste suggests that
contamination is higher in MRSC recycling collection (~10%) than other municipalities they
service, and hence a lower rebate price is paid than the average. They observe that priority
areas for improvement are Gisborne and Kyneton.
Recommendation 9 Utilise baseline audit data and conduct regular audits of kerbside
and public place bin contents to inform and update contract services and education
campaigns
That Council use the outcomes from Recommendation 2 to inform kerbside
collection specifications and contracts to ensure services contribute to reducing
waste to landfill and increasing recycling.
That through bin audits, Council verifies areas of high levels of contamination for
the purposes of conducting and targeting education and/or notification
campaigns.
That audits assess composition by weight and per cent, calculating food, garden
organics, types of plastics, etc.
That Council use this information in negotiations for an expansion in the list of
items in the next recycling contract and more effective inspection and notification
system for households.
5.4.3 Transfer stations
MRSC currently owns and operates three transfer stations located at Woodend, Kyneton
and Romsey. There are consistent services, prices and arrangements at each site.
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