Waste Management Institute of New Zealand

Transcription

1 Waste Management Institute of New Zealand September 2008

2 ISBN Acknowledgment This document has been prepared with financial support from the Minister for the Environment s Sustainable Management Fund, which is administered by the Ministry for the Environment. Disclaimer The Ministry for the Environment does not necessarily endorse or support the content of the publication in any way. Copyright Reproduction, adaptation, or issuing of this publication for educational or other noncommercial purposes is authorised without prior permission of the copyright holder(s). Reproduction, adaptation, or issuing of this publication for resale or other commercial purposes is prohibited without the prior permission of the copyright holder(s). Printed using vege oil based petroleum-free ecolith inks on ecostar : 100% recycled, post consumer waste, PCF, FSC certified : cover 300gsm text 140gsm

3 Contents 1 Introduction Facilities to which this Guide applies Purpose and scope of the Guide Who should use this Guide? 3 2 Why establish a Resource Recovery Park? General principles New Zealand waste policy and statutory framework The New Zealand Waste Strategy The Waste Minimisation Act Local Government Act 1974 and 2002 (LGA) Resource Management Act 1991 (RMA) Hazardous Substances and New Organisms Act 1996 (HSNO) Building Act Health Act Health and Safety in Employment Act 1992 (HSE) Other considerations Engaging the community Levels of community engagement Formal processes Waste education and other information dissemination The role of Resource Recovery Parks 9 3. Planning and Siting Needs assessment Economic considerations Facility costs Cost recovery Selection of materials for resource recovery Contractual arrangements Site selection Selection criteria Selection methodology Consultation Consents and other approvals Overview Resource consents Building consent Other legal requirements 25 4 Design Design principles Site layout Resource recovery activities Recyclables - plastics, glass, cans, cardboard and paper Scrap metal and appliances Waste oil Vehicle batteries Gas bottles Reusable goods Green waste C&D materials Polystyrene Commercial and industrial waste recovery 33

4 Tyres Hazardous Waste Product stewardship Storage Residual waste Common design features Health and safety Environmental protection Sustainability Durability Efficient materials handling Flexibility and expansion Site infrastructure Gatehouse and weighbridge Security Community and education facilities Staff facilities Utilities Signage Site access and traffic flow Site access Internal traffic flow and control 44 5 Operation and Management Introduction Site management plans Staff Staffing levels Staff training Health and safety Environmental protection Emergency management Materials acceptance and handling Site access and operating hours Materials acceptance Resale of used items Materials handling Hazardous waste Traffic management User education and customer feedback 53 APPENDIX Typical Contents of a Resource Recovery Park Site Management Plan 55 Glossary 57 Index 59

5 Preface This Guide has been produced specifically for New Zealand conditions, although some of the general aspects of the Guide draw on information presented in other design documents. Key reference documents are: EcoRecycle Victoria, July 2004: Guide to Best Practice at Resource Recovery and Waste Transfer Facilities Department of Environment and Conservation NSW, August 2006: Handbook for Design and Operation of Rural and Regional Transfer Stations The Guide includes numerous references to other useful documents. WasteMINZ will endeavour to update these links on a regular basis, but the reader should be aware that due to the rapidly changing nature of the information base on the internet, information relating to specific websites may not always be accurate.

6 Acknowledgements This document has been prepared by Tonkin & Taylor Ltd on behalf of the Waste Management Institute New Zealand (WasteMINZ). WasteMINZ wishes to thank the following individuals for their generous support and contribution: Neal Absalom Jo Cavanagh Brian Gallagher Trudy Geoghegan Kevin Graham Nick Roozenburg Rob Rouse Marian Shore Opus International Consultants Landcare Research Timaru District Council Environment Canterbury Friendlypak Tauranga District Council Ashburton District Council Waitaki Resource Recovery Trust The Project Team: Nathan Baker Patricia Blütner Tony Bryce Nigel Clarke Tony Kortegast Leanne Lassman Tonkin & Taylor Ltd Weitsicht Ltd Tonkin & Taylor Ltd Waste Management Institute New Zealand Inc Tonkin & Taylor Ltd Electric Hedgehog Design

7 List of Abbreviations C&D CCTV ERMA E-waste HSE HSNO LGA LTCCP MfE MRF NES NZWS PPE RMA RRP RTS SWAP TA WMA WMMP Construction & Demolition (waste) Closed-circuit television Environmental Risk Management Authority Electronic waste Health & Safety in Employment (Act) Hazardous Substances and New Organisms (Act) Local Government Act Long Term Council Community Plan Ministry for the Environment Materials Recovery Facility National Environmental Standard New Zealand Waste Strategy Personal Protective Equipment Resource Management Act Resource Recovery Park Refuse Transfer Station Solid Waste Analysis Protocol Territorial Authority Waste Minimisation Act Waste Management and Minimisation Plan

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9 1 Introduction 1.1 Background Resource Recovery Parks (RRPs) are established to collect, separate and transfer recyclable materials and residual waste. In many cases, they also include operations such as composting, the repair and sale of used goods, associated manufacturing and retail businesses, and other activities adding value to the resources that have been recovered. RRPs range from small community-based operations that concentrate on resource recovery while also managing residual waste, to large commercial or public facilities associated with an established or new refuse transfer station or landfill. Often, they serve as a focus for education initiatives to encourage the community to minimise the wastage of useful items and resources. Resource Recovery Parks accept recoverable materials and residual waste direct from the public, and often from contractors and industrial customers. The materials are those not dealt with by conventional refuse collection or kerbside recycling operations and in this way RRPs complement other resource recovery activities that may be in place in a community. Resource Recovery Parks can become attractive locations for a range of businesses as they offer the opportunity to use or process the raw materials collected on the site and exchange by-products. Throughout the world typical Resource Recovery Park activities include: Collection, separation and off-site transfer of a wide range of recyclable materials. Reprocessing of plastics, glass, timber, paper and cardboard (Kraft). Collection, separation, composting and/or mulching of green waste. Commercial-scale materials recovery. Thermal treatment and recovery of energy from waste. Ash reprocessing from waste-to-energy plants. Reprocessing of electronic goods. Concrete crushing for aggregate and recovery of reinforcing steel. Tyre recovery and shredding or reprocessing. Biofuel production. Hazardous waste collection. Contaminated soil treatment. Business support activities. Education. Consolidation of residual waste for transfer to landfill. In New Zealand, Resource Recovery Parks are developed for a variety of reasons ranging from economic objectives to implementing a community s Zero Waste policy or providing an educational opportunity, or a combination of all of these. Whatever the drivers are for establishing a RRP in a particular community, it is important that each facility can adapt to changes in legislation and regulations, economic developments, social and environmental needs and the preferences of its host community. This Guide therefore encourages a flexible approach to facility design and operation to ensure that RRPs remain viable in the long term and contribute to waste reduction and resource recovery in a sustainable manner. Although the size of Resource Recovery Parks may differ, there are some design and operational features that are common to most if not all facilities. key points from this section For the purpose of this document, Resource Recovery Parks are facilities where wastes not dealt with by conventional kerbside recycling and refuse collections are collected to retrieve useful and valuable materials before disposing of the remainder as residual waste. Resource Recovery Parks range from small community-based enterprises to large commercial interests. Although each site is unique, there are some features that are common to all. This Guide provides detailed information on how to assess whether a community would benefit from a Resource Recovery Park, how to plan, design and consent such a facility, and how to operate it safely. The Guide aims to foster a consistent approach to this aspect of waste managementthroughout New Zealand. one : 1

10 To date, the most successful Resource Recovery Parks are those run by informed and enthusiastic staff and as a tidy, efficient and economically viable operation that is readily accessible to the public. The Guide provides the necessary information to allow prospective and existing RRP operators to achieve this. 1.2 Facilities to which this Guide applies For the purpose of this document a Resource Recovery Park is defined as: A facility established for the recovery of resources from the waste stream for subsequent use as raw materials or for re-use, and for the consolidation of residual waste for transfer to landfill. The facility may be publicly or privately owned and operated and may include associated resource recovery and processing operations in addition to collection, separation and transfer activities. In New Zealand, a RRP may provide for the following activities: Recyclables drop-off (plastics, glass, cans, paper, metals, etc.). Green waste drop-off. Green waste processing by composting or mulching, either co-located or remotely. Construction and demolition (C&D) waste drop-off. C&D waste processing. Building and demolition materials resale. Untreated scrap timber drop-off and sorting, typically for use as firewood, mulch or fuel. Biofuel production. Used goods collection, storage, repair and resale. Electrical appliances, furniture and other bulk items drop-off and subsequent dismantling for recovery of components and/or materials. Hazardous waste drop-off. Co-located processing and manufacturing businesses that rely on recovered waste materials as their raw materials, or that otherwise have synergies with resource recovery, for example concrete crushing. Co-located materials recovery facilities (MRFs), i.e. a combination of mechanical and manual sorting of recyclable materials, usually as part of a separate contract for the bulk of a community s recyclables. Educational facilities. Residual waste consolidation for transfer to landfill. The scale and size of a Resource Recovery Park and the extent of services offered will differ from community to community. A RRP can consist of an array of bins for recyclables at a small community transfer station, or be a large-scale recycling operation in a major municipality that offers used goods for resale, incorporates a refuse transfer station and is in close vicinity to a number of co-located waste recovery industries. There are examples around New Zealand that combine a number of the above activities, with a strong emphasis on meeting community needs and making usable goods available for resale and re-use. one : 2

11 1.3 Purpose and scope of the Guide This Guide aims to provide a comprehensive set of guidelines for the design, consenting and operation of Resource Recovery Parks, to promote a consistent approach to this important aspect of resource management in New Zealand. The document focuses on the resource recovery activities on such sites rather than on the residual waste transfer or subsequent processing of recovered materials, such as green waste composting. It describes key processes and criteria for the establishment, design and operation of a Resource Recovery Park and addresses: Rationale and drivers for decision-making. Regulatory requirements. Facility planning and financial considerations. Facility design. Facility operation. A Resource Recovery Park will be developed in one of the following ways: By retrofitting an existing refuse transfer station to meet community resource recovery needs. As a new development on an existing industrial or council site originally used for another purpose, and using some of the remaining infrastructure. As a new development on a greenfield site. The Guide applies to all of the scenarios listed above. It provides overall planning, design and operational principles and key requirements in a systematic manner, but is not intended to be a detailed design manual because each site is unique and requirements are very much location-specific. Where applicable, references are made throughout the Guide to other documents that may offer more detailed information. 1.4 Who should use this Guide? This document is intended for: Local government staff involved with considering, planning or designing resource recovery facilities. Local government staff, both at territorial authorities and regional councils, responsible for consenting Resource Recovery Parks, to foster a consistent approach to consent application processing and consent conditions. Commercial waste businesses developing or operating RRPs. Community groups developing or operating resource recovery facilities. Funding agencies such as community trusts, the NZ Lotteries Commission and the Ministry for the Environment. Government departments. Audit New Zealand. Potentially affected parties to a proposed Resource Recovery Park. Key industrial and commercial waste generators. one : 3

12 key points from this section Resource Recovery Parks are developed for a variety of reasons, ranging from meeting councils long term planning objectives, implementing a community s social and environmental values, and pursuing educational goals to specific economic reasons. The legal framework for Resource Recovery Parks comprises the Waste Minimisation Act, the Local Government Act and the Resource Management Act at its core. Other relevant Acts are the Hazardous Substances and New Organisms Act, the Building Act, the Health & Safety in Employment Act and the Health Act. National Environmental Standards, local bylaws and international obligations may also be relevant. Involvement with the community served by a Resource Recovery Park occurs at three levels by integrating the RRP and its activities into a waste minimisation programme, by consulting with the community during the planning and design stages, and by providing specific user information once the facility is operational. 2 Why establish a Resource Recovery Park? 2.1 General principles Resource Recovery Parks in New Zealand are typically developed to promote and practise waste minimisation in a community. They generally represent one element of a territorial authority s Waste Management and Minimisation Plan (which reflects the New Zealand Waste Strategy s objectives), or are part of a council s Long Term Council Community Plan (LTCCP). The drivers for establishing a Resource Recovery Park may include: Reducing the amount of waste to be landfilled. Conserving resources and promoting sustainable waste management. Meeting community aspirations, values and expectations. Providing overall environmental benefits. Meeting a community s social objectives, for example with respect to creating employment opportunities. Reducing the costs of managing a community s waste, for example to counter the effects of increasing fuel and disposal costs. Maximising the value of recovered materials and associated commercial opportunities. Encouraging a change in mindset from rubbish to resource. Contributing to meeting international obligations (for example the Kyoto Protocol). Providing opportunities for research into resource recovery processes. In developing a community s approach to resource recovery, particularly the recovery of relatively low value materials from the waste stream, the aspirations, needs and preferences of individual communities need to be considered. In many respects these will differ from place to place and with time. In some parts of the country resource recovery efforts will be driven by cost, whereas in others the community may elect to practise resource recovery for different reasons. Regardless of the motivation, cost-benefit studies have an important part to play in project scoping, as outlined in Section 3.2 of this Guide. 2.2 New Zealand waste policy and statutory framework Resource Recovery Parks and related waste management and minimisation activities in New Zealand are largely governed by the requirements of the Local Government Act 1974 and 2002, the Waste Minimisation Act 2008 and the Resource Management Act These Acts direct how councils and communities must plan for waste management and minimisation, and control the environmental effects of waste management. Some aspects of waste management are also subject to other Acts of Parliament as described below. New Zealand s policy approach to managing its waste is set out in the New Zealand Waste Strategy This section of the Guide provides an overview of the legislation relevant to waste management and RRPs. Detailed information regarding the specific consents, licenses and other legal requirements necessary for establishing and operating a RRP is provided in Section 3.5. two : 4

13 2.2.1 The New Zealand Waste Strategy 2002 The New Zealand Waste Strategy (NZWS) 2002 is a long-term strategy aimed at reducing waste, recovering resources and better managing residual waste in New Zealand. It is a national strategy document that focuses on minimising waste and improving the management of residual waste. It guides work on waste issues towards three core goals: Lowering the social costs and risks of waste. Reducing damage to the environment from waste generation and disposal. Increasing economic benefit through more efficient use of materials. The NZWS identifies principles, policies and targets to achieve the vision of Zero Waste and a sustainable New Zealand. The implementation of the Strategy involves the co-operation of a range of stakeholders. Primarily it is a partnership between central and local government, but others such as industry, community groups and households all have important roles to play, for example through consultation and their participation in resource recovery activities. Government intends to review and update the NZWS targets from time to time to ensure that current developments in resource and waste management are taken into account. Download the New Zealand Waste Strategy from: The Waste Minimisation Act 2008 (WMA) This Act aims to encourage waste minimisation and decrease the amount of waste that is disposed to landfill. It seeks to increase the efficient use of materials and a reduction in waste to protect the environment from harm, and provide environmental, social, cultural, and economic benefits. The Act introduces a levy on waste disposal, fosters the development of product stewardship schemes, provides for regulations on waste data collection, establishes a Waste Advisory Board and places more emphasis on waste minimisation in territorial authority planning for waste management. The waste disposal levy will create a fund to be used for waste minimisation programmes. Fifty percent of the waste levy fund will be paid to territorial authorities on a population basis, while the remaining funds, minus administration costs, will be distributed to projects to minimise waste. This will be done through a contestable fund, with the criteria for funding yet to be determined. A Waste Advisory Board will be established to advise the Minister and the Ministry for the Environment on waste minimisation. The Board also has specific functions under the Act, including providing advice on criteria for funding projects through the waste levy and which products should be prioritised for product stewardship schemes. Territorial authorities will be required to align their funding of waste minimisation initiatives using their portion of the levy with their Waste Management and Minimisation Plans. This legislation effectively consolidates all waste legislation into one Act, replacing the waste management provisions in Part 31 of the Local Government Act It sets out specific requirements for territorial authorities to adopt Waste Management and Minimisation Plans, and details of what these plans must provide for. The Waste Minimisation Act also proposes that such plans must have regard to the New Zealand Waste Strategy. two :

14 The Act allows for regulations to be made for obtaining data on waste from operators of disposal and other waste receiving facilities (such as recycling facilities) and territorial authorities. The greater emphasis on waste minimisation it creates may increase the role of Resource Recovery Parks Local Government Act 1974 and 2002 (LGA) The LGA directs how councils and communities plan for waste management and requires every territorial authority (TA) to provide efficient and effective management of waste within its district. In particular, the LGA requires territorial authorities to have a long-term plan for waste management. Long Term Council Community Plans (LTCCP) The LGA 2002 requires every territorial authority to have an LTCCP. This is a strategic plan to consider and allocate funding over the long term, including resources for waste management. In regards to Resource Recovery Parks, the LTCCP must identify and plan for all waste management and minimisation activities. Spending from the waste disposal levy fund will need to be included in the LTCCP. Waste Management and Minimisation Plans Waste Management Plans, previously required under the LGA 1974 and 2002, are now required under Part 4 of the Waste Minimisation Act and have been renamed Waste Management and Minimisation Plans. Territorial authorities are required to prepare a Waste Management and Minimisation Plan to promote effective and efficient waste management and encourage and promote waste minimisation within their district. When preparing a plan territorial authorities must consider, among other things, the following hierarchy of methods for managing waste: Reduction. Reuse. Recycling. Recovery. Treatment. Disposal. Methods higher up in the hierarchy are given priority because they use fewer resources. Resource Recovery Parks provide a means to facilitate reuse, recycling and recovery of resources Resource Management Act 1991 (RMA) The purpose of the RMA is to promote the sustainable management of natural and physical resources. One of the key mechanisms for doing so is the avoidance, remediation and mitigation of adverse effects on the environment. In the context of managing waste, this means that the RMA sets controls for any discharges (emissions) arising from waste activities. This aspect is managed by regional councils through policies in Regional Policy Statements, rules in regional plans and conditions of resource consents. The RMA also controls the use of land. This function is the responsibility of territorial authorities, i.e. city and district councils and is largely achieved through rules and other methods in district plans, which address issues such as zoning and the siting and design of buildings. two :

15 2.2.5 Hazardous Substances and New Organisms Act 1996 (HSNO) The HSNO Act, administered by the Environmental Risk Management Authority (ERMA), is the principal legislation addressing the use of hazardous substances in New Zealand. Its purpose (Section 4) is to protect the environment, and the health and safety of people and communities, by preventing or managing the adverse effects of hazardous substances and new organisms. It does so through controls placed on imported or manufactured hazardous substances throughout their life cycle, for example with regard to the identification of substances, tracking, packaging, qualifications for persons handling hazardous substances, and disposal. At present, the disposal regulations apply to pure substances that have become a waste, but the Ministry for the Environment is currently developing Group Standards for hazardous wastes, which are expected to extend the coverage of these Regulations. The storage, disposal and handling provisions in particular are important in the context of operating Resource Recovery Parks, and relevant certification may be required for these activities Building Act 2004 The Building Act 2004 controls the building of structures, and applies not only to the construction of new buildings but also to the alteration, demolition and maintenance of existing buildings. Structures associated with a Resource Recovery Park are likely to require a building consent under this Act Health Act 1956 The Health Act seeks to ensure that activities are not offensive or injurious to public health. In the context of Resource Recovery Parks, Clauses 29 to 35 of this Act (Nuisances) and 54 to 55 (Offensive Trades) apply as action may be taken by the Act s enforcement agents if nuisances (for example, harbouring rats or other vermin) are created during the operation of the facility. It should also be noted that refuse collection and disposal are included in the definition of an offensive trade in Schedule 3 of this Act Health and Safety in Employment Act 1992 (HSE) The purpose of the HSE Act is to promote the prevention of harm to all persons at work and other persons in, or in the vicinity of, a place of work. With regard to Resource Recovery Parks, the Act seeks to ensure that employees, volunteers and users of the site can undertake activities in a healthy and safe environment, and that all practicable steps are taken to achieve this. The development and implementation of a Health and Safety Plan is an essential requirement of this legislation and hence a key requirement for any Resource Recovery Park. Download New Zealand Acts of Parliament from: Other considerations National Environmental Standards and Guidelines Section 43 of the RMA allows the Ministry for the Environment to develop National Environmental Standards (NES) and Guidelines. An example is the National Environmental Standard for Air Quality Other Standards or Guidelines relevant to waste management may be prepared in the future. two : 7

16 International treaties and obligations New Zealand is signatory to a range of international treaties that have a potential impact on the sustainable management of resources, waste and the protection of the environment. Of potential relevance to the design and operation of RRPs, at least during strategic planning, are the Kyoto Protocol and its implications for climate change policy, and the Stockholm Convention on Persistent Organic Pollutants. Local Bylaws The Waste Minimisation Act sets out a specific bylaw making power by territorial authorities for waste management. Such bylaws may cover a range of issues, including but not limited to regulating the collection, transport and deposit of waste and prescribing charges for facilities owned or operated by the TA. Trade waste bylaws exist in almost all areas of New Zealand. These control what is discharged into the sewerage system and, depending on the nature and quantity of wastewater generated on the site, a trade waste permit may be required. Waste management tools The recently introduced waste tracking system WasteTRACK is an internet-based tracking system that consolidates manifest, facility and carrier data to track liquid and hazardous wastes from generation, through transport, to treatment or disposal. The system is administered under contract to the Ministry for the Environment and is available to those businesses that are operating in accordance with the Liquid and Hazardous Waste Code of Practice or are required to use it to meet council requirements. At present, WasteTRACK is mainly applied to septic tank and grease trap wastes, but its tracking potential may also be applied to other material streams in the future and thus become relevant to Resource Recovery Parks. Another management tool for a particular type of waste is Tyre Track, a national online database system which links disposers of old tyres with transporters and end users. The system is operated by the Motor Trade Association and supported by the Ministry for the Environment. Download up-to-date waste management information from: Engaging the community Levels of community engagement Effectively engaging the community is an important consideration when establishing and operating a Resource Recovery Park. In this context engaging the community falls into three general categories: two : 8 Providing information to the community and raising general community awareness of waste issues, with the ultimate objective of changing attitudes and behaviours to promote waste minimisation and encourage a change in buying habits. Resource Recovery Parks often serve as a focal point for waste minimisation activities, and their place in a community awareness programme is discussed below. Consultation with the community in relation to identifying the need for a Resource Recovery Park, determining community objectives and aspirations, planning for the facility and determining any specific concerns that may need to be addressed as part of the planning process. This process is detailed in Section 3.4.

17 Providing specific information to the users or potential users of the Resource Recovery Park to optimise the use of the facility and enhance resource recovery. Community engagement at this level is required for the successful operation of the facility and is described in Section Formal processes Waste management planning is principally the domain of territorial authorities, although regional councils are also involved in some areas. The formal processes available to local government for engaging with their community are through Long Term Council Community Plans (LTCCPs), Annual Plans and Waste Management and Minimisation Plans. Preparation of these plans involves prescribed consultation procedures through which the community can participate in the planning process. The establishment and/or ongoing operation of a Resource Recovery Park would be part of this process. Waste Management and Minimisation Plans are required under the Waste Minimisation Act. They must specify methods for achieving effective and efficient waste management and minimisation in the district, including any educational or public awareness activities that may centre on a Resource Recovery Park Waste education and other information dissemination Information about managing resources and wastes sustainably can be provided through channels such as council newsletters, websites and other media. These may range from high-level, concept-orientated features to specific announcements about the Resource Recovery Park s operational details. Waste education initiatives can be directed at the community in general, the business sector or identified interest groups. Waste education in schools, as part of a structured programme, is also an important component in any community awareness programme. This provides an opportunity to influence more than one generation, as children will often encourage their parents to take action based on what they have learned in school. Such programmes could range from addressing consumption and reduction aspects of waste management, to identifying what materials are recyclable and how to sort them. Resource Recovery Parks are likely to feature prominently in these programmes as they are an integral part of a community s waste minimisation efforts. A visit to the RRP can be a suitable education outside the classroom opportunity to reinforce the lessons learned in the classroom. School education is an activity that could be undertaken by council waste minimisation officers, staff from waste contractors, or staff from another agency contracted to either of the above The role of Resource Recovery Parks Resource Recovery Parks provide an excellent focus for community education programmes on all levels. RRPs are living and working examples of resource recovery and waste minimisation. Open days for the general public as well as specific visits by school and/or community groups therefore provide valuable opportunities for practical learning. These learning experiences can be enriched by providing a resource and/or lecture room, exhibits of materials and products made from recyclable materials, posters and diagrams explaining what happens to the collected materials, and similar information. Talks and guided tours by enthusiastic and knowledgeable staff may further enhance these experiences. two : 9

18 A successful community awareness and education programme is integral to the success of a Resource Recovery Park. Community awareness programmes should be carefully designed with measurable objectives about behaviour change and the role of the RRP, to provide feedback for continual improvement of the programme. two : 10

19 3. Planning and Siting 3.1 Needs assessment key points from this section The need for a Resource Recovery Park is determined during the course of overall waste management and minimisation planning in a district, or as part of business planning in the case of a proposed private development. The needs assessment would consider whether the facility will: Sustainably increase resource recovery and reduce the amount of residual waste going to landfill. Reduce the wastage of valued materials, commodities or items. Reduce or increase the overall waste system cost. Be compatible with other local and national resource recovery initiatives. The key factors to be considered when undertaking a needs assessment and planning for a Resource Recovery Park are: Community issues Resource availability Identification of the community to be served and the location of its waste catchment boundaries (which may extend beyond the territorial authority boundary). Quantification of community demographics, particularly population size and number of households. Identification of specific social and environmental goals; these may have been signalled through formal council processes such as Annual Plan consultation or raised by elected representatives. Consideration of community acceptance of similar initiatives in the past. The number of resource recovery facilities already serving the community and/or located in neighbouring districts. The extent of kerbside recycling collections in the area, and other council or private recycling initiatives. Quantification of other resources remaining in the community that could be potentially collected at a Resource Recovery Park. This would be determined through: Carrying out a Solid Waste Analysis Protocol (SWAP) to analyse the household refuse collection and the refuse being deposited at the transfer station. Surveying residents to determine existing resource recovery behaviours and willingness to change. Surveying industrial and commercial premises about existing resource recovery practices and their potential use of a RRP. Estimating potential future waste and resource growth Finding out whether a community would benefit from a Resource Recovery Park is the first step in the planning process. This process includes activities ranging from appraising the community itself, assessing whether sufficient resources would be available for recovery and identifying possible markets for recovered materials to addressing economic, social and environmental issues. When the decision to establish a Resource Recovery Park has been made, the groundwork must include addressing financial matters (all costs and how they will be recovered, and what contracts will be involved), finding a suitable site and consulting with the host community and other interested parties. The final step in the planning phase is obtaining all necessary consents and other approvals to build and operate the Resource Recovery Park in accordance with the law. three : 11

20 Market analysis Business opportunities Economic issues Environmental considerations The presence of industries or contractors already established in the area to collect and process materials, or that could be encouraged to locate in the area if this was shown to be economically viable. The markets available for recovered resources, and their ongoing viability. The economics of collection, processing and transport of collected materials to markets and/or processors. The possibility of joint ventures or other arrangements with industry, neighbouring or other local authorities or community-based organisations. The expected cost to develop and operate the Resource Recovery Park. The likely commercial, organisational and technical sustainability of the proposed facility, and the ability to deliver what is promised on a long-term basis. Cross-boundary issues such as cost differentials for the disposal of residual waste. Confirmation that the establishment of a Resource Recovery Park would generate an overall environmental benefit. The result of this analysis will provide the information required to help decide whether a Resource Recovery Park is needed, the type of facility required, and the scope of services to be provided. The analysis will determine: The range of materials to be targeted for resource recovery. A list of materials typically collected by New Zealand Resource Recovery Parks at present is shown in the side bar. It may be appropriate to prioritise targeted materials into A and B lists for progressive implementation as cost and other considerations allow. The expected quantity of different materials - daily, weekly and monthly - to provide information for sizing the facility. Storage requirements, based on the expected removal frequency of materials from the site compared with the expected inflow of materials. Requirements for any materials processing on site, for example: Green waste mulching or composting (in-vessel or open windrow composting). Sorting and/or processing of C&D waste, including removing steel from concrete and crushing concrete to aggregate. Baling of polystyrene, plastics, cardboard, paper etc. Whether there is a demand or desire for the resale of used goods. The extent of hazardous waste collection that is required. Whether special wastes such as expired LPG bottles and electronic waste (e-waste) should be accepted. Residual waste handling requirements. The potential for associated industries to establish in the area. three : 12 Contracts may ultimately be let for the operation of the Resource Recovery Park and/or the removal and processing of materials from the site. Consultation with prospective contractors should be undertaken at the planning stage to determine their capabilities and hence the contracting model that may be viable, and the range of materials that could be collected initially as well as further down the track.

21 Product stewardship schemes are expected to grow in the future following the introduction of new waste minimisation legislation. Where possible, facilities should accommodate and enhance product stewardship schemes rather than competing with them, to ensure maximum environmental benefit. Download information on existing product stewardship schemes from: Homogeneous resources (those that have already been separated, or have been collected separately) should not be handled through a Resource Recovery Park but should go directly to a suitable processing plant or end use. 3.2 Economic considerations Before a Resource Recovery Park development can proceed, those involved with the project such as the territorial authority, community group or private developer need to know what it will cost, how costs will be recovered, what other benefits may arise from having a RRP, whether there will be any cost to ratepayers, the financial risk of the project and what contractual arrangements may need to be made Facility costs Costs associated with the establishment and operation of a Resource Recovery Park include: Pre-development costs arising from consultation, planning, consenting and design of the facility. Land purchase costs where an existing site is not available for retrofitting or expansion. Capital costs for establishing the facility, including the purchase of plant and machinery. Ongoing capital development costs for growth and operational changes. Maintenance and replacement of site infrastructure, plant, machinery and buildings. Salaries and wages for management and operations staff and training. Administration, including overheads, insurances, site security, waste data collection and processing, and levy collection and processing. Consumables and utilities such as fuel, electricity, telecommunications, water and sewerage charges, trade waste charges and similar expenses. Resource consent fees and charges required by regional councils and territorial authorities and the cost of monitoring and reporting associated with resource consents. Materials handling costs including transport of recyclable materials and residual waste from the site and charges applied by third parties for receiving recovered materials, and landfill gate charges for the disposal of residual waste. Materials and products commonly collected at New Zealand Resource Recovery Parks Aluminium & steel cans C&D waste Car bodies Cooking oil Engine oil E-waste Glass bottles & jars Green waste Household batteries Paper & cardboard Plastics Polystyrene Scrap metals Tyres Vehicle batteries Whiteware Cost recovery Costs can be recovered from a combination of some or all of the following: Gate charges for the disposal of materials, including residual waste. Sale of collected recyclable materials. three : 13

22 example Te Maunga Resource Recovery Park The Te Maunga Resource Recovery Park in Tauranga was previously a refuse transfer station. The site now accepts: Plastics, cans, glass and paper. Green waste, on a split level with bins. C&D waste, including concrete. Sale of processed materials and products. Sale of reusable goods. Territorial authority rates. Product stewardship scheme providers. Waste levy funds. Pricing structures at a Resource Recovery Park should support the facility s objectives. The extent to which the community and/or the council wish to promote recycling and the willingness of RRP customers to pay will determine whether any materials are accepted without charge, and the differential charge between various materials. Experience throughout New Zealand and elsewhere indicates that establishing a significant cost differential between recyclable materials and residual waste is an important aspect of a Resource Recovery Park s charging regime. A typical model used throughout New Zealand is: Acceptance of targeted recyclable materials free of charge. Acceptance of green waste at a reduced rate, typically 50 80% of the full residual waste charge. Acceptance of residual waste charged on a full user-pays basis. Car bodies, appliances and other bulk items. Where costs to operate the Resource Recovery Park are greater than the costs recovered, the shortfall is typically made up from territorial authority rates. Some years ago the Tauranga City Council set aside surrounding land to encourage resource recovery activities to locate in this area. Businesses currently operating on the site that source materials from the Resource Recovery Park are: 1. A MRF set up to process recyclable materials predominantly from kerbside collections. 2. A C&D waste processing operation undertaking concrete crushing and related activities. 3. A composting facility utilising open windrow composting. 4. A solvent recovery business. Apart from the direct cost recovery detailed above there are a number of avoided costs that need to be considered as part of the overall economic assessment of the project. These include: Savings in landfill gate charges (including waste levy) for the materials diverted. Savings in transport costs to the landfill for the materials diverted. Savings in landfill airspace for the materials diverted, and hence deferment of developing future landfill stages. The development and operation of a Resource Recovery Park may also have a number of social and environmental benefits, such as: Promoting waste minimisation attitudes and practices, particularly through any associated public education and awareness programmes. Creating employment opportunities. Removing potentially harmful products from the environment. Reducing the wastage of resources and decreasing the need to source virgin materials. Decreasing the carbon footprint of the waste system. These and other benefits can be difficult to quantify in financial terms but need to be considered as part of a cost-benefit analysis. Overall, the Resource Recovery Park s financial viability will depend on the services offered and the number of other sites operated by the same organisation. Profitable activities or sites may be able to support other less profitable activities to achieve specific environmental and social objectives. three : 14

23 3.2.3 Selection of materials for resource recovery When deciding which resources should be collected by the RRP, a basic costbenefit analysis should be undertaken to determine the resource streams that have the highest potential for financial return. The following parameters should be considered: Costs Benefits Staff time required to handle the resource. Cost of bins and any specific plant required for the collection and handling of the resource. Costs associated with any additional land needed to accommodate the handling and/or storage of the material. Transport costs. Signage and promotional material. Value of the resources when sold to a third party. Value of the landfill airspace saved. Value of the residual waste transfer costs saved. Value of the landfill gate charges and waste levy saved. Value of the reduced carbon footprint. Social and environmental benefits. Such an analysis assumes that the material is delivered to the Resource Recovery Park as residual waste. The difference between the cost of disposing of it as residual waste to landfill and the cost (or financial return) of diverting it from landfill represents the net saving achieved by recovering the material. Depending on the objectives of the Resource Recovery Park, the decision to recover a particular resource may not be made solely on a financial basis; for instance, a resource may be targeted because of its potential environmental harm. This also applies to choices made about handling and processing materials; for example, a New Zealand-based reprocessor may be selected despite the lower financial return because of the potential social and environmental benefits of such an arrangement Contractual arrangements Resource Recovery Parks around New Zealand are typically operated by: Council staff. Private contractors under contract to the territorial authority. Community trusts. Private companies that own or lease the facility. The most common arrangement is for all or significant parts of a facility to be operated by one or more contractors under contract to the territorial authority that owns the RRP. In some cases this contractor may be a community-based organisation, and the nature of the contract may differ from that used in a strictly commercial arrangement. A contract defines the overall scope of work, the standard of work required, the costs and how the various risks associated with the contract works are shared between the contractor and the principal. Contracts for the operation of a Resource Recovery Park may cover some or all of the following: three : 15

24 Full operation of the Resource Recovery Park (and refuse transfer station where it exists) including fee collection, weighbridge and pit operation and transfer of residual waste to final disposal. Operation of the RRP, including removal of materials from site. Operation of the RRP only, with separate contracts for the removal of specific materials from site. Fee collection only. Operation of various resource recovery processing facilities on site. Leasing of land for the processing of recovered resources or associated activities in close proximity to the RRP. The following key issues need to be considered when determining the risks and hence costs and structure of a contract: Ownership of materials and at what point ownership changes. In some instances the principal may retain ownership throughout the process, until materials are sold either for processing or as a final product after processing on site. In this case the principal carries the risk of fluctuating market conditions. Alternatively, the contractor may have ownership from the time the materials arrive at the Resource Recovery Park, in which case the contractor carries the risks associated with their sale and/or disposal. Waste quantities. This aspect will be influenced by the age of the facility. For a new Resource Recovery Park, the quantity and types of materials likely to be collected will have a high level of uncertainty. In this instance the principal may wish to carry the risk associated with material quantities by specifying a cost reimbursement¹ arrangement. Alternatively, for an established facility with a good record of materials being received at the site, it may be more appropriate for the risk to be carried by the contractor. This provides an incentive for the contractor to maximise the recovery of materials from the waste stream, particularly those with a higher value. Where certain materials have low market value, but there are other reasons for their removal from the waste stream, the contract could provide for paying a premium for such materials to provide an incentive for their recovery. Stability of recycling markets. Where there is significant fluctuation in markets for materials that the principal wants removed from the waste stream, the principal may consider carrying this risk by paying for such materials on a cost reimbursement basis. Gate fees. The contract must establish whether fees are set and collected by the principal or the contractor. Where this task is the responsibility of the contractor, there should be limitations placed on the amount of fees that may be charged. Alternatively, the contract could specify a method for determining fees. The duration of the contract. This becomes important where the contractor is required to supply plant and equipment. The contract period needs to be of sufficient length to provide a reasonable pay-back period for the investment in plant and equipment. Data collection. This aspect of operating a Resource Recovery Park will gain increasing importance under the new waste minimisation legislation. The contract must establish which party is responsible for data collection, the type and quantity of data required and the method of collecting it. Reporting specifications must also be addressed. three : 16 1 In a cost reimbursement contract the contractor provides evidence of actual costs for handling the agreed items and adds an agreed margin to cover overheads and profit.

25 The contract should address the issue of payments to the contractor from general rates or other funding sources in addition to the revenue earned at the Resource Recovery Park itself where it is expected that the resource recovery activities are unlikely to be self-funding. In general terms, contracts that specify the outcome(s) required by the facility owner and allow the contractor to determine how to deliver that outcome provide the best overall result. Download information on recycling and waste management contracts from: kshop% pdf 3.3 Site selection Selection criteria Land use Community served The optimal location for a Resource Recovery Park is one where the existing land use is already associated with waste and materials handling. An existing refuse transfer station or a landfill closed or operational - near the population centre would be a logical location for a Resource Recovery Park. However, construction on closed landfills poses technical challenges due to ground settlement and landfill gas generation. For other sites, it will be necessary to determine whether the zoning in the district plan allows for the development of a Resource Recovery Park. Areas zoned for industrial land use are often compatible with RRP activities, and many such facilities have been established in industrial areas. It is essential to clearly identify the communities to be served by the Resource Recovery Park and to find a location convenient for most people. For example, many districts in New Zealand comprise a number of small rural towns in relatively close proximity and a large rural population, which may significantly influence the type, location and number of facilities to be provided. In such areas, it may be appropriate to offer a number of small drop-off centres to supplement one large RRP rather than establishing a single facility in a more central location. three : 17

26 example The Waitaki Resource Recovery Park Transport distances Transport distances are critical to the viability and community acceptance of a Resource Recovery Park. It may be useful to conduct a survey in the target community, or investigate trends in comparable communities, to find out what distance the prospective RRP users would be willing to travel to dispose of their recyclables and other unwanted materials. The Waitaki Resource Recovery Park in Oamaru services a population of around 12,000 and is managed by the Waitaki Resource Recovery Trust, a non-profit community enterprise. The facility was established on a disused council works site and uses existing buildings and facilities. Environmental considerations The distance from the facility to resource processing plants and the landfill accepting residual waste should be optimised. For many rural areas, these distances can be considerable and the mode of transport (road, rail or ship) takes on particular significance. Locating the facility close to main arterial roads, the rail network or a port will improve transport efficiencies and minimise the effect of traffic on the community. Resource Recovery Park siting should avoid: Natural hazard zones such as geothermal areas, coastal erosion zones, and flood zones. Any adverse effects on the local terrestrial and aquatic ecosystem, including significant flora and fauna. Areas of historical or cultural significance such as waahi tapu. The Park is open 7 days a week for the drop-off of materials, and the Get Sorted resale shop is open 4 days a week. Impacts on the local community Regional and/or district plans are valuable sources of information for locating potentially unsuitable areas including those listed above. The operation of a Resource Recovery Park has the potential to adversely affect neighbouring areas. Potential effects include: Up to 500 people pass through the Park on any one day, and 83% of the materials entering the Park are recycled by the 23 staff (14.8 full time equivalents) and 6 part-time volunteers. An increase in traffic. Litter generation. Odour emissions. Noise effects. Dust generation. Aesthetic impacts. Mitigation measures that may be employed during design and construction and as part of operational procedures are discussed in Sections and 5.5 respectively. three : 18 The availability of appropriate buffer distances between the facility and its neighbours can greatly increase the suitability of a site. Buffer zones have the potential to minimise the adverse effects associated with litter, odour, noise and dust, and can provide a visual barrier for aesthetic purposes. Required buffer distances may be specified in the district plan. Where this is not the case, appropriate separation should be determined based on the potential effects of the operation on adjacent land uses.

27 Local infrastructure Site characteristics Site area Depending on the extent of the services offered, Resource Recovery Parks will require some or all of the following: Electricity three-phase power is likely to be required. Telecommunications. Water supply for fire fighting and general potable use. Sewerage. Access roading of a suitable standard for the traffic likely to be generated. Stormwater disposal (either through a trade waste connection or on-site treatment). The availability and cost of providing such infrastructure is an important component of the site selection process. A gently sloping site is best suited to assist drainage. A steeper portion of the site may facilitate split-level design for a residual waste transfer, green waste dropoff or similar. The direction of the prevailing winds is important in relation to neighbouring land uses and potential odour generated by the Resource Recovery Park. Site features that funnel wind onto the facility may create litter problems and other difficulties for partially open structures. Areas of ground instability may affect the ability to develop the entire site and will increase the cost of site development. Old landfills will impact on the foundations of buildings on site. Special protection measures to prevent landfill gas collecting within the structures will be required. Large upstream catchments may require significant diversion works and should be avoided. A conceptual site layout should be prepared to identify the area of land required. The plan should be based on the: Extent of services and facilities to be provided, as identified in the needs assessment (refer Section 4). Estimate of additional area for future-proofing the site and supplementary or emergency storage areas for stockpiling resources during times of severe market fluctuations. Size of appropriate buffer distances. three : 19

28 3.3.2 Selection methodology As noted previously, Resource Recovery Parks are often co-located with existing waste management activities such as a refuse transfer station or landfills, whether operational or closed. Consideration should also be given to adapting other council-owned sites not previously used for solid waste activities and utilising some of the existing infrastructure on the site. Provided that these sites are zoned appropriately and are conveniently located to serve their host community, the selection process is likely to be straightforward. However, if there is no suitable existing site available and a greenfield site needs to be found, a robust site selection process will be required. Typically such a process is based on desk and field studies as described below. Depending on the circumstances and size of the proposed Resource Recovery Park, it may be sufficient to carry out a map-based search for suitably zoned and sized sites. However, it may be necessary to undertake a more rigorous constraint mapping approach to identify and rank possible locations. A simple map-based approach includes: Preparing a conceptual layout of the proposed Resource Recovery Park and determining overall land area requirements. Locating available land areas of suitable size within appropriate land use zones. Determining who owns the land (council-owned land may be preferable). Confirming the availability of the required land or, in the case of existing refuse transfer stations, the availability of sufficient land on the site itself or on adjacent property. Identifying any issues that could impact on obtaining resource consents for the identified sites. Checking that the key factors identified in Section can be adequately addressed. Key steps in a more rigorous constraint mapping procedure include: three : 20 Desk Top Exercise Preparing a conceptual layout of the proposed Resource Recovery Park and determining overall land area requirements, including allowance for buffer zones, access and screening. Identifying the community to be served (the waste catchment for the facility) and acceptable travel distances (refer Section 3.3.1). A map showing those distances should be prepared. Where more than one community will be served the overlapping areas are likely to contain the preferred locations. Marking suitable land use zones within the identified area(s). Highlighting known waahi tapu, historical sites, areas with significant fauna and flora and natural hazard zones as no-go areas. Identifying main arterial routes and other transport networks into the area, as well as residential streets that cannot be used for Resource Recovery Park traffic.

29 Showing the location of resource processing and residual waste disposal sites to calculate transport distances to these locations. Identifying any site-specific issues such as areas of known instability, landfill gas generation and similar. The map and associated documentation resulting from this process will highlight suitable sites in the area that are zoned appropriately and take account of the key factors outlined in Section 3.3. The next step involves the fieldwork outlined below, which may be undertaken in parallel with the consultation process described in Section 3.4. Fieldwork 3.4 Consultation Identifying actual sites that are available within the selected area(s) and close to key transport routes. Listing any issues that could impact on obtaining resource consents. Ranking sites based on the field investigations undertaken, and their likely availability. Determining whether the conceptual site layout fits the preferred sites, or how the site layout could be adapted if the site is suitable in all other respects. Considering further constraints or additional cost implications. Evaluating the potential for future expansion. Preparing a multi-criteria assessment matrix for the shortlisted sites that includes costs and the key criteria listed in Section 3.3. Scoring each of the sites against these criteria will determine the preferred location for the proposed Resource Recovery Park. Resource Recovery Parks are generally developed to serve the local community and it is essential to consult this community as early as possible so that expectations and concerns can be identified and addressed. This may initially be done through the preparation of LTCCPs and Waste Management and Minimisation Plans and, for a specific proposal, in accordance with the Resource Management Act. The RMA sets out requirements for public notification, and therefore the public s ability to make submissions on resource consent applications. However, when a proposal is a Permitted Activity or meets certain nonnotification criteria - for instance, where the adverse effects of an activity are expected to be minor and written approval has been obtained from every affected person the involvement of the public in the planning process is limited. For a Resource Recovery Park, which can only become a successful undertaking if it is supported by the host community, it is generally not appropriate to rely solely on the minimum consultation required by legislation. It is considered to be best practice to undertake effective and meaningful consultation specific to the project. In practice, this involves consulting with the community prior to formally lodging resource consent applications with the territorial authority and regional council. The costs of this consultation process can be significant and must be factored into the overall budget for the proposed Resource Recovery Park. three : 21

30 It is possible that the consultation process will involve two distinct groupings, namely the wider community who are likely to support the Resource Recovery Park, and the immediate neighbours of the site who may be more inclined to oppose the project. The extent of consultation will vary depending on the type, size and location of the planned facility. It is important to ensure that a basic level of understanding regarding the project is achieved during pre-application consultation, rather than overwhelming the target audience with technical details (although these should be made available upon request). A consultation plan is likely to be useful in most cases and should address the following: Target audience Communication methods The local community. Owners and occupiers of neighbouring properties. Local community enterprises and groups involved in job creation, environmental issues and fund raising. Local recycling and waste contractors. Local businesses that may be affected by the proposal, such as demolition or scrap metal yards and second hand stores. Local iwi. The territorial authority to discuss waste and hazardous substances, planning issues, environmental health matters, traffic and parking requirements. The regional council to discuss discharges and resource consent requirements. Transit New Zealand, if state highways will be affected. The Department of Labour with regard to hazardous substances and health & safety issues. The Fire Service to discuss emergency management concerns. Government agencies such as Work and Income NZ and the Ministry for the Environment. Staff at the territorial authority and regional council may be able to assist with identifying affected and interested parties. Neighbour and community consultation may involve a letter drop with an information pack outlining the basics of the project and inviting those interested to a public meeting to discuss the project further. Cottage meetings (talking directly with small groups of residents near the proposed Resource Recovery Park) are likely to be the most effective. Meetings can also be arranged with specific groups, for example business groups, waste contractors, environmental groups and others. three : 22

31 Information to be provided Documentation of consultation outcomes An overview explaining the community issues regarding waste management and the need for a Resource Recovery Park. The results of previous consultation and current mandates, for example in relation to the Waste Management and Minimisation Plan. The options that have been considered and investigated. Specific project information such as the proposed location plan, concept plan, resource recovery process and complaint procedures during operation. Likely environmental effects and mitigation measures. Details about the consultation process, statutory framework and how comment can be submitted. The duration of the consultation period. The consultation process and feedback should be documented as a matter of course. A summary of all comments, submitters and responses should be made available to all who have participated in the process and other interested parties. 3.5 Consents and other approvals Overview All consent requirements should be identified and confirmed at the start of the planning process. Territorial authorities and regional councils are responsible for the majority of consents required and should be the first point of call. Unless identified as a Permitted Activity in a district plan, the construction and operation of a Resource Recovery Park will require a land use consent from the territorial authority or a designation². Similarly, consents for the discharge of contaminants to air and water will be required from the regional council if these are not provided for as a Permitted Activity in a regional plan. Where the proposed facility falls within the definition of a Permitted Activity, the conditions set in the respective plans must be complied with. There may also be a number of other approvals required, primarily a building consent from the territorial authority. Consenting and approval requirements must be well understood by the project manager and factored into the project management timeline and budget. Where discretionary or non-complying resource consents are required, there is no guarantee of success and a timeframe of two years is not uncommon if the process is publicly notified. Appeals to the Environment Court are also possible, which could cause further delays in the development process Resource consents A resource consent application requires an assessment of the environmental effects of the project. Territorial authorities and regional councils should be contacted during the early planning stages of the project to: 2 Designations allow a requiring authority, usually a Minister of the Crown or a territorial authority, to plan for public works and network utilities by setting aside an area of land outside the provisions of the district plan. This approach is an alternative to the resource consent process but it is only available when the proposed Resource Recovery Park is owned by a requiring authority. The procedure for designating land is described in Part VIII of the RMA. three : 23

32 Confirm their information requirements. Discuss alternative consenting strategies (a plan change or designation may be appropriate). Determine which consents may be required. Obtain assistance with identifying affected parties. Address the likelihood of public notification of the consent application. Discuss the possibility of a joint hearing. Where a land use consent is required, the environmental effects to be addressed include: Visual effects such as the scale and siting of buildings in relation to neighbouring properties. Noise effects, for example those generated by vehicle movements and the various activities undertaken on the site such as sorting and glass crushing. Environmental health concerns such as the risk to public health caused by the presence of vermin. Operating hours. Effects on traffic safety associated with the use and servicing of the facility. Consideration of natural hazards such as floods and land slides. Zoning, especially with regard to the interaction between neighbouring zones and the potential for reverse sensitivity effects. For discharge consents from the regional council, the following must be addressed: Emissions to air, including dust and odour discharges. Discharges to land and water, including stormwater discharges. The ease and duration of the resource consent process will largely depend on the accurate presentation of project information, the outcome of the consultation process, demonstrating a robust site selection process and the mitigation measures employed to control environmental effects. Download district plans and regional plans from the website of the relevant territorial authority and regional council Building consent A building consent is an approval from the territorial authority to carry out building works at a specific site. Obtaining this consent ensures that building, plumbing, drainage and fire safety requirements are in compliance with the New Zealand Building Code. Information requirements should be discussed with the territorial authority s building inspector as early as possible, particularly given that a Resource Recovery Park may have a number of complex structures on site. Key information to be provided includes an accurate and detailed set of building plans, engineering drawings of stormwater and drainage networks, and possibly geotechnical information regarding land stability. The legal timeframe for obtaining a building consent is 20 working days, although delays can be expected if the proposal is large, complex and/or unusual. A building inspection is part of this process. three : 24

33 Download the NZ Building Code from: Other legal requirements A number of other consents and approvals may be required, such as: A trade waste permit from the territorial local authority or local sewerage network operator, if the activities on the site generate a substantial amount or highly contaminated waste water. A Location Test Certificate for the storage of certain hazardous substances. These are issued by independent Test Certifiers approved by the Environmental Risk Management Authority (ERMA). A Sale of Second Hand Goods License if goods are being resold on site. This license is issued under the Secondhand Dealers and Pawnbrokers Act 2004 by the Licensing Authority appointed (and administered) by the Ministry of Justice. All electrical appliances in New Zealand must comply with basic safety requirements, in accordance with the Electricity Regulations 1997 (specifically Regulations 69 and 76 which relate to general safety). A qualified electrician should be consulted to ensure compliance. Transit New Zealand approval for access onto and off state highways. Download a List of Test Certifiers from: three : 25

34 key points from this section 4 Design 4.1 Design principles Resource recovery processes can be significantly enhanced through adopting safety, userfriendliness, sustainability, efficiency and work place quality as guiding design principles. Each Resource Recovery Park is unique, but there are some design features that are common to all health & safety, environmental protection, sustainability, durability, maximising efficiency and allowing for the adaptability of site layout and infrastructure. By treating the activities that may take place at a Resource Recovery Park as separate modules within the resource recovery flow, it is possible to apply relevant design features only where needed. There are a number of key principles that govern the design of a Resource Recovery Park: Safety and security a safe environment must be provided for staff and customers and they, as well as the materials handled and stored on the site, must be secure from unauthorised interference. User-friendliness a successful Resource Recovery Park is one that readily attracts customers because it is a pleasant place to visit and easy to move around in. Efficiency the different parts of the site must be well integrated to maximise the ease with which resources can be handled and cross-contamination reduced. Staff focus enthusiastic staff are a major factor in the success of a Resource Recovery Park, and striving to provide a comfortable work environment will assist with generating staff commitment and retention. Sustainability resource recovery is often undertaken as part of a wider environmental agenda, and by incorporating sustainable design features the facility can support this objective. Education Resource Recovery Parks have the potential to be an important element in the community s waste education programme, and allowance for this should be made at the design stage. This Section provides detailed information about how these principles can be reflected in Resource Recovery Park design. 4.2 Site layout The layout of the site should maximise the potential for resource recovery and allow flexibility for future changes. Each site will have a different shape and topography and these factors will influence the layout. The key considerations for deciding on the most suitable layout include: Placing the recyclables drop-off area upstream of the residual waste disposal area to maximise the diversion of materials. Depending on the facility s pricing policy, the recyclables drop-off area should also be located before the weighbridge. Separating drop-off areas from baling, storage and processing areas. Locating a weighbridge prior to the residual waste disposal area to allow charging for residual waste disposal. Determining whether traffic volume is such that two weighbridges are required (weigh-in and weigh-out). Placing resale activities downstream from all drop-off areas. This maximises resale opportunities by ensuring that all traffic passes through this area. Separating drop-off areas (where people want to deposit their materials and move on quickly) from resale areas (where people want to park and spend time inspecting goods). Providing safe, logical and efficient traffic flow through the site to minimise congestion. four : 26

35 Where practicable, separating access for service vehicles from the public drop-off areas (which may not be possible on smaller sites) and avoiding other heavy vehicle/ public vehicle interfaces. Large openings and doors in buildings should not open into the prevailing wind. Prevailing winds should be in the same direction as material flow wherever possible to prevent materials such as green or residual waste being blown away from skips or waste pits and scattering around the site. A schematic representation of typical material flows in a Resource Recovery Park is shown on page 28 to demonstrate the relationship between the various activities on site. 4.3 Resource recovery activities This Section addresses design features for the different resource recovery activities that are typically undertaken at a Resource Recovery Park. Because each operation is unique, the approach taken is modular but flow-orientated, meaning that the different modules (or activities) are described in terms of the most commonly occurring flow (or spatial arrangement) found at RRPs. It is recognised that not all Resource Recovery Parks will incorporate all modules (activities) and that the order set out below may differ for each site. The operation may also change over time; for example, for a newly established Resource Recovery Park it may be appropriate to select the modules that provide the greatest gains in terms of waste minimisation, or that can be most cost-effective to install. Other modules can then be added progressively at a later time as circumstances change Recyclables - plastics, glass, cans, cardboard and paper These materials are typically collected in bins, cages or bags (bales). The type and size of the container will generally depend on the equipment operated by the contractor removing the materials from site. The two most common arrangements are: An open bin system where bins are arranged around a yard or beside a through lane. Collection vehicle access may be from the public area or from a separate service area. A recycling wall where the bins are hidden behind a wall featuring slots or holes for depositing materials. In the recycling wall arrangement collection vehicles remove or empty the bins from areas that are not accessible to the public.in the recycling wall arrangement collection vehicles remove or empty the bins from areas that are not accessible to the public. For the open bin arrangement collection vehicle access could be from the public area or from a separate service area. In both cases, bin clusters (i.e. repeating groups of separate bins for each recyclable material) should be provided in close proximity to each other to maximise public convenience and hence the quantity of recyclables collected. This will also reduce inappropriate dumping of materials on site and minimise pedestrian traffic across the drop-off area. The size of this area will be determined by: Expected peak vehicle numbers for the Resource Recovery Park. The size of the drop-off zone can be set to accommodate a selected number of vehicles, which may be fewer than the peak number, provided the resulting queue length is acceptable. four : 27

36 OFF-SITE OR ON-SITE FACILITIES ON-SITE FACILITIES RESIDUAL WASTE TIPPING AREA GREEN WASTE COMPOSTING GREEN WASTE DROP-OFF C&D PROCESSING C&D DROP-OFF WHITEWARE CAR BODIES TYRES WEIGHBRIDGE GREENWASTE DROP-OFF (IF FREE) GOODS RESALE MRF RECYCLABLE DROP-OFF PARKING EDUCATION CENTRE SITE ENTRANCE four : 28 SERVICE/TRANSFER VEHICLES PUBLIC/CUSTOMER VEHICLES TYPICAL MATERIAL FLOWS AT A RESOURCE RECOVERY PARK

37 Traffic flow patterns for vehicles moving through this part of the site. There should be adequate space for vehicles to stop and unload, and sufficient drivethrough lanes for vehicles entering and exiting this area. Access requirements for service vehicles of varying sizes, including consideration of appropriate turning circles and manoeuvring for emptying and/or removing bins. General requirements for this part of the site include: The recyclables drop-off should be the first activity accessed by customers. This area must be accessible directly from the main thoroughfare leading to the weighbridge, preferably by means of a loop road that returns to the main thoroughfare after the drop-off zone. Where the site layout does not permit this, it is essential that adequate through lanes are provided beside the dropoff area. Sufficient vehicle lanes for entering and exiting this area. Adequate stopping lanes, typically parallel to the drive-through lanes, for dropping off materials. Stopping lanes and drop-off areas could be located to either side of the through lanes, but should avoid the need for pedestrians to cross traffic flow. Shelter where appropriate. Although dropping off recyclables is typically an open-air activity, some climatic conditions may make shelter from wind and rain desirable. This is often provided by means of a large overhang extending out from conveniently located buildings. A hardstand area with adequate drainage to manage run-off. Adequate wind screening or litter fences to control wind-blown litter. Screening on stormwater outlets to control waterborne litter. Clear labelling of bins and other drop-off containers and/or areas. Clear directional and waste acceptance signage at the entrance of the area and throughout the area Scrap metal and appliances A separate hardstand area is required for the acceptance and storage of scrap metal and appliances. This area should be located adjacent to the recyclables drop-off area unless a fee is charged for these materials, in which case it needs to be located beyond the weighbridge. Bins should be available for smaller scrap metal items. Bays confined by concrete barriers or similar are appropriate for large items to prevent the spread of deposited materials into other areas Waste oil Although waste oil is classified as a hazardous waste (NZ Waste List, Code 13), it is often collected as part of a resource recovery operation. The collection facility is often located close to the recyclables drop-off area, although other places on the site may be used. Waste oil storage facilities must be designed and managed in accordance with the Guidelines for the Management and Handling of Used Oil in New Zealand (MfE and OSH, 2000). These guidelines distinguish between controlled sites (those that are protected from receiving unwanted or contaminated oil and that comply with the minimum storage specifications set out in the guidelines) and general sites (those that cannot be classified as controlled). Essentially, where the public can four : 29

38 access the used oil storage container, it would almost always be categorised as a general facility, and a Location Test Certificate for the storage of Class 3 substances (flammable liquids) will be required. All of the specifications set out in the above guidelines must be met. Some of the key design features that relate specifically to a Resource Recovery Park are: Positioning that allows supervision or observation by RRP staff responsible for this area. Signage that clearly lists unacceptable products (such as petrol, diesel, antifreeze, paints and solvents) to prevent contamination. Placement on an impermeable surface such as concrete or asphalt. Bunding made from impermeable materials and capable of containing at least 110% of the capacity of the storage tank. Relevant planning documents such as Regional Plans should be consulted to confirm local requirements. Roofing to exclude accumulation of contaminated stormwater in the bunded area, or alternatively adequate provision for its safe disposal. Protection by bollards or similar structures if the storage tank is located near vehicular traffic. Safe and adequate access for tankers emptying the storage tank. Ideally, storage tanks should not exceed 1,000 litres and may be constructed from plastic, metal or glass-reinforced plastic, depending on whether the facility is controlled or general. Tanks should be limited to one per site. Other features include a lockable opening at the top of the tank, a permanent mesh at the fill point, and a discharge outlet fitted with a lockable valve and vent. Labelling of the tank must include: The safe fill level. The manufacturer and date of manufacture. Content and prohibited substances labels. No Smoking signage is essential, as is a Class 3 hazard label for general facilities. A spill kit must be available in the immediate vicinity, and staff should be aware of and be trained in appropriate spill response and clean-up measures. Download the NZ Waste List from: = 25 Download the Guidelines for the Management and Handling of Used Oil in New Zealand from: Vehicle batteries Storage of lead-acid batteries used in cars, trucks, boats and other vehicles should be under cover and in a bunded area to contain potential acid leaks. Batteries should be stacked on pallets no more than three layers high, with each layer being separated by sturdy cardboard or a similar material. Adequate vehicle access to the storage area is essential as the storage pallets are usually extracted by forklift to be placed on the collection vehicle. four : 30

39 Due to the hazardous nature of the acid and heavy metal contained in vehicle batteries, relevant planning documents such as regional plans should be consulted to confirm additional local storage requirements Gas bottles LPG is classed as a flammable gas and controlled under the HSNO Act, and the storage of more than 100 kg of LPG (gas weight only) in one place requires a Location Test Certificate. 4.5 kg and 9 kg LPG bottles commonly used for household applications should be stored outside (for sufficient ventilation) and upright in open wire cages, and some distance away from ignition sources, other materials and vehicle traffic. The Environmental Risk Management Authority (ERMA) should be consulted for procedures regarding the dismantling of gas bottles. Download a list of Test Certifiers from: Reusable goods The drop-off of reusable goods is often located in the vicinity of the recyclables drop-off area, from where they are retrieved by Resource Recovery Park staff for repair and resale. This work flow could be made more efficient by establishing the drop-off area for these items on one side of the building that houses the resale facility, provided that basic separation between drop-off and resale can be retained. To maximise the resale facility s potential for generating revenue from the recovered goods and serve as a community focus, the following design features should be considered: The facility should be roofed and enclosed to provide adequate protection for the resale goods. The building should be lockable for security purposes. Separate workshop areas for the repair of goods should be provided. The building should be of sufficient size to serve the needs of its host community and the expected market, or be readily expandable. Consideration should be given to the size of storage areas and requirements for long-term storage. Storage times should be determined as part of operations planning and are further discussed in Section The building and layout should be aesthetically pleasing to attract customers. There should be separate access for pedestrians and vehicles, away from dropoff areas. Adequate parking on the resale side of the building is required to avoid traffic congestion and to help with generating customer satisfaction Green waste Layouts that are commonly used for handling green waste are: A single-level, open yard drop-off area from which green waste is mechanically loaded into trucks or bins. A grade-separated (split-level) layout where customers off-load green waste directly into bins which are located on the lower part, with the top of the bins level with the public area. Separate access is provided to the lower level for removing the bins. A grade-separated layout where customers off-load green waste to a lower level, from where it is pushed by a loader into bins or trucks. four : 31

40 A designated part of the residual waste handling facility where the green waste can be handled separately without contamination. Collection areas should incorporate the following design features: Hardstand areas and adequate containment; for example, for a single level arrangement walls on two or three sides and/or moveable concrete barriers. Surfaces on which loaders operate should be concrete with a hardened surface, not asphalt. Where the off-loading area is a single strip adjacent to a pit or bins located at a lower level, the concrete strip should be a minimum of five metres wide and slope towards the pit or bins. Easy access to drop-off areas with adequate space for turning and reversing trailers into the disposal area, with sufficient tipping face for expected peak vehicle numbers. Adequate areas for queuing and drop-off so that vehicles using this part of the site do not impede main through traffic. Provision for separating materials that require shredding from those that do not, such as grass clippings. Sufficient space for stockpiling green waste, based on expected throughput and planned removal frequency. Adequate signage and infrastructure to ensure optimal separation of green waste and other materials to avoid cross-contamination issues. Measures to control wind-blown litter, for example wind shelters and litter fences. Diversion of stormwater to appropriate treatment devices. Sufficient space for vehicles removing the collected green waste. For a single level operation, this would typically be by front-end loader into trucks. Green waste processing, i.e. composting and/or mulching may take place on site or elsewhere. It is beyond the scope of this Guide to set out the requirements for composting and mulching operations other than to note that the processing area should be separate from the green waste drop-off area. The design of the site needs to allow for the proposed location of the processing area and transfer of the green waste from drop-off to processing. Download further information on composting from: C&D materials This waste stream may include the following materials: Timber, both treated and untreated. Gib board (plaster board). Building components such as doors, windows and staircases. Bricks, cobbles and concrete pavers. Reinforced or un-reinforced concrete. Structural steel. Roofing, including concrete tiles and sheet metal. Designing an area for the acceptance and handling of C&D materials should take account of the following matters: four : 32

41 Collection, sorting and stockpiling of this material should be undertaken on a hardstand area with adequate drainage to divert and manage run-off. Dust control measures such as sprinkler systems may be required. Storage areas should be contained to prevent the spread of materials over the site. Sufficient space should be allowed for the following separation and sorting tasks: Separating usable building components so that they can be offered for resale. Sorting steel and metal components for diversion as scrap metal. Sorting treated timber from untreated timber. Treated timber should be disposed of as residual waste due to its contamination issues, while untreated timber may be stockpiled for removal by the public or for sale as firewood, mulch or boiler fuel. The storage area for firewood should be of sufficient size to allow for its seasonal demand, and be located near the resale area. Sorting gib board for further processing if a suitable market is available, for composting³ or disposal as residual waste. Sorting concrete for further processing or crushing either on-site or off-site, including the removal of reinforcing steel. The extent of collection and subsequent processing of C&D materials will be determined as part of the original needs assessment and/or opportunities offered by the local market. The full range of activities described above will require large processing and stockpiling areas and good access for heavy vehicles for both the delivery and removal of products Polystyrene If polystyrene is to be collected, consideration could be given to installing a polystyrene baler to increase storage capacity and improve the economics of transport off-site. This should be installed away from public access areas. Special attention needs to be given to the control of wind-blown litter from this activity Commercial and industrial waste recovery The opportunity often exists for specialist products to become available from local industry. Such products may be offered free of charge for reuse by the public, or may require storage until a suitable reuse project is available. Appropriate hardstand areas may need to be set aside for such products. Where possible, industry should be encouraged to use waste exchange programmes to match surplus materials with other end users and avoid routing such materials through the Resource Recovery Park Tyres End-of-life tyres are a potentially difficult resource stream that is usually subject to a disposal charge. For this reason, the tyre drop-off area is generally located beyond the weighbridge in the residual waste area. The tyre area should be fitted with a hardstand of sufficient size and have adequate drainage. Depending on the proposed end use, it may be appropriate to sort and stockpile tyres into different types. 3 Gib board can be ground and used as an additive in large-scale composting operations. four : 33

42 Hazardous Waste The Resource Recovery Park s policy with regard to accepting hazardous waste should be established as part of the needs assessment or during the planning stage. It may be affected by the availability (or otherwise) of alternative collection methods such as HazMobile-style collections. If hazardous wastes are accepted, this should be limited to materials of domestic origin and be confined to household quantities. In rural areas, it must be decided whether agricultural chemicals will be accepted. Acceptance may be restricted to the types of hazardous waste that are most suited for resource recovery and subject to the least complex controls, specifically: Waste oil (refer Section 4.3.3) Vehicle batteries (refer Section 4.3.4) Unwanted paint (refer Section ) Generally, household and garden chemicals are the most difficult to manage because of the range of products and hazard classes (flammability, toxicity, chemically reactive or oxidising, corrosive and eco-toxic). Because of the low potential for resource recovery, their acceptance should be considered carefully. However, even where household and agricultural hazardous wastes are not officially accepted, hazardous materials will be received as part of other waste and resource streams and provision must be made to store them safely. Removal of these materials from the Resource Recovery Park should occur on a regular basis. Storage should be commensurate to the scale and size of the RRP, the nature of its host community and the quantities of hazardous material that can reasonably be expected, while complying with all relevant legislative requirements and ensuring the health and safety of staff and customers. The storage of hazardous materials is governed by regulations under the HSNO Act and parts of the New Zealand Building Code, specifically sections F3 (Hazardous substances and processes), F6 (Lighting for emergency), F7 (Warning systems) and F8 (Signs). Depending on the quantity and type of materials, certification under the HSNO Act may be required and a Test Certifier and/or the Environmental Risk Management Authority should be consulted. Download the NZ Building Code from: Depending on the nature of the hazardous substances to be stored, the following criteria should be met: Providing for adequate separation of hazard classes. Ensuring that the storage area is at least 15 metres from any source of ignition, for example open fire, workshops, electrical installations or furnaces. Locating the storage facility at least five metres from any other building, boundary or road. Placing the area so that fumes are not carried into sensitive environments, taking into account prevailing wind direction. Ensuring easy access for vehicles and emergency services. Siting the area away from vehicle thoroughfares and protected with bollards or similar structures. four : 34

43 Providing a waste reception area close to the storage facility to minimise transport of the material if an official household hazardous waste drop-off point is established. The storage facility should be constructed with non-combustible materials such as concrete or brick, without windows but with adequate alternative ventilation, and include the following features: A bunded perimeter, with provisions for the disposal of contaminated stormwater, and enclosed by security fencing, including a lockable gate. An emergency shower, eye wash facility, emergency spill kit and fire extinguishers within the perimeter. Appropriate signage and hazard labels on the door(s) or walls of each storage area, and on the perimeter fence. Storage structures inside the perimeter should have: Internal bunding to hold 110% of the contents of the largest container. Painted or sealed surfaces to avoid contamination. Flooring that is impermeable to the materials stored. Doors that open to the outside and are lockable. No electrical fittings. Where these are necessary, special installation techniques for hazardous areas are required and subsequent testing must be undertaken in accordance with the Electricity Regulations 1997, AS/NZS 3000:2000 and AS/ NZS Product stewardship Product stewardship schemes for priority products will be become mandatory under the Waste Minimisation Act. An increasing number of these programmes may impact on the operation of Resource Recovery Parks. Often, the collection of products covered by such schemes requires space that may not be available at retail outlets and the product stewardship programme owners may wish to establish a collection facility on the Resource Recovery Park. An example is collection points for the Agrecovery Agrichemical Container Recovery Programme. Waste paint is also covered by product stewardship programmes, and any plans to collect this material may benefit from discussion with the relevant programme providers. Other goods that may be collected through future product stewardship schemes include electronic items such as computers and TVs. Specific requirements for the collection and storage of goods covered by product stewardship schemes will need to be discussed with the owner or administrator of the scheme, but allocating space for such programmes should be considered during the design of the Resource Recovery Park. Download information on product stewardship from: Download the Ministry for the Environment s Waste Electrical and Electronic Equipment Refurbishment and Recycling Good Practice Guidelines from: four : 35

44 Storage Sufficient storage areas should be made available for the following: Normal operational storage to allow for the time period between collection of materials and removal from site. In some instances, a low frequency of removal from site may make transfer operations more efficient, but this will require significant storage space. Contingency storage areas for periods when certain materials are being collected but there is nowhere for this material to go due to fluctuations in the market. Depending on the materials to be stored, this would typically be a hardstand area with adequate drainage. For some materials, it may be necessary to provide a covered area or ensure adequate protection from wind and rain, and to reduce the generation of litter. Other considerations such as fire risk should also be taken into account. Generally, the long-term storage of material should be subject to strategic planning decisions to establish the maximum duration of storage, given the limitations of the site and availability of suitable markets Residual waste The handling of residual waste should be the last activity or module undertaken on the Resource Recovery Park. It is usually carried out at a refuse transfer station or similar facility. The specific design of such facilities is not covered in this Guide, although many of the general design principles discussed above apply. Further information about the handling and transfer of residual waste may be obtained from other relevant publications. Download the Guide to Best Practice at Resource Recovery and Waste Transfer Facilities (Sustainability Victoria, July 2004) from: Download the Handbook for the Design and Operation of Rural and Regional Transfer Stations (Department of Environment and Conservation, NSW, August 2006) from: Download Waste Transfer Stations: A Manual for Decision Making (USEPA, June 2002) from: Common design features Health and safety The Health and Safety in Employment Act 1992 has the principal objective of preventing harm to employees at work. The Act places duties on employers (as well as employees and self-employed people) to ensure that their work activities do not harm themselves or others. The New Zealand Building Code also prescribes specific safety measures that must be incorporated into the design of buildings and other facilities. four : 36

45 Safety considerations should be paramount in site design. The overriding approach is to eliminate risk wherever possible, minimise risks that cannot be eliminated and control those that cannot be minimised. Specific health and safety hazards that are likely to be present at a Resource Recovery Park include but are not limited to: Machinery and equipment. Vehicle traffic. Intrinsic hazards of materials handled on the site, such as glass and other sharpedged items. Trip hazards. Steep drops into waste pits and bins. Overhead or buried power lines. Dust and other air-borne particles such as spores from green waste operations. Exposure to hazardous substances. Designers will need to fully assess all hazards that may be present at the proposed Resource Recovery Park and make adequate provision for health and safety. Some specific measures to eliminate or minimise hazards on such sites include: Eliminating or minimising the gap between a platform edge and skips, or covering the gap. Installing robust wheel stops fixed to the ground to prevent vehicles reversing too close to a platform edge. These should be steel or bulky timber members, and be raised above ground level to allow for hosing down the area. Cast-in-place concrete nibs should be avoided as these will hinder cleaning of the area. Minimising the height of platforms where possible, for example by using smaller skips or skips with adjustable or removable sides, or minimising the depth of the push pit. Installing safety gates at the tipping area where platform heights are greater than one metre. Placing guard rails along the edge of all vertical or steep drops. Having the lip of the skip or bin higher than the edge of the platform. Where skips and bins are at ground level, ensuring that the top of the bin is at a suitable height for unloading materials or providing a suitable platform for users to access the top of the bins at a comfortable lifting height. Providing bins and containers designed to be moved by machines so that they do not require manual handling. Where bins, containers and other heavy items must be moved, ensuring that appropriate plant such as forklifts or loaders are available. Designing all storage and unloading areas to accommodate containers and moving plant, so as not to require manual handling or double handling of materials. Operational health and safety measures are discussed in Section Environmental protection Avoiding and, where this is not possible, minimising the environmental impact of the activities undertaken in a Resource Recovery Park can be achieved by incorporating the following design features: four : 37

46 Stormwater Odour All stormwater from a Resource Recovery Park needs to be considered as potentially contaminated to varying degrees and treatment requirements for runoff from all site surfaces need to be considered, with some (such as green and residual waste handling areas) requiring more attention and treatment than others. Specific considerations for design include: Diverting off-site stormwater around the site. Separating stormwater from different site areas for appropriate treatment prior to discharge. Providing screening or other separation systems on stormwater outlets to control waterborne litter. Installing oil separators where necessary. Bunding hazardous waste storage facilities (refer Section ). Providing a roof over collection areas for certain types of material such as waste oil, liquid wastes and vehicle batteries to prevent the potential mixing of contaminants with stormwater. Managing contaminated runoff (for example from green or residual waste areas) as trade waste to be disposed of to the local sewerage system, or treated by a consented (or otherwise approved4) wastewater treatment system prior to discharge to the natural environment. Providing a roof over areas where residual waste is unloaded, stored, loaded into transport vehicles or processed to eliminate or minimise contaminated runoff. Potential odour sources include putrescible waste, contaminated stormwater, green waste and the residual waste pit. Odour may be minimised through: Locating potential odour sources away from and downwind of sensitive receptors. Paving and grading unloading, waste and skip storage areas to facilitate cleaning. Avoiding dead areas beside skips, bins and compactors that the loader or other equipment cannot access, as this is where putrescible and other odour-producing material can accumulate. Providing a roof for unloading, waste and skip storage areas to stop ingress of water. Making allowance for retrofitting odour control devices such as deodorant spray, should these prove to be necessary. Ensuring that enclosed facilities are well ventilated. four : 38 4 For example, a treatment system specified as part of the Permitted Activity conditions in a regional plan.

47 Dust Litter Noise Aesthetics Paving all operating, unloading and loading areas subject to heavy traffic. Paving access roads into the site. Minimising areas of exposed earth through appropriate landscaping. Using unsealed roads only where dust can be managed through operational practices such as applying water. Establishing trees and shrubs around the site as wind breaks. Providing containers with small apertures for depositing materials. Covering bins containing lightweight materials with lids, tarpaulins or similar. Locating the entrances and exits of enclosed facilities away from the prevailing wind. Erecting litter screens around the site to capture windblown litter. Locating noisy operations to minimise nuisance to neighbouring land users. Designing access and internal roads to minimise noise. Providing earthen embankments and vegetation at strategic locations. Surrounding loud operations with noise screens; however, noise levels within the enclosure must be managed to meet occupational health and safety levels. An aesthetically pleasing site is not only important with respect to environmental matters but also to enhance its general user-friendliness and attractiveness. This can be achieved through: Screen planting. Lawns. An attractive site entrance and a sealed access road. Clearly readable signage. Sculptures and art created from recycled materials Sustainability Resource Recovery Parks exist to promote and implement the sustainable management of resources and waste, which is not necessarily limited to the activities on the site but can be incorporated into design, construction and operation. Basic sustainable design principles include: The use of materials that: Are natural, plentiful and renewable. Can be recovered from waste, refurbished or remanufactured. Are locally available, thus saving energy and resources in transportation. Contain recycled content or that are reusable or recyclable. Are durable. four : 39

48 Energy efficiency in buildings and site operations, including the possibility of generating electricity and/or fuel from on-site activities or resources. Water efficiency, which may include roof water collection for various on-site uses. Stormwater management using natural processes to treat and attenuate stormwater flows, such as rain gardens and artificial wetlands. Download information about sustainable building in New Zealand from: Durability Resource Recovery Parks are a harsh environment. In particular, the use of heavy vehicles and plant creates the risk of serious damage to buildings and structures. Measures that can be taken to minimise the risk of impact damage to structures, and enhance durability include: four : 40 Ensuring that sufficient clear area is available for plant and equipment to undertake required tasks with ease. Designing structures so columns are not in the way of heavy vehicle movements. Ensuring that the available space in confined areas such as push pits is large enough for operation of plant. Avoiding deviations in wall angles (i.e. constructing walls in a straight line) where loaders or similar plant push materials, for example in green waste or residual waste push pits leading to a skip or compactor. Providing steel plate protection on the corners of reinforced concrete structures in traffic areas. Designing for impact loads from plant and equipment, as well as potential maximum loads from stored materials. Avoiding stormwater channels and other obstructions in areas where loaders are required to push materials on a concrete slab. Carefully detailing construction joints in large slabs to minimise damage, or avoiding joints by using non-shrink or expansive additives with the concrete, for example Denka CSA. Using additives in concrete slabs for abrasion resistance, such as steel fibres or micro silica. Allowing for abrasion wear and tear where concrete slabs in working areas align with other surfaces. Providing steel runners underneath bin wheels where repetitive movements are expected. Designing roof overhangs and shelters high enough to accommodate the height of the largest vehicle accessing the site and the operating height of any equipment. To future-proof the site, some additional clearance should be provided to allow for future changes in vehicle and plant sizes and resulting operating heights. However, raising the roof height will increase the wind loads on the structure and may significantly affect the construction cost. Designing structures so that drain pipes are located away from traffic areas.

49 Providing guard rails, bollards and similar mechanisms to protect structures where practicable. Providing guards, guide rails, painted guiding lines or similar means to assist drivers to place skips, bins and trailers into the correct position Efficient materials handling A number of design features can be incorporated to facilitate materials handling at the Resource Recovery Park. These include: Constructing walls in a straight line in areas where loaders or similar plant push materials; for example in green or residual waste push pits leading to a skip or compactor. Where walls have a change in angle it frequently takes two or more passes with the loader, or manual cleaning, to remove accumulated material. Providing walls or barriers that funnel directly to skips, bins or compactors. Where the area leading to the bin is wider than the bin opening, a dead area is created where materials will accumulate beside the bin. Extra handling of this material will then be required. Avoiding changes in elevation that would require a loader to lift materials rather than simply pushing them to their destination. Installing scales or a weighbridge beneath bins so that they may be weighed during loading and allowing the bins to be filled to the maximum load permitted for the class of road they will travel on, and thus increase transport efficiency. Placing materials directly onto pallets or into bins or other suitable receptacles so that they can be moved by mechanical equipment without further manual handling Flexibility and expansion The site design should provide sufficient flexibility to allow for changes in the type and quantities of materials accepted, handled and processed by the Resource Recovery Park in the future. This should include allowance for storage of materials when market conditions are not favourable or when markets are unavailable. A modular approach to providing for the different activities on the site is most likely to achieve such flexibility, as separate modules may be relocated, scaled up (or down) in size, or added to existing processes. The design also needs to allow for potential expansion of buildings and other parts of the site by locating each module to leave sufficient space for expansion. 4.5 Site infrastructure Gatehouse and weighbridge The gatehouse should be located to enable staff to: Collect gate charges. Inspect incoming waste. Record incoming (and outgoing) waste types and quantities. Manage traffic. Give directions to unloading areas. The gatehouse structure should have: Sufficient elevation for communication with drivers of vehicles using the site. four : 41

50 Facilities for viewing the waste load in incoming vehicles, such as an elevated mirror or platform. Other control and supervision features, for example surveillance cameras. Weighbridges, located at the gatehouse, will be required for all sites other than simple drop-off centres to charge customers for the waste delivered and to record the quantity of material removed from the site. The data collected in this manner is essential for statistical purposes and calculation of the waste levy. Incoming and outgoing weighbridges may be required for efficient traffic flow at larger sites Security Site security measures are aimed at keeping intruders and animals out of the facility, preventing theft and vandalism as well as the illegal dumping of unacceptable waste. Specific security measures should include: A wire mesh perimeter fence of at least two metres height. Lockable gates. Surveillance cameras (CCTV) where required. Where after hours access is required for service or operational contractors, consideration needs to be given to how security will be maintained. A swipe card system and automatic weighing of inwards and outwards loads may be appropriate Community and education facilities Such facilities, ideally located near the site entrance in the public areas of the site and adjacent to drop-off and resale areas, may include: A presentation/lecture room for up to 60 people (two school classes). Display areas for materials and products made from recycled items. Display areas for posters, photos, process diagrams and other material related to waste minimisation. A kitchen and/or tea and coffee making facilities. Bathroom and toilet facilities. Adequate parking, including coach parking Staff facilities Adequate facilities must be provided for staff working at the various locations of the site. Such facilities should include shelter from the weather, a lunch room, toilets and washrooms, and possibly showers and locker areas Utilities Essential site utilities include: Adequate water supply to meet requirements for fire fighting, drinking, washing, cleaning and dust suppression. Where reticulated municipal water supply is not available, the installation of an alternative water supply based on roof water, groundwater, or surface water abstraction will be required. In such cases, water storage in the form of a dammed reservoir or tanks may be required to provide adequate flow and quantity for fire fighting. Sufficient fire fighting facilities, as established in discussion with the local Fire Service. four : 42

51 Wastewater/sewerage infrastructure to ensure compliance with consent conditions and bylaw requirements. Where connection to a local sewerage/ trade waste system is not available, on-site treatment and disposal of the sewage generated by staff and public facilities, and the treatment and disposal of trade waste from process areas (leachate) generated on the site will be necessary. Stormwater systems to ensure adequate control of stormwater on the site and compliance with consent conditions and bylaw requirements (refer Section 4.4.2). Adequate power supply (3-phase) to support heavy equipment, balers, conveyors and other machinery. Sufficient lighting to allow work to be performed safely on overcast days and during all expected hours of operation. Some areas, for example those housing equipment, may need additional lighting for servicing after hours. Appropriate communication systems. Adequate parking areas for staff vehicles. Areas for machinery parking and servicing Signage Signage should always be clear and prominently displayed. Schematics and/or pictograms should be used where possible. If the site is to be open outside daylight hours, sign illumination is essential. Signage at the site entrance should identify: Opening hours. Waste acceptance information, clearly describing the waste types that are accepted and those that are not. Materials to be separated for the purpose of resource recovery. Disposal costs and other charges. Directions to unloading and recyclables drop-off areas. Name and contact details of the site operator. After hours contact details. Identification of hazards on the site. On-site signage should: Provide directions to unloading areas. Control traffic, for example through directional lines, arrows or speed limit indicators. Promote the safety of workers and the general public, for example by indicating what personal protective equipment should be worn. Identify fire control equipment and emergency exits. Point out hazards at particular locations. Identify emergency procedures and emergency assembly areas. Signs directing customers and other users to the Resource Recovery Park should be located on the major approach roads to the facility. four : 43

52 4.6 Site access and traffic flow Site access Design features to enhance the site entrance include: Adequate width to accommodate two-way traffic for expected traffic flows. Turning lanes and slip lanes on the access and/or main road so that the site can be entered safely without disrupting external traffic. Sufficient space inside the site entrance for vehicles queuing at the weighbridge or the recyclables drop-off area to avoid disruption of external traffic flows Internal traffic flow and control Effective on-site traffic circulation and control is essential to prevent vehicle accidents and increase operational efficiency. Appropriate design elements include: Maximum vision across the site for supervisory staff. One-way flow throughout the site with a minimum number of intersections. Sufficient area for vehicles to manoeuvre and reverse safely into disposal areas without affecting traffic flow to other areas. Well-defined separation of vehicles and pedestrians. A drop-off area layout that does not require pedestrians to cross traffic routes. Provision of a through lane past all drop-off areas. Effective traffic control devices, for example directional lines and signage. Speed limits. Line markings on roads to guide traffic flow. Roads of sufficient width for the expected traffic in various parts of the site. Separation of cars and trucks as much as is practicable. Restriction of service vehicles in public areas, for example through providing separate access for the removal of materials. Access for emergency services vehicles to all areas on the site. Depending on the site, it may be possible to install temporary traffic controls to determine patterns of public behaviour prior to installing permanent systems. The effectiveness of judder bars for speed control should be evaluated in the context of their potentially adverse effects on the vehicles using the Resource Recovery Park. four : 44

53 5 Operation and Management 5.1 Introduction The operation of a Resource Recovery Park involves a wide range of activities. These sites must be managed to ensure they are safe for staff and customers, that the operation does not adversely affect the environment or its neighbours, and that it runs effectively and efficiently to achieve its objectives. 5.2 Site management plans Resource Recovery Parks are hazardous sites, involving moving machinery and traffic, changes in grade and elevation, manual handling and lifting, hazardous materials and other health and safety risks that need to be managed. Effective site operation is also required to maximise resource recovery, and control the drop-off and separation of resources and handling of residual waste. Other key aspects of site management include ensuring that effective environmental protection is maintained, managing public activity, the interaction of staff with customers and the public, and the management of traffic movements throughout the site. Operational and management procedures must be formally documented in a site management plan. The scope and extent of this plan should be appropriate to the size of the Resource Recovery Park, the throughput of materials and the range of activities undertaken at the facility. Larger and more complex Resource Recovery Parks will require a more comprehensive site management plan. A typical site management plan should include: A description of the processes and activities undertaken on the site. An outline of management and staff responsibilities. Health and safety procedures. Emergency management and response procedures. Environmental management and monitoring activities. Staff management matters, including induction processes and training. A materials acceptance policy to clearly identify what materials will be targeted for recovery and how these decisions are made. Quality management procedures. Customer service policy, including complaint procedures and customer feedback processes. Record keeping and reporting systems. Where different activities on a site are controlled by different parties, separate site management plans may be appropriate, although these must address the interaction between the parties. key points from this section Resource Recovery Parks are dynamic operations with many individual components that may change over time. A good site management plan is essential to provide for effective operational management while allowing processes to adapt to changing circumstances. Well-trained, committed and enthusiastic staff are the most important asset of a Resource Recovery Park, and an essential element in maximising resource recovery and managing the educational role of a Resource Recovery Park. The materials acceptance policy is a crucial component of a Resource Recovery Park s operating procedures as the value of different materials and the rationale for recovering specific material types is subject to continual fluctuation and change. Site management plans are effectively the rule book governing all activities at the Resource Recovery Park. They are living documents that are essential to ensure the safety of people and the environment, and the profitability of the operation (whether expressed in financial or other terms). They must be accessible and known to all staff, and be reviewed on a regular basis to ensure that they remain relevant and effective. A Table of Contents for a typical Resource Recovery Park site management plan is provided as an appendix to this Guide. five : 45

54 5.3 Staff Staffing levels Depending on the activities undertaken staff will be needed for the following: Fee collection. Materials acceptance - this includes providing assistance to the public and ensuring that their materials are placed into the correct receptacles or areas, and declining acceptance of prohibited materials. Materials handling, sorting, packing and processing for transport off-site or other parts of the site. Site maintenance. Repair and resale of goods. Green waste handling. Residual waste transfer. Materials processing activities. Site security and supervision. Administration and management. Staff numbers will depend on the size of the facility and should be sufficient to cover peak periods Staff training Training requirements, including frequency of initial and refresher training, for all staff should be identified in the site management plan and cover the following: Health and safety, including hazard identification. Emergency management. Environmental management. Special and hazardous waste handling. Customer service, because helpful, knowledgeable and enthusiastic staff are a key component of a successful Resource Recovery Park. Materials handling, including identification, acceptance, valuation, storage requirements and similar. Repair and resale of used goods. Data collection, record keeping and other administrative matters. On-the-job training is an essential part of the learning processes for staff at Resource Recovery Parks. More formal training can be provided through applicable unit standards offered by the New Zealand Qualifications Authority (NZQA). EXITO, the Industry Training Organisation for extractive industries, also addresses the needs of the resource recovery industry and can assist with identifying and delivering training needs. Download information about resource recovery training from: five : 46

55 5.4 Health and safety Ensuring the health and safety of all people involved with a Resource Recovery Park staff, contractors, customers and the general public is one of the most important aspects of operational management. As part of either a specific health & safety plan, or the site management plan, health and safety procedures need to be identified for the operation as a whole as well as for each specific work area where different or additional procedures are carried out. The health & safety plan must cover the following: Safety policy and responsibilities of employer and employees. General health and safety procedures such as smoking policy, description of minimum personal protective equipment (PPE) to be worn by staff when on site and similar generic measures. Hazard identification and mitigation measures for each. Safe operating procedures for all aspects of the operation, including description of the specific PPE to be worn when undertaking different tasks. Supervision requirements for public areas. Emergency response procedures (refer to Section 5.6). Hazardous waste management (refer Section 5.7.5). Training requirements, frequency of training and record keeping. Incident register. Auditing of health and safety procedures. Review period for the health & safety plan. Where appropriate, health and safety procedures should be provided in writing or as pictograms in the area where they apply; for example, in areas where a hardhat must be worn relevant signage should be prominently displayed. Further information is available from the Waste Management Institute of New Zealand and the Occupational Safety and Health office of the Department of Labour. Download further health and safety information and access links to relevant websites from: Request Health and Safety in the Waste Industry (ACC, 2006) from: info@wasteminz.org.nz 5.5 Environmental protection Operational practices designed to minimise effects on the environment include: General procedures Stormwater management Regular sweeping of waste reception areas. Ensuring that all areas on the site are kept as tidy as possible given the nature of the operation.. Regular de-silting of cesspits and drains. Regular inspection and maintenance of interceptors from hardstand and bunded areas. five : 47

56 Odour prevention Vermin control Dust suppression Litter prevention Noise control Aesthetics Maintenance of leachate and stormwater treatment plants and associated installations such as artificial wetlands. Ensuring that putrescible waste is not stored for more than 24 hours. Daily cleaning of any skips or surfaces that come into contact with putrescible and residual waste. Using bait traps in areas attractive to vermin, for example where putrescible waste is handled. Regular spraying of water in dust-prone areas. Movement of relocatable litter screens to suit the wind direction. Checking of lids, covers and tarpaulins to ensure that they are in place and adequately secured at the end of each day and when wind conditions change. Litter inspections and cleaning of litter traps on stormwater drains at the end of each day. Regular inspection and maintenance of fixed litter screens and other litter prevention fixtures. Use of fixed or moveable noise barriers and walls between waste handling areas, public areas and site boundaries. Regular maintenance of landscaping features, such as lawn mowing, hedge clipping or upkeep of wildflower areas. 5.6 Emergency management Planning for emergencies is an integral part of operating any Resource Recovery Park, and must cover the identification of potential emergencies, how to minimise the risk of an emergency occurring and how to act during an emergency. Types of emergencies Risk minimisation methods Explosion. Fire. Chemical (including fuel) spill. Leachate spill. Gas leak. Natural disasters, including extreme weather events. Medical emergencies resulting from accidents or illness (for example a heart attack). Utilising appropriate site design (refer Section 4). Providing and maintaining bunds around hazardous waste storage, for example waste oil tanks. Ensuring that there are no ignition sources near flammable materials storage. Providing an adequate water supply for fire fighting and maintaining adequate access for emergency services vehicles. Providing and maintaining spill kits in areas where they are required. five : 48

57 Emergency management operating procedures The site management plan must document emergency management operating procedures. All types of emergencies that may occur on the site must be identified. Responsibilities of key staff before, during and after an emergency must be clearly described. This should include the appointment of an emergency response officer with overall responsibility for emergency management and training, and wardens with specific duties during an emergency. 24 hour contact details for emergency services and key Resource Recovery Park staff must be included. Actions to be taken before and during an emergency should be outlined. Evacuation procedures are to be described in detail. Staff training requirements for emergency management, including emergency response exercises, are an essential part of emergency procedures. Follow-up procedures must be addressed to ensure that: Used equipment such as spill absorbent and fire extinguishers are replaced at the earliest opportunity. Debriefing occurs and lessons learned are incorporated into emergency management procedures as soon as possible. Emergency response procedures must be distilled into specific instructions to be followed during an emergency and be clearly displayed in all work areas of the Resource Recovery Park. 5.7 Materials acceptance and handling Site access and operating hours Access to the Resource Recovery Park should only be possible when the facility is staffed, for three key reasons: Safety. Ensuring appropriate management of materials, including any hazardous waste. Controlling resource recovery activities and preventing contamination. Operating hours should cater for the range of customers expected to use the facility and take site-specific factors into account. Where possible, a Resource Recovery Park should be open during weekdays and the weekend. Factors to consider when determining operating hours include: The size of the facility and its host community. For example, a large community may warrant opening the Resource Recovery Park seven days a week, in others fewer opening days may suffice. The nature of the community served. Areas with seasonal population growth such as tourist centres may need to increase their opening hours at certain times of the year to deal with peak customer numbers. example The Waitaki Resource Recovery Park The operation of the community enterprise-run Waitaki Resource Recovery Park involves a wide range of activities, including: Greeting customers at the kiosk, directing them to the correct area and receiving the fee if applicable. Assisting customers with their loads at the recyclables drop-off. This includes advice if materials need to be presented in a more appropriate manner, but staff do not sort mixed loads. Materials are loaded directly onto pallets destined for Resale Outside, Resale Inside, Recycling, Metal or another category aimed at minimising handling. Garden organics are delivered onto a concrete pad and turned into a green resource through shredding - the resulting mulch is sold within one week. The Park processes 1,200 tonne in 12 months. All furniture is dismantled, usually by volunteer workers and sold as foam, firewood and metal. Electrical appliances except computers, TVs and microwaves are also dismantled and sorted into metal and plastic parts. The Get Sorted shop is open 4 days a week to reduce overheads and allow staff to stock the shop without customers being present. Recyclable materials are baled, weighed and transported off-site for further processing. five : 49

58 Constraints on volunteers available to staff facilities operated by the community. Schedules of commercial vehicles using the site. Operating hours of the landfill to which residual waste is transported. Travel distance to the landfill must also be taken into account. Operating hours of other related businesses, for example an adjacent refuse transfer station. Operating hours of neighbouring Resource Recovery Parks. The operating hours of the site may extend beyond the time it is open to the public to allow for cleaning and maintenance activities. On some sites it may also be preferable for residual waste transfer and service vehicle operation to be undertaken outside of public access hours Materials acceptance The approach to making decisions about the types of materials that are accepted at the Resource Recovery Park has been outlined in Section However, the conditions governing this process are dynamic; for example, markets change over time and some materials may become more valuable with the introduction of new processing methods. It is therefore important that regular reviews of the Resource Recovery Park s material acceptance policy occur to ensure that: Resource recovery continues to be appropriate and up-to-date. The range of materials recovered is increased wherever practicable. Innovations in processing methods or changing market demands for raw materials can be incorporated into operational procedures as soon as possible. These reviews should also address the handling criteria applying to the resource streams handled on the site, to ensure that the specific requirements of the downstream receiver of the materials are met and the value of the recovered resources is maximised. For example, the following preparation of materials may be required: Flattening cardboard. Cleaning plastic bottles and removing their lids. Separating different types of plastic for particular markets. Separating glass by colour. Rinsing steel and aluminium cans. Crushing may also be desirable, to minimise storage requirements Resale of used items The repair and resale of used goods has the potential to be a valuable income stream for a Resource Recovery Park, provided that decisions about the items processed in this way are pragmatic and suited to the community it serves. As this may change over time, regular reviews (possibly in conjunction with reviewing the materials acceptance policy) should be undertaken. The following criteria should be considered: five : 50 Pricing levels for resale items need to be realistic. Competition by new, cheap mass imports is readily available in most areas and presents a considerable challenge to maximising the reuse of materials. Items offered for resale should be inexpensive to encourage throughput.