17 317 Title: Scope of the Waste Management Minimisation Plan Review 2017 Section: Prepared by: Strategic Planning Carrie White (Senior Policy Advisor) Meeting Date: 20 July 2017 Legal Financial Significance = low Report to FUTURE TAIRAWHITI Committee for decision SUMMARY The purpose of this report is to assist the Committee to decide on some of the potential priorities for waste minimisation and management over the next 6 years (2018-2024). It describes the vision and scope of the current Waste Management Minimisation Plan (WMMP) 2012-2018 and offers for Committee consideration some options and new ideas that can be used in the process to create a revised version. The decisions made as part of this report will be reflected in the draft Waste Management Minimisation Plan (WMMP) 2018-2024. Council will be asked to review the draft later in the year. We will ask for community feedback on that version of the draft WMMP in early 2018. The decisions or matters in this report are considered to be of low significance in accordance with the Council s Significance and Engagement Policy. RECOMMENDATIONS That the Future Tairawhiti Committee: 1. Notes the contents of this report - and in particular: a) Agrees to the proposed revised Vision for the 2018-2024 Waste Management Minimisation Plan. b) Agrees to an expanded scope that includes priority statements and waste minimisation advocacy. c) Indicates which of the possible new initiatives they would like to see developed into the new Waste Management Minimisation Plan. 2. Recommends the following new initiatives are included as actions in the 2018-2024 WMMP: a) Community Recovery Centre (CRC) x 2 Gisborne and Coast o Review ownership model of the city transfer station for possible change in Years 4-6 of the Long Term Plan o Investigate the feasibility of two Community Recovery Centres (one in Gisborne, one on the Coast) for possible establishment in Years 5-7 of the Long Term Plan in the new WMMP. Page 1 of 9
b) Management of the Waiapu landfill o Include the Waiapu Landfill site Ruatoria (Waiapu) in the feasibility study for a Community Recovery Centre. c) Leverage off existing initiatives that have community support to deliver and enhance the waste minimisation actions in the WMMP. o Identify effective methods or systems, which are already working well in the community, such as the Pare Kore programme, Flag the Bag Tairawhiti and Enviro Schools to deliver WMMP vision and actions. d) Introduce initiatives that will reduce the amount of Organics in household rubbish o Investigate the inclusion of a kerbside kitchen waste collection. o Support the upgrading of the existing composting facility (private business) to receive this waste stream. This is likely to be eligible for Government Levy funding. e) Investigate alternative collection systems o Revisit the options assessment for wheelie bins vs the sticker system. f) Introduce waste minimisation criteria in GDC procurement processes o Include waste minimisation as a criteria in council service agreements and contracts. Authorised by: David Wilson Director Lifelines Keywords: Waste Management Minimisation Plan, WMMP, Waste Minimisation Act 2008, Community Recovery Centres, CRN, social enterprise, waste levy, Enviro Schools, recycling, diverting waste from landfill, public safety, Flag the Bag, Tairawhiti Economic Action Plan, He Huarahi Hei Whai Oranga, soft plastics recycling, Pare Kore, strategic priorities Page 2 of 9
BACKGROUND 1. Developing a Waste Management Minimisation Plan (WMMP) every 6 years is a requirement of the Waste Minimisation Act 2008, but flexibility in the structure that the plan needs to take, and a funding mechanism (the waste levy) that aligns with the waste minimisation activities set out in each WMMP allows local Councils to develop and deliver a WMMP that reflects the needs and desired outcomes of the District. 2. We are currently preparing a waste assessment as part of the process to review the Gisborne District WMMP 2012-2018. A report describing how much and what is typically in our household rubbish bags, and how that is contributing to the total picture of waste going into landfill for our District was presented [Report 17-287] to the Assets and Infrastructure Committee meeting on 15 June 2017. This is an example of the sort of information that goes into the waste assessment. 3. Most of the detail developed in the waste assessment will be summarised in the WMMP. The main pieces of the WMMP that most people relate with are the vision, goals and actions to be implemented over its six-year life time. 4. The scope of the current WMMP (2012-2018) is a series of local actions that make the waste management hierarchy 1 happen. It provides a good basis for this next plan. 5. The discussion and options described in this report have been bought together by a working group of Gisborne District Council (GDC) staff who each have a key role in the management of the district s waste. The discussion points below are not a comprehensive list of possible actions. Their purpose is to assist Council arrive at some decisions on what could be the priorities for waste minimisation and management over the next 6 years (2018-2024). 6. The decisions made now will be reflected in the draft WMMP. Council will be asked to review the draft later in the year. We will ask for community feedback on that version of the draft WMMP in early 2018. DISCUSSION The scope and Vision of the next WMMP 7. The current WMMP Vision is: A prosperous region, where each person takes responsibility for using resources wisely and without harm to the environment, and actively works towards zero waste. 8. It is suggested that this vision is still relevant particularly its alignment with the Community Outcome Tairāwhiti Taonga which speaks to our aspirations for environmental, cultural and economic prosperity and wellbeing; and its reference to harm minimisation aligns with the New Zealand Waste Strategy. For these reasons Alternative Version One (AV1) is the recommended option described in the table below. 1 The Waste Management Hierarchy is an internationally accepted guide for prioritising waste management practice. This is: Reduction, Reuse, Recycling, Recovery, Treatment, Disposal. Page 3 of 9
9. Proposed Alternative Visions (AV) include[nts1]: Alt Version Suggested vision text Comments AV1 AV2 AV3 AV4 AV5 A prosperous region, where each person takes responsibility for using resources wisely so that we can and without reduce harm to the environment., and actively works towards zero waste. A thriving and sustainable region that reduces harm to our environment through taking personal and collective responsibility for using, reusing and disposing of waste. A prosperous region, where each person takes responsibility for using resources wisely and without harm to the environment, and actively works towards zero minimising waste. Reduce waste-to-landfill by maximising the diversion of waste-to-landfill. Maximise the diversion of waste-tolandfill to reduce harm to the environment. Has changed harm reference to more closely align with NZWS. Zero waste statement has been deleted as it is not possible to achieve. This statement reflects our GDC Strategic Priorities which are aligned to our vision and community outcomes. It also aligns with the NZWS. Minimising is not measurable but conveys the intention that the aim is to cut down on waste. More direct. This could have advantages but it does not tell the whole waste story i.e. reducing or not generating waste in the first place, or Recycling or Recovery or Treatment. Similar to AV3 because it is more direct and does not necessarily capture a larger picture of the districts waste system. 10. The scope of the current WMMP is described in this report at 4. It frames 50 actions within the waste management hierarchy and the goals of the New Zealand Waste Strategy 2. 11. This approach is still relevant and useful. The hierarchy is recognised nationally and internationally as a guide to prioritising waste management practices. It is suggested that the scope of the 2018-2024 WMMP retains the hierarchy and expands the scope so that it includes priority statements about the need to: Get Organics out of the Gisborne District landfill system 3. Make sure public safety is paramount Weight contract decisions accordingly to achieve positive environmental outcomes 12. It is also suggested that waste minimisation advocacy be included in the scope of the WMMP. Anecdotally the national reduction in waste initially sought when the Waste Minimisation Act was introduced in 2008 has not been achieved. Council may decide to more actively contribute to the korero of other New Zealand Councils and communities about the importance of managing the ill-effects of waste on the environment. The topics being advocated for include but are not limited to: a) Lobbying for container deposits b) Mandatory product stewardship of packaging c) National levy on single use plastic bags d) Gisborne to be included in the soft plastic recycling scheme 4 2 New Zealand Waste Strategy goals are: Reducing the harmful effects of waste; and improving the efficiency of resource use. 3 GDC Solid Waste Analysis Protocol (SWAP) audit (March 2017) 4 An initiative of the Packaging Forum, funded through the Governments Waste Minimisation Fund that has placed recycling bins for used soft plastic bags in supermarkets and retails shops around the country. Page 4 of 9
OPTIONS 13. As described in the Assets and Infrastructure Committee report [17-287], all waste that goes to the Waste Management centre at Innes Street (includes street collections and rubbish from inland rural transfer drop-offs) is trucked to Tirohia Landfill in Paeroa, Bay of Plenty. This system is reliant on a fully operational State Highway 2 and on the ready availability and price of diesel. It is inherently unsustainable. So too is the act of making our waste someone else s problem into perpetuity. 14. We plan to address this by looking to increase opportunities to reduce, reuse, recycle, recover and treat our waste making landfill disposal a last resort. Making sure our district can continue to manage its waste over the long-term is the context in which we are considering the following ideas and actions for possible inclusion in the new WMMP. 15. The proposed new initiatives are focused on activities that: will divert more of our reusables (i.e. e-electronic waste, textiles (for rags) and 2nd hand goods ) from landfill reduce the amount of organics in household waste more directly deliver on other Council strategies including Community Outcomes are a response to local demands seek to contribute to the transformative economic change described in the Tairawhiti Economic Action Plan - He Huarahi Hei Whai Oranga leverage off existing initiatives that have community support 16. Committee discussion and decision is sought on whether the following six initiatives should be included as actions in the 2018-2024 WMMP. 17. Initiative One for consideration to be included in the next WMMP: Community Recovery Centre (CRC) x 2 Gisborne and Coast Community Recovery Centres are facilities where residents can drop-off unwanted items and materials for reuse and recycling. There are many ownership models but a lot are run by community enterprises with Council contracts. The aim is to reduce waste to landfill by reusing, re-purposing and recycling as much as possible, and to create local jobs and other community benefits in the process. To help with this goal the centres have shops on site, which sell usable household and building materials. The current Gisborne City transfer station is owned privately and leased to the current operator for the next 15 years. The arrangement of the current tenure system is limiting competition and waste minimisation. Adopting the CRC model would potentially increase both of these. A CRC would deliver on the action to build our capacity described in the Tairāwhiti Economic Plan and also be eligible for Government Waste Levy funding. It is proposed that as part of looking at options for decreasing the amounts of waste ending up in the landfill - Committee agree to include the following actions in the new WMMP: a) Review ownership model of the city transfer station for possible change in Years 4-6 of the Long Term Plan b) Investigate the feasibility of two Community Recovery Centres (one in Gisborne, one on the Coast) for possible establishment in Years 5-7 of the Long Term Plan in the new WMMP. Page 5 of 9
18. Initiative Two for consideration to be included in the next WMMP: Management of the Waiapu landfill The Waiapu Landfill on Thatcher Road[NTS2][CW3], Ruatoria is run for GDC by contractors. They provide dump (landfill) and recycling services for East Coast communities. A condition of the resource consent for Waiapu is to come up with an alternative way to dispose of the waste going into this landfill so that it can be shut down by or before 2025. There is interest from a Ruatoria community group in setting up a Community Recovery Centre (as discussed in this report at 16.) on the site as a way to reduce the amount of waste going into the landfill. It is proposed that as part of looking at options for the eventual closure of the Waiapu landfill, Committee agree to include the following action in the new WMMP: a) Include the Waiapu Landfill site Ruatoria (Waiapu) in the feasibility study for a Community Recovery Centre[NTS4]. 19. Initiative Three for consideration to be included in the next WMMP: Leverage off existing initiatives that have community support to deliver and enhance the waste minimisation actions in the WMMP. The Para Kore programme is one of these initiatives. Designed to support marae to reduce waste, its kaupapa is zero waste. The most successful marae can divert up to 75% of their rubbish. Flag the Bag Tairāwhiti, Enviro Schools and the newly established Social Enterprise Tairāwhiti are examples of local groups contributing towards reducing waste and achieving sustainability. Continuing to enable these local groups and initiatives has the potential to develop into on-the-ground benefits far greater than the individual sum of parts. It is proposed that as part of ongoing GDC waste minimisation activities, the Committee agree to include the following action in the new WMMP: a) Identify effective methods or systems, which are already working well in the community, such as the Pare Kore programme, Flag the Bag Tairawhiti and Enviro Schools to deliver WMMP vision and actions. 20. Initiative Four for consideration to be included in the next WMMP: Introduce initiatives that will reduce the amount of Organics in household rubbish We discovered during the SWAP audit earlier this year that organic material, specifically kitchen waste is the largest category seen in the District waste stream. Prioritising actions that will help reduce kitchen waste going to landfill is considered practical. It is proposed that as part of prioritising the diversion of kitchen scraps from household rubbish, Committee agree to include the following action in the new WMMP: a) Investigate the inclusion of a kerbside kitchen waste collection. b) Support the upgrading of the existing composting facility (private business) to receive this waste stream. This is likely to be eligible for Government Levy funding. 21. Initiative Five for consideration to be included in the next WMMP: Investigate alternative collection systems In September 2013 the Operations Committee considered a report [13/350] that described the outcomes of a review of how the rubbish bin sticker system performed when compared against a wheelie bin collection system. At the time the Committee was satisfied that the sticker based collection system was appropriate, but with advances in technology and design it is possible that wheelie bins might outperform in the term of the next WMMP 2018-2024. Page 6 of 9
It is proposed that Committee agree to include the following action in the new WMMP: a) Revisit the options assessment for wheelie bins vs the sticker system. 22. Initiative Six for consideration to be included in the next WMMP: Introduce waste minimisation criteria in GDC procurement processes Council has many business relationships. Including waste minimisation as a criteria in Council service agreements and contracts is one way we could contribute to reducing harm to the environment through waste. It is proposed that the Committee agree to include the following action in the new WMMP: Include waste minimisation as a criteria in council service agreements and contracts. ASSESSMENT OF SIGNIFICANCE Criteria This Report The Process Overall The effects on all or a large part of the Gisborne district Low Medium The effects on individuals or specific communities Low Medium The level or history of public interest in the matter or issue Medium Medium Inconsistency with Council s current strategy and policy Low Low Impacts on Council s delivery of its Financial Strategy and Long Term Plan. Low Low 23. The decisions relating to the vision, proposed scope and the associated options for discussion described in this report are considered to be of low significance in accordance with Council s Significance and Engagement Policy. COMMUNITY ENGAGEMENT 24. To date community engagement on the initial stages to review the 2012-2018 WMMP have been small scale interactions between GDC Liveable Communities staff, local interest groups and schools as part of the regular roles of those staff. 25. Once a draft WMMP 2018-2024 has been developed, it will be presented to Council for consideration as part of the formal consultation process to develop the 2018-2028 Long Term Plan. 26. A copy of the waste assessment will be provided to Hauora Tairāwhiti Medical Officer of Health. This is a requirement of the Waste Minimisation Act and seeks to ensure (for example) matters associated with the sanitary collection and disposal of waste are addressed in the document. CONSIDERATIONS Financial/Budget 27. The cost of reviewing the 2012-2018 WMMP is financed within the Liveable Communities budget. 28. The need to cover any additional costs that may arise as a result of (for example) committing to investigate alternative collection systems will be fully scoped as part of a business case and reported to Council for consideration. Page 7 of 9
Legal 29. By conducting a review of the 2012-2018 WMMP GDC is meeting its statutory obligations under the following Acts: Waste Minimisation Act 2008 Local Government Act 2002 Hazardous Substances and New Organisms Act 1996 Climate Change Response Act 2002, and Resource Management Act 1991 30. The purpose of the Waste Minimisation Act 2008 is to encourage waste minimisation and a decrease in waste disposal to protect the environment from harm, and provide environmental, social, economic and cultural benefits. 31. Adopting a WMMP, reviewing it every 6 years, and spending the waste levy money on the waste minimisation activities described in our WMMP means we are not only meeting the requirements of the Waste Minimisation Act 2008, we are actually making the Act happen. 32. Once the draft WMMP has been developed there may be a case for the establishment of a bylaw to support certain initiatives. For example a bylaw is necessary to give Council the ability to regulate the size of wheelie bins provided by private collectors to be consistent with a waste minimisation vision. A bylaw would also enable us to regulate waste diversion at events and prosecute illegal rubbish dumpers. POLICY and PLANNING IMPLICATIONS 33. The review of the 2012-2018 WMMP is consistent with Council s polices and plans and aligns with the GDC Strategic Direction Thrive Tairāwhiti - which speaks to our aspirations to create an environment for our economy to develop and thrive, supporting ideas and opportunities, and providing supportive community infrastructure. 34. The review is also consistent with our GDC strategic priority: Early Adopters, which reflects our intention to be innovative and creative in the use of council resources, and actively look for and welcome new ways of working and thinking. 35. A decision to include an action in the 2018-2024 WMMP that could lead to the establishment of one or two Community Recovery Centres would make many of the Tairāwhiti Economic Action Plan - He Huarahi Hei Whai Oranga enabling actions happen. Specifically those linked to building our capacity to support business and connecting with people and markets. RISKS 36. There are no major risks associated with decisions relating to the scope and vision of the next WMMP. Page 8 of 9
NEXT STEPS Date Action/Milestone Comments Early August 2017 mid-late August 2017 late November 2017 Early 2018 Forward Waste assessment to the District Chief Health Officer Waste Assessment completed and presented to the Environmental Planning & Regulation Committee for noting. Draft WMMP completed and; Draft Statement of Proposal (SoP) completed To be presented to Council for endorsement (for the purpose of community consultation) as part of the LTP in February-March 2018 Receive business case(s) for proposed initiatives. This includes, but is not limited to the proposal for Community Recovery Centres For feedback prior to finalisation Committee meeting is on 13 September Council meeting is on 14 December 2017. Page 9 of 9