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2.5 Waste managementWaste disposed of in the greater Sydney region remains at levels below those in 2000, but regional variations are emerging. Household waste recycling continues to increase. Valuable resources continue to be lost through the disposal of waste rather than its recovery for recycling and reuse. Major objectives of the Government's waste strategy are waste minimisation and recycling. The total amount of waste currently being disposed of in the greater Sydney region is less than in 2000, but reductions achieved between 2001 and 2003 are being eroded and we are approaching 2000 levels again. Sydney has achieved reductions in total waste and waste per capita but in the Hunter, Central Coast and Illawarra regions the total amount of waste and waste per capita are growing. Kerbside recycling of household containers and paper continues to be a cornerstone of municipal recycling, increasing by more than 13 kilograms per person since 2000 to over 100 kilograms per person per year. In Sydney, since the reform of the waste legislation in 1995, the annual amount of municipal waste per capita that was collected for recycling had increased by a total of 67% by 2004–05. The annual amount of municipal waste per capita going to landfill had been reduced by approximately 37% over the same period. Construction and commercial sites continue to offer the greatest opportunities for diverting more material for recycling with paper, cardboard, food and plastics being the highest priorities. NSW Indicators
IntroductionAustralia is the fifth-highest waste generator among the OECD countries, surpassed only by Norway, Iceland, Ireland and the United States (OECD 2005). Per capita waste disposal in NSW was about 1000 kilograms (kg) per year in 2004–05 (DEC data 2006). The generation of waste has the potential to cause environmental impacts. These include the pollution of air and water, contamination of land, and the loss of land used for landfill sites. High levels of waste reflect unsustainable patterns of resource use, particularly for the finite natural resources that are not recovered for recycling – and this includes the energy, process water and other resources used to manufacture the products being disposed of. Recycling can provide substantial environmental benefits, including reductions in greenhouse gases and savings in water. For example, the paper and containers recycled by a typical NSW household avoids the generation of 106 kg of carbon dioxide each year, and this is equal to half the emissions from lighting an average household each year. Households with high recycling rates can 'save' the equivalent emissions of up to a third of their total electricity consumption, as well as the equivalent of over 3000 litres of water annually. For all of NSW, these savings would equate to permanently taking 55,000 cars off the road (DEC 2005a). Avoiding the disposal of waste also has significant economic benefits. The environmental value of recycling organic waste as garden compost is around $114 per tonne in 'ecodollar' terms (DEC 2005b). This valuation covers resource savings, the environmental benefits of using less chemical fertiliser, less air and water pollution, reduced global warming potential, lower landfill costs, and various other benefits from applying the compost. Waste disposal in NSW is administered regionally through the Sydney metropolitan area (SMA); the Extended Regulated Area (ERA) which covers the Hunter, Central Coast and Illawarra regions; and the Non-regulated Area (NRA) which encompasses the remainder of the State. The SMA and ERA produce most of the waste in NSW: in 2004–05, more than 5.6 million tonnes of waste was disposed of in these areas (Figure 2.18) (DEC 2005a). The challenge to reduce wastes, especially solid wastes, is most evident in the SMA. In response, the waste industry is developing a range of new technologies to recover and treat different types of waste. Current status and trendsWaste disposal ratesIn Australia, three distinct waste streams are defined according to the source of the waste: municipal waste, construction and demolition (C&D) waste, and commercial and industrial (C&I) waste. The data on waste disposal reported here differs from previous SoE reports. It now includes data on the following additional wastes:
NSW data collection systems have now been updated to include all waste disposed of to landfill in the final reported figures from 2000 to 2004–05. This refinement in data collection has increased the reported total waste disposed of by approximately 250,000 tonnes per annum – primarily in extra tonnages of C&D and C&I waste from the SMA. Analysis of the revised disposal figures for 2000–05 shows that overall waste disposal per capita for the SMA and ERA was 68 kg less in 2004–05 than in 2000 (Figure 2.18). Performance, however, varied between the two regions and the various waste streams. In 2004–05, per capita waste disposal in the SMA was 94 kg less than in 2000, while in the ERA it increased by 12 kg per capita. The SMA improvement was assisted by strong recovery performances in the municipal and C&I sectors (where disposal fell by 83 kg and 45 kg per capita, respectively), offset by increased disposal rates from C&D activities of 34 kg per capita. In the ERA, municipal and C&D disposal rates grew by 9 kg and 49 kg per capita, respectively, while there was a significant reduction of 45 kg per capita in the C&I waste stream. Figure 2.18: Waste disposal by waste stream and waste disposal per capita, SMA and ERA, 2000 to 2004–05
Source: DEC data May 2006 Notes: The 2000 calendar year is the base year against which the Waste Avoidance and Resource Recovery Strategy targets are measured. Subsequent years are reported as financial years to facilitate more accurate calculation of the relationship between waste disposal and other parameters for which data is only available on a financial year basis, for example population and economic growth. RecyclingSydney is now recycling 49% of total waste generated across all three waste streams, compared with 48% in 2002–03. The performance of the ERA also improved, recycling 50% of its waste in 2004–05, up from 47% in 2002–03. Increasing tonnages of containers and paper from the NSW waste stream are being recovered through kerbside recycling and drop-off systems. In 2004–05, each person in the SMA set aside 101.5 kg of materials (excluding garden organics) for recycling, compared with 88 kg per capita in 2000. The level of all major material groups recycled has increased, with per capita annual contributions averaging (DEC 2006c):
Major changes in recycling and residual waste infrastructure have recently occurred in the SMA and ERA, but have not yet affected recycling rates. The changes include the UR3R Alternative Waste Technology Facility at Eastern Creek which commenced operation in 2006 and is ramping up to full production. The facility will treat 180,000 tonnes of material each year, equivalent to more than 15% of Sydney's municipal waste. LitterUntil recently, the amount and types of litter dumped in NSW each year had been uncertain, prompting development of a litter monitoring protocol to capture long-term trends. Biennial surveys are now reporting on litter types and changes in littering behaviour, although they do not attempt to measure the effectiveness of specific anti-litter initiatives. Initial results from the first survey detailed in the NSW Litter Report found that NSW scored at the upper end of the clean rating for littering behaviour: 3.8 out of 5 (DEC 2004a). By volume, cigarette butts, plastics and paper made up over 80% of the litter stream while, by weight, cigarette butts, paper and glass comprised 70%. Response to the issueAvoiding the creation of waste is generally the best strategy for dealing with the problems it creates. Other key responses to deal with waste include:
Waste Avoidance and Resource Recovery StrategyThe NSW Government's first Waste Avoidance and Resource Recovery Strategy (DEC 2003) was prepared under the Waste Avoidance and Resource Recovery Act 2001. A revised draft strategy was released for comment in August 2006 and like its predecessor it aims to:
The revised strategy also retains the waste and recycling targets for each of the waste streams that by 2014 NSW will aim to be recycling:
Other targets seek to keep the overall level of waste generated steady between 2003 and 2008 and to reduce the amount of litter generated. Incentives and disincentivesThe Government has overhauled its key economic instrument for encouraging waste reduction as part of a major package of environmental reforms under the City and Country Environment Restoration Program. A new Waste and Environment Levy will provide a strong disincentive to disposal and make it more attractive for waste generators and processors to pursue alternative waste management and recovery opportunities. Under the levy the cost to dispose of a tonne of waste will increase by $6 (plus CPI adjustments) each year for five years. This is in addition to increases in the waste levy already scheduled. By 2010–11, the levy will reach $56 per tonne in the SMA and $52 in the ERA, providing a significant incentive to reduce waste to landfill and increase resource recovery and recycling. The levy will fund a substantial range of environmental programs, including payments to local government in the areas where the levy applies to reward waste reduction initiatives and encourage improved waste service performance standards. LegislationAmendments have been made to the Protection of the Environment Operations Act 1997 to ensure that regulation keeps pace with the changing nature of environmental management. Legislative changes to the Act's definition of waste provide a means of distinguishing genuine waste reuse opportunities from more traditional forms of managing waste for disposal. Together with the Waste and Environment Levy, these changes will provide industry with the incentive and certainty required to pursue further reuse and recovery opportunities. A new Land Pollution Offence has been included in the Act to protect landholders and the environment from damage caused by the inappropriate application of harmful substances to land. The Protection of the Environment Operations (Waste) Regulation 2005 has also been amended to create an integrated, streamlined system for tracking the movement of waste. 'Waste tracking' is used across Australia to minimise the possibility that wastes will be transported or disposed of inappropriately. The new regulations deliver a clear, practical and enforceable system to ensure the appropriate transport and disposal of high-risk wastes. Major programs, plans and activitiesGovernment programs have focused on opportunities to increase recycling in municipal, C&I and C&D waste streams. Some programs are also supporting growth of markets for products with recycled content. Working with councils Substantial efforts have been made to help improve municipal waste management and collection systems for recyclables, such as packaging paper and green waste. Assistance has included:
The Local Government Buy Recycled Alliance has been established between the State Government and the Local Government and Shires Associations of NSW. Twelve councils have directly joined the alliance and 46 others are members via their Regional Organisation of Councils or one of the Voluntary Regional Waste Groups. Between 2002 and 2005, the member councils have diverted from landfill:
Since 2003, the Government has provided funding for programs run by eight voluntary waste groups (totalling 85 councils covering over 90% of NSW). Working with communities Support for community education and information on waste has continued. The community education campaign 'Our environment – it's a living thing' entered a new phase in 2005 with the establishment of a major government/non-government partnership to run an integrated and coordinated program promoting sustainable living. The Government is working in partnership with leading environmental groups, including the Total Environment Centre, the Australian Conservation Foundation, the NSW Nature Conservation Council and the NSW Council of Social Service, to deliver the program over the next two and a half years. The Ethnic Community Action program is encouraging people from culturally and linguistically diverse backgrounds to learn about, and take care of, their local environment at home, work and play. This has involved approximately 11,000 participants and eight community languages. Waste management has been a feature of the program. Working with industry Partnership with industry is a cornerstone of the Waste Avoidance and Resource Recovery Strategy. Over 460 organisations have now been directly involved in introducing cleaner production practices through the $5-million Industry Partnerships Program. This has engaged sectors as diverse as agriculture, boating and marinas, metals, composites, paint and ink manufacturing, engineering, food production, retail, logistics, plumbing, commercial painting and printing. NSW Government programs addressing office paper, construction materials and other commercial wastes are contributing to recovery of more of these materials. Trials and demonstration sites established through partnerships between Government agencies are testing the effectiveness of using recycled organics in road construction, mine rehabilitation and various agricultural applications. A partnership between DEC and the Hawkesbury–Nepean Catchment Management Authority is also trialling the use of recycled organics in catchment management and rehabilitation. Extended Producer Responsibility Priority Statements (EPA 2003b) are identifying wastes of concern and priority wastes that may be subject to mandatory extended producer responsibility schemes if industry performance does not improve. A review by an Expert Reference Group on the progress of each sector in delivering product stewardship identified 17 wastes of concern in the latest priority statement for 2005–06 (DEC 2006b). The NSW Government has also been working nationally with industry sectors, such as the manufacturers of televisions, computers, packaging, tyres and mobile phones, and retailers (plastic bags), to develop effective national producer responsibility schemes to increase recycling or, in the case of plastic bags, to reduce their use. Environmental management of waste A number of programs have focused on improved environmental management of waste. Under the State Government's Household Chemical Collection Program, 164 collections between 2003 and 2005 collected more than 1500 tonnes of material from around 43,000 participants across NSW. Where possible, chemicals and materials were reused and recycled, with stabilisation and disposal used only as the last resort. The NSW Greenhouse Gas Abatement Scheme provides incentives for capturing landfill gas from smaller sites and using it to generate electricity, and for projects that divert putrescible wastes from landfill to make electricity. Incidences of unscrupulous behaviour in the waste industry were targeted by the Government in 22 waste campaigns between 2003 and 2005. These have included blitzes on waste practices posing risks to the environment and following up non-compliances with the legislation. Other initiatives have been designed to raise awareness of sound waste practices and have targeted such areas as unlawful disposal of waste at landfills, litter and illegal dumping, proper handling and disposal of asbestos waste, transport of waste by vehicles, and the management of liquid waste. Improving Government practices The second whole-of-government progress report on the NSW Government Waste Reduction and Purchasing Policy (DEC 2006d) showed that across 122 agencies and State-owned corporations between 2003 and 2005:
Overall, the levels of all materials recycled by agencies resulted in a reduction of approximately 118,000 tonnes of greenhouse gas emissions (CO2-equivalent). DEC has worked with the Department of Commerce and other departments to help develop sustainability requirements for NSW Government contracts and specifications. These include computers, photocopiers, concrete, asphalt, recycled organics and recycling collection services. Future directionsMeeting the Waste Avoidance and Resource Recovery Strategy targets will require ongoing efforts by all individuals, organisations and agencies in each region and/or industry sector. The new Waste and Environment Levy provides a powerful economic incentive that discourages waste disposal in favour of recycling and recovery operations. These increasing disposal costs will also provide a driver for a greater number and range of alternative waste treatment technologies. As with all recovery processes, the challenge for such technologies lies in ensuring that final outputs are fit for purpose – that they provide some benefit and do not cause unacceptable harm to the environment or health. Selecting technologies able to adapt to meet changing market needs and opportunities as well as to changes in input quality and process performance is a key consideration in this emerging area. The quality of materials in items that are to be recycled affects the useability of the recycled product, the development of new products, and the commercial viability of recycling. Expansion of recycling will rely on the supply of quality recycled material that is free of contaminants, ensuring that final outputs are 'fit for purpose'. The development of acceptable quality standards and continued improvements to collection and reprocessing systems to maximise quality are emerging needs. All consumers, but especially governments and businesses, should help stimulate markets for materials with recycled content by creating a demand for them. Examples include the use of recycled materials, such as glass fines in asphalt; the use of recycled organics to reduce the amount of water needed in managing parks; and used tyres as an alternative to existing building materials. Rising costs for the proper management of waste may also increase pressure on illegal dumping, and could lead some to pursue reuse strategies that would unacceptably harm the environment. These potential avenues for environmental harm have been recognised and have necessitated new and innovative regulatory approaches to waste management. A desire to minimise transport costs by locating treatment and recycling facilities close to waste generators may place growing pressure on planning controls. The NSW Government plans to develop a Sydney Metropolitan Waste Infrastructure Strategy to guide the provision of infrastructure for resource recovery, transfer, processing and transport. A suite of new recovery plants will also commence operations in the Macarthur region in 2008. Although facilities and opportunities for households and commercial waste generators are improving, further regulatory and policy guidance may be needed in areas such as:
Industry needs to continue to examine the life-cycle impacts of products and services in response to growing community expectations for corporate environmental sustainability. |
