ACT Waste Management Strategy 2011–2025

1. INTRODUCTION 3

2. WASTE ISSUES IN THE ACT 6 Growing importance of sustainability and climate change 6 Increasing amount of waste to be managed 6 The rate of resource recovery has plateaued 7

3. AREAS FOR BETTER RESOURCE RECOVERY 9 Commercial sector waste 10 Household sector waste 10 Wood waste 11 Extended producer responsibility for electronic and other wastes 11 Hazardous wastes or non-recoverable wastes 11

4. OUTCOME ONE—LESS WASTE GENERATED 15 Strategy 1.1: Awareness, education and action 16 Strategy 1.2: Support for community gardens and home composting 17 Strategy 1.3: Ban single use plastic shopping bags 18 Strategy 1.4: Reduced packaging waste 18 Strategy 1.5: Promote reuse through ACT businesses and charities 19 Strategy 1.6: Promote reuse via the bulky waste collection trial 19 Strategy 1.7: Encourage on-site reuse of construction and demolition waste 19

5. OUTCOME TWO—FULL RESOURCE RECOVERY 21 Strategy 2.1: Boost commercial waste recycling 23 Strategy 2.2: Recover organic and residual waste resources 23 Strategy 2.3: Develop markets for organic and residual waste resources 24 Strategy 2.4: Provide free drop-off facilities for electronic waste (e-waste) 26 Strategy 2.5: Promote education and active recycling 27 Strategy 2.6: Government procurement 27 Strategy 2.7: Public place recycling 27 Strategy 2.8: Public event recycling 28 Strategy 2.9: Develop markets for recyclable materials and strengthening regional connections 28 Strategy 2.10: Disincentives to landfill including appropriate pricing and regulation 28

6. OUTCOME THREE—A CLEAN ENVIRONMENT 29 Strategy 3.1: Reduce litter and dumping through laws and raising awarenes 30 Strategy 3.2: National approaches to litter management 31 Strategy 3.3: Development of the Hume Resource Recovery Estate 32 Strategy 3.4: Maintain a safe and environmentally responsible landfill to meet the ACT’s future needs 32 Strategy 3.5: Manage hazardous waste 33 Strategy 3.6: Increase soil reuse and rehabilitation 34 Strategy 3.7: Review waste operations and urban planning requirements for multi-unit dwellings 34

7. OUTCOME FOUR—CARBON NEUTRAL WASTE SECTOR 35 Strategy 4.1: Methane capture from landfill 36 Strategy 4.2: Minimise organic waste to landfill 37 Strategy 4.3: Expand bioenergy generation and investigate new energy-from-waste technologies to generate energy 37 Strategy 4.4: Increase recycling to avoid greenhouse gas emissions 39 Strategy 4.5: Ensure energy efficient waste collection and transport solutions 40

8. MONITORING AND REVIEW 41

9. ACT GOVERNMENT AGENCIES’ ROLES AND RESPONSIBILITES IN MANAGING WASTE 45 TOWARDS A SUSTAINABLE CANBERRA iii iv 1. INTRODUCTION TOWARDS A SUSTAINABLE CANBERRA 1

1. INTRODUCTION The ACT Waste Management Strategy • reduce greenhouse gas emissions; 2011–2025 (the Strategy) sets a clear and direction for the management of waste in the ACT towards 2025. It builds • ensure Canberra remains a clean on the success of the No Waste by safe place to live and enjoy through 2010 Strategy, released in 1996, that reduced litter, best-practice successfully reduced the waste sent to hazardous waste management landfill from nearly 60% of total waste and the provision of safe landfill in 1995–96 to below 30% by 2003–04. as an option of last resort. The Strategy encompasses wastes The ACT Waste Management Strategy from the household, commercial and 2011–2025 recognises waste as a industrial, construction and demolition resource. Deriving value from waste sectors and biomass from wood and resources requires innovations by garden waste. government and industry in order to transform waste into valuable products. The goal of the ACT Waste Management Strategy 2011–2025 is Technology in waste management to ensure that the ACT leads innovation has evolved since the 1990s when to achieve full resource recovery and the No Waste by 2010 Strategy was a carbon neutral waste sector. first developed. New waste sorting and processing facilities provide This goal is supported by four key more cost effective ways of achieving outcomes and identifies 29 strategies resource recovery and greenhouse that will enable the achievement of the gas abatement. New technologies outcomes. The objectives are: for creating energy from waste (or bioenergy) can produce safe renewable Outcome 1: less waste generated base-load power for approximately 6% of the ACT’s needs (as of 2010). Outcome 2: full resource recovery Innovative bioenergy technologies also Outcome 3: a clean environment offer the potential to manufacture valuable products such as biochar or Outcome 4: a carbon neutral liquid fuels from wood, biosolids and waste sector other materials the ACT currently underutilises or inters in landfill. This Strategy seeks to build on what the ACT is currently doing to manage waste The Strategy also recognises waste resources and focuses on changes that management as a system that is can achieve the greatest benefits in central to the ACT economy. Managing terms of resource recovery, climate waste is an issue for all households change and environmental amenity. and businesses. The ACT has a well developed waste management sector Better waste management is an that generates significant employment opportunity to: and economic activity through the collection, transportation, sorting • relieve pressure on raw materials and processing of waste. Resources through the reuse of products and recovered are then reused in economic recycling of paper, glass, plastic, production. organic and other material; 1 ACT Government, 2008, Canberra Plan: Towards our Second Century. 2 FIGURE 1: THE ACT WASTE MANAGEMENT SYSTEM Economic activity in The waste management hierarchy the ACT and wider classifies waste management strategies Australian economy according to their order of importance and is cornerstone of most waste Production/use Waste generation minimisation strategies. The aim of of waste products by households, business and the waste hierarchy is to extract the government maximum practical benefits from products while generating the minimum amount of waste. The hierarchy employs The ACT strategies which aim to: Waste Management 1. avoid products becoming waste System (reduce and reuse); 2. find an alternative use for waste Disposal to (recycle and recover); and landfill Sorting and treatment Waste collection and transport 3. ensure safe and appropriate disposal as a last resort. Regional waste FIGURE 2 – THE ACT WASTE MANAGEMENT HIERARCHY REDUCE waste generation Preferred to least desirable REUSE goods and materials RECYCLE material into new products RECOVER energy from suitable sorted materials LANDFILL residual waste to protect human health and the environment The waste hierarchy remains an with opportunities to reduce waste important principle for waste at each step of the hierarchy. management in the ACT and is embedded in ACT waste legislation. The ACT Waste Management Strategy This ensures that the ACT’s waste 2011–2025 has been finalised following management strategy presents a the release of a draft strategy in holistic waste management system December 2010 and a subsequent approach from the initial generation of public and industry consultation waste through to its ultimate disposal process conducted in early 2011. TOWARDS A SUSTAINABLE CANBERRA 3 ACT WASTE MANAGEMENT STRATEGY 2011–25 GOAL: THE ACT LEADS INNOVATION TO ACHIEVE FULL RESOURCE RECOVERY AND A CARBON NEUTRAL WASTE SECTOR TARGET OUTCOMES

4. Carbon neutral

1. Less waste generated 2. Full resource recovery 3. A clean environment waste sector • The growth in ACT waste • The rate of resource • ACT leads Australia in low • The ACT Waste Sector is generation is less than the recovery increases: litter and incidents of illegal carbon neutral by 2020: rate of population growth. dumping. –– over 80% by 2015. –– energy generated from • Reuse of goods expands • ACT’s natural resources waste doubling by 2020; –– over 85% by 2020. in the ACT. are protected and, where –– waste resources are –– over 90% by 2025. feasible, enhanced through recovered for carbon waste management. sequestration by 2020. 1.1 Awareness, education 2.1 Boost commercial waste 3.1 Reduce litter and 4.1 Methane capture STRATEGIES and action. recycling. dumping through laws from landfill. and raising awareness. 1.2 Support for community 2.2 Recover organic and 4.2 Minimise organic waste gardens and home residual waste resources. 3.2 National approaches to to landfill. composting. litter management. 2.3 Develop markets for 4.3 Expand bioenergy 1.3 Ban single-use plastic organic and residual 3.3 Development of the generation and shopping bags. waste resources. Hume Resource Recovery investigate new energy- Estate. from-waste technologies 1.4 Reduced packaging 2.4 Provide free drop-off to generate energy. waste. facilities for electronic 3.4 Maintain a safe and waste. environmentally 4.4 Increase recycling to 1.5 Promote reuse through responsible landfill to avoid greenhouse gas ACT businesses and 2.5 Promote education and meet the ACT’s future emissions. charities. active recycling. needs. 4.5 Ensure energy efficient 1.6 Promote reuse through 2.6 Government 3.5 Manage hazardous waste collection and bulky waste collection procurement. waste. transport solutions. service. 2.7 Public place recycling. 3.6 Increase soil reuse and 1.7 Encourage on-site 2.8 Public event recycling. rehabilitation. reuse for construction & demolition waste. 2.9 Develop markets for 3.7 Review waste operations recyclable materials and urban planning and strengthen regional requirements for multi- connections unit dwellings. 2.10 Disincentives to landfill including appropriate pricing and regulation. 4 2. WASTE ISSUES IN THE ACT TOWARDS A SUSTAINABLE CANBERRA 5

2. WASTE ISSUES IN THE ACT Growing importance of predominantly fossil fuel based. Energy- sustainability and climate from-waste technologies can have zero change net emissions due to the bio-organic origin of the fuel source. In addition, Originally, managing waste was energy-from-waste technologies reduce about protecting human health and the amount of waste going to landfill, maintaining environmental amenity. thereby reducing greenhouse gas In the 1990s, sustainable development emissions attributable to the waste came to prominence and waste sector. recycling became a priority. Increasing amount of waste In October 2010 the ACT Legislative to be managed Assembly passed the Climate Change and Greenhouse Gas Reduction Act The amount of waste generated in 2010 to address concerns about climate the ACT grew on average by over 5% change. The Act establishes targets for per year during the past 15 years. The greenhouse gas emission reductions in amount of waste generated is affected the ACT including: by factors including population growth, income and consumption levels, • zero net greenhouse gas emissions consumer preferences for packaging by 2060; and single use containers, and the life cycle of goods such as televisions, • 80% below 1990 levels by 2050; and computers and other electronic items. In 2009–10 the total amount of waste • 40% below 1990 levels by 2020. generated in the ACT was 817,000 tonnes with 229,000 tonnes interred While the waste sector only accounts to landfill. for around 3% of ACT greenhouse gas emissions, it has the potential to Growing waste generation increases the play a significant role in reducing the challenge of reducing the amount of Territory’s emissions profile. Electricity waste sent to landfill. Figure 3 illustrates generated from waste streams, such this challenge of reducing rates of waste as biomass and organic wastes, can to landfill while total waste generation displace electricity sourced from the continues to increase. National Electricity Market which is FIGURE 3: TOTAL WASTE GENERATION AND WASTE TO LANDFILL 900 Resource Recovery 800 Waste to Landfill 700 Tonnes (’000) 600 500 400 300 200 100 0 1994/95 1995/96 1996/97 1997/98 1998/99 1999/00 2000/01 2001/02 2002/03 2003/04 2004/05 2005/06 2006/07 2007/08 2008/09 2009/10 6 Between 2007 and 2019 the ACT’s recovered and recycled from waste, population is projected to increase by rising from 185,000 tonnes in 1995–96 around 50,000 to nearly 405,000.2 The to 588,000 in 2009–10. ACT also acts as a regional waste hub, processing waste from Queanbeyan The key steps that led to this success and the surrounding region, whose are highlighted below. The ACT has populations are also growing. The ACT’s achieved one of the highest rates of population is expected to continue resource recovery in Australia, at over to age,3 and the average number of 70%. While this rate peaked at 75% people in a household is expected to in 2005–06 it has since declined but decrease from 2.55 in 2006 to 1.75 by remains at over 70% (see Figure 4). 2019.4 Future waste management will need to take into account the growing More resources are being recovered population as well as the changing each year, but the increasing generation characteristics of the population and of waste has kept the resource recovery how we live. rate at just over 70% since 2003–04. New infrastructure investments will The rate of resource recovery be required to increase the rate of has plateaued resource recovery further. Since 1995 the ACT has more than doubled the amount of resources FIGURE 4: RATE OF RESOURCE RECOVERY IN THE ACT 100 Resource Recovery 90 Waste to Landfill 80 70 Percentage 60 50 40 30 20 10 0 1994/95 1995/96 1996/97 1997/98 1998/99 1999/00 2000/01 2001/02 2002/03 2003/04 2004/05 2005/06 2006/07 2007/08 2008/09 2009/10 2 ACT Government population projections—www.cmd.act.gov.au/_policy strategic/actstats/projections/act 3 The percentage of the ACT’s population aged 65 years and over is expected to rise from approximately 10% in 2007 to 14.3% in 2019 see http://www.actpla.act.gov.au/__data/assets/pdf_file/0007/7675/Canberra_at_2006_Census. pdf. 4 ACT Waste Management Strategy 2011–2025: Towards a Sustainable Canberra TOWARDS A SUSTAINABLE CANBERRA 7 Resource recovery in the ACT 1 During the 1980s a network of regional recycling drop off centres was established for recyclable material.

2. In 1994, the yellow-top bin was introduced into the household collection service. Waste collected in the yellow-top bin is sorted at a Materials Recovery Facility (MRF) in the Hume Resource Recovery Estate. By 2009–10 this improved system of collection had led to 34,000 tonnes a year of household material being recovered and recycled. The operation of the MRF uses light- sensing technology and automation and this has increased the resource recovery of many plastics and coloured glass. 3 Private sector investment in construction and demolition waste sorting facilities increased recovery and recycling of cement, bricks, metals, plastics, wood and other products. The rate of resource recovery in the construction and demolition sector increased from less than 50% in 1995–96 to over 90% diversion from landfill in 2008–09. In 2009–10 resource recovery from this sector fell to 85% due in part to the construction boom generating more wood waste than there was a market for. 4 Composting of garden waste significantly increased in the early 1990s due to the activities of commercial composters. The ACT has facilities at West Belconnen, Mugga Lane and Mitchell that Canberra residents deliver garden waste to which is then recycled into composts. In 1999, private drop-offs to these facilities further increased with the introduction of disincentives to send garden waste to landfill. These disincentives included landfill fees and charges as well as regulations banning garden waste from government bins under the Waste Minimisation Act 2001. Over 200,000 tonnes per annum of green waste (over 90% of ACT’s total garden waste) is now recovered, processed and sold as high-value potting mixes and garden mulch. 8 3. AREAS FOR BETTER RESOURCE RECOVERY TOWARDS A SUSTAINABLE CANBERRA 9

3. AREAS FOR BETTER RESOURCE RECOVERY The ACT is estimated to have produced equates to almost half of the total over 800,000 tonnes of waste in waste sent to landfill. 2009–10, equivalent to over 2.5 tonnes for each ACT resident, the second • 30–40% of this waste going to landfill highest per capita rate in the country comprises readily recyclable materials after Western Australia. such as paper, plastics and glass. Diverting this waste from landfill The key sources of waste generated to recycling markets is the most in the ACT are (in order of volume): cost effective option for increasing resource recovery in the ACT. • construction and demolition waste generated by the building and • 10–20% of commercial waste is construction industry; organic waste, such as food and vegetation, and is most effectively • garden waste derived from managed in conjunction with similar households and the commercial wastes from the household sector. management of gardens and landscapes; • 40–50% of commercial waste is low value material with high energy • commercial waste generated content, such as contaminated paper by businesses; and and wood waste, which are an ideal resource for energy generation. • household waste generated by around 140,000 households. • A small proportion of material would remain that is not readily recoverable Other sources of waste, which to and will need to be sent to landfill. date have been managed separately to the ACT’s municipal solid waste Household sector waste management system, are: The contents of the green-topped bin collected weekly from households is • wood waste from Canberra’s urban transported directly to landfill and green-space derived from urban accounts for around 25% (60,000 forest management; and tonnes) of waste sent to landfill. • biosolids generated by the ACT’s • Approximately 40–50% of this waste sewage treatment system. is organic waste and is best managed in conjunction with organic waste The flows of waste (waste streams) from the commercial sector. in the ACT from waste generation, collection, sorting, treatment and • 10–20% is readily recyclable materials markets are shown in Figure 5 such as aluminium cans and glass that and further detailed at Annex 1. has not be correctly sorted into the In developing the draft ACT Waste yellow top bin. Strategy the following waste streams were identified as key areas for • 20–30% is low value materials with improvement.5 a high energy content which are an ideal resource for energy generation. Commercial sector waste The commercial sector sent 103,000 • The remainder is material that is not tonnes to landfill in 2009–10. This readily recoverable and will need to be sent to landfill. 5 URS EcoWaste: Economic modelling of options for waste infrastructure in the ACT (August 2010) 10 Wood waste that manufacturers and/or importers of these products take responsibility There has been a significant increase in for collection and recycling of their stockpiling and landfilling of wood from products. the construction and demolition sector in recent years. Alternative resource It is likely that future national markets such as energy-from-waste product stewardship programs may create greater stability in the wood will be implemented for additional market and reduce the quantity of items including tyres, batteries, and wood waste being sent to landfill. fluorescent lights. Extended producer Hazardous wastes or responsibility for electronic non-recoverable wastes and other wastes Hazardous wastes include spent Televisions and computers from the radioactive medicines, potentially household and commercial waste infectious materials from hospitals sector have been identified as specific and asbestos from demolition sites. waste items that would benefit from Hazardous and non-recoverable better management. Through national wastes are an important target area product stewardship schemes these for management; these are covered items can be managed in a way so in more detail below in strategy 3.5. Waste generation and recovery in the ACT Construction and demolition waste Construction and demolition activity in the ACT generated an estimated 285,000 tonnes of waste in 2009–10. This waste stream consists of a diverse set of resources including timber, concrete, asphalt and dirt. Over the last decade several Material Recovery Facilities (MRFs) have been built in the ACT that specialise in sorting construction and demolition waste into valuable resource streams for local and regional use (building and road construction). This technology and the deterrent of high landfill prices has meant that the ACT is now diverting over 85% of the construction and demolition waste stream with only 27,500 tonnes of waste disposed of in landfill in 2009–10. However, demand for recovered wood has not matched production in recent years leading to a significant increase in stockpiling and landfilling. Energy-from-waste technologies can create a sustainable market for this wood and support wider resource recovery from the construction and demolition sector. Garden waste Garden waste includes prunings, leaves and grass clippings from household gardens and parks. High participation in the delivery of this garden waste has lead to over 90% of garden waste being diverted from landfill with a significant portion turned into high value composts by private operators. Garden waste recycling has increased from 65,000 tonnes in 1995–96 to 187,000 tonnes in 2009–10. This high level of garden waste recovery matches international best practice. TOWARDS A SUSTAINABLE CANBERRA 11 Waste generation and recovery in the ACT (continued) Commercial waste The commercial sector including government agencies, retailers, businesses, offices and restaurants sent approximately 103,000 tonnes of waste to landfill in 2009–10. Unlike households which receive a government collection service, businesses are responsible for arranging their own waste and recycling services through commercial providers. There are several commercial and industrial service providers operating in the ACT. In using these services, some ACT businesses separate and recover dry recyclables such as paper and cardboard. Increased uptake of the ACTSmart Business and ACTSmart Office recycling programs along with the construction and operation of a new mixed-commercial- waste Material Recovery Facility (Commercial MRF) from 2014 should significantly increase resource recovery from this sector. Household waste Household waste is collected and transported by government-funded kerbside collection services or delivered to resource recovery centres by residents. In 2009–10 61,000 tonnes of household waste from ACT households was disposed of in landfill. The ACT waste management system also receives waste from Queanbeyan households, which accounted for an additional 8,000 tonnes to ACT landfill in 2009–10. Wood waste Currently wood waste collected from parks and urban tree management activities is primarily used for mulch. Approximately 30,000 tonnes of urban logs and prunings are harvested each year. However, the age profile of the urban forest will mean a significant increase in tree replacement over the next 15 years resulting in greater quantities of wood waste. This wood could be used to generate renewable energy where higher value uses are not available. Biosolids6 Biosolids are a by-product of sewage treatment with 13,500 dry tonnes being generated by the ACT each year. These continue to be managed by ActewAGL and are a component of waste that has not previously been considered as part of the municipal waste management system. However, biosolids represent a significant organic resource that has potential synergies if incorporated into the ACT waste management system. ActewAGL’s Strategic Review of Sewage Treatment Services includes options for the more sustainable management of biosolids. 6 Note: Biosolid waste management is not included in waste to landfill or recycling statistics 12 FIGURE 5: THE ACT’S WASTE MANAGEMENT SYSTEM WITH POTENTIAL OPTIONS FOR GREATER RESOURCE RECOVERY WASTE GENERATION WASTE WASTE SORTING, PROCESSING & DISPOSAL MARKETS BY SECTOR COLLECTION Self haul &/or Compost Garden waste Composting commercial (window) service Residual waste Dry recyclables Collection Material Landfill (paper, clean Household (weekly) Recovery Facility glass & plastic) biogas Clean Material Recovery Facility Electricity grid Recycling (& heat) sale Commercial Energy from Electricity collection Waste Facilities generation (fortnightly) Commercial Material Biochar Recovery Facility Construction & Commercial PEF Coal substitution demolition waste collection Construction manufacture companies & Demolition Material Recovery Facility Aggregates Biosolids Move biosolids Biosolids to EfW facility Incinerator Soil improver Stockpile wood (solar drying) Woodchip or Urban trees Pruning Mulch & spread mulch Legend: Yellow boxes represent existing waste services, facilites and markets. Dashed boxes represent new waste options. TOWARDS A SUSTAINABLE CANBERRA 13 14 4. OUTCOME ONE—LESS WASTE GENERATED TOWARDS A SUSTAINABLE CANBERRA 15

4. OUTCOME ONE—LESS WASTE GENERATED The government will:

1. Educate and conduct awareness raising campaigns to encourage waste avoidance and product reuse.

2. Support community gardening and home composting.

3. Ban single-use plastic shopping bags.

4. Pursue reductions in waste packaging through the Australian Packaging Covenant, government procurement and by working with local businesses to reduce packaging.

5. Promote reuse through ACT businesses and charities.

6. Promote reuse through the bulky waste collection trial.

7. Encourage on-site reuse for construction and demolition waste. These actions aim to achieve the following targets: • The growth in ACT waste generation is less than the rate of population growth by 2020, by: –– waste avoided through a reduction in plastic shopping bags. –– reuse of goods expands in the ACT. Avoiding or minimising the generation and training institutes. The Government of waste means less waste to manage. considers integrated long term This, in turn, leads to reduced costs sustainability education practises as associated with transporting, sorting critical for achieving lasting behavioural and recycling materials and ultimately change to minimise waste, and increase less waste sent to landfill. resource recovery. Reducing the volume of waste has Canberra is a rapidly growing city proven to be a significant challenge for and one of the Territory’s aims is to the ACT along with other Australian minimise waste generation to a rate jurisdictions. As one of Australia’s less than the population growth. most affluent communities, the ACT Education programs will promote produces a relatively large amount more sustainable patterns of living, of waste per capita, second only to encourage people to consider value Western Australia. The population of and adopt environmentally sensitive the ACT is also growing, which increases behaviours that work towards creating the ACT’s overall waste generation. a sustainable future. The government has identified seven Feedback from the Canberra strategies to achieve the targets for community has indicated that a greater generating less waste. emphasis on community education and engagement can contribute towards Strategy 1.1: Awareness, reducing the amount of waste we education and action generate. In addition, education and This Strategy aims to integrate awareness raising activities can also complementary education, training contribute towards other primary and initiatives targeting industry and objectives that this strategy is seeking households, as well as within schools to achieve, particularly Outcome 2: Full Resource Recovery. 16 ACT—100% AuSSI Schools The Australian Sustainable Schools Initiative ACT (AuSSI ACT) works to encourage all ACT schools to manage waste, water and energy sustainably. All members of the school community (students, staff and parents) are encouraged to take ownership and responsibility for sustainable waste management. Environmental leadership teams establish and maintain effective recycling stations throughout the school to ensure sustainable waste management becomes an everyday practice. This approach takes a whole of school and school system approach to identify improvements in a school’s management of resources and facilities including energy, water, waste, biodiversity, landscape design, products and materials; and addresses associated social and economic issues. AuSSI ACT provides a framework for other education around sustainability activities in schools and can be balanced with existing programs. At present Australians throw away Strategy 1.2: Support for around 3 million tonnes of food worth community gardens and home around $5.2 billion, or around 136 composting kilograms per person per year. The Community gardens provide an Government is currently looking at opportunity for many different education campaigns to help address members of the community to engage this issue within the ACT. in gardening activities and growing As part of its education service the food for personal use and pleasure. Territory and Municipal Services Community and home gardens also Directorate (TaMS) maintain a provide an excellent opportunity campaign on household recycling. for householders to reduce waste TaMS also run educational tours by composting household organic through the Materials Recovery Facility materials. Home grown food also avoids at Hume, which engages with 8,000 waste associated with commercial food to 10,000 visitors a year, to show the production and distribution. community the effects of waste on their The ACT Government supports the immediate environment. Information establishment and operation of on these tours is available by emailing community gardens in the ACT through MRFTours@act.gov.au. initiatives including: The ACT Government welcomes the • A ‘one stop shop’ approval process participation of the community to to facilitate the granting of a licence tackle the issues of sustainable living to establish a community garden, and encourage lifelong learning. The including a waiver of licence fees government will continue to encourage and exemption from development and support community initiatives in approval on unleased land. this area. • The development of Site Selection The government will fund and support Criteria under which licence awareness campaigns encouraging the applications for community community to generate less waste, and gardens will be assessed. The Site also to maximise use of current waste Selection Criteria will require to collection systems so waste going to the proponent to take into account landfill is minimised where possible and relevant Development Code practical. TOWARDS A SUSTAINABLE CANBERRA 17 provisions in the Territory Plan and Strategy 1.4: Reduced packaging undertake community consultation waste to demonstrate support from the The Australian Packaging Covenant neighbouring community. is a national initiative that aims to The ACT Government also supports reduce consumer packaging. The ACT social and personal horticulture by is a signatory to the Covenant, and will sponsoring courses in sustainable continue to participate in this initiative. organic gardening, providing the The Covenant identifies four priority necessary skills for community areas to minimise waste. These are: gardeners or those gardening on their • optimise packaging to achieve own land. resource efficiency and reduce Strategy 1.3: Ban single use environmental impact without plastic shopping bags compromising product quality and safety; The Plastic Shopping Bags Ban Act 2010 came into effect on 1 July 2011 • the efficient collection and recycling and from 1 November 2011 bans the of packaging; distribution and use of polyethylene bags of 35 microns or less. • a commitment to product stewardship by the supply chain and The implementation of the ban was other signatories; and finalised after considerable consultation with the community and retailers • action to reduce the incidence and and was in part motivated by the fact impact of litter. that plastic bags are a symbol of a consumer-driven and wasteful society. In 2011 the ACT Government released Extensive cooperation from the retail its Action Plan for Australian Packaging sector, including signage predominantly Covenant 2011-2016. The ACT displayed at most major outlets, has led Government commits in the Action to a wide-spread understanding of the Plan to use procurement to reduce ban in the community. packaging where possible, for example through establishing packing quantities The government is encouraging the as a criteria in its tender documentation use of alternative options such as a for stationery contracts. These biodegradable bag that meets the “green” or “sustainable procurement” Australian Standard, or a multi-use bag requirements are also a component of designed to be used regularly over an the ACTSmart Business and ACTSmart extended period of time. Office recycling programs. 18 The ACT Government will also community requests for a bulky waste encourage businesses to provide collection service the government customers with choices that allow is conducting a trial bulky waste purchases with less packaging, for household collection service. example allowing people to bring their cup for take-away coffee and The trial commenced across Canberra purchasing fruit and vegetables without in April 2011 and will run for 12 packaging. months, following which an evaluation will be undertaken to determine the Strategy 1.5: Promote reuse effectiveness of the program. through ACT businesses and charities Strategy 1.7: Encourage on-site reuse of construction Bulky goods and clothing that can be and demolition waste reused sometimes end up in landfill. Also, food that is bought but unused The vast majority of waste generated or prepared but not sold is often by the construction and demolition discarded, contributing to large amount industry can be readily re-used and of food wastage. recycled. The government recognises the The nature of new suburban valuable contribution that charities and development in the ACT, where many businesses involved in the collection new homes are built concurrently, and reuse of household items, clothing means there is an opportunity for and food make to the ACT community. temporary on-site facilities which can be used to encourage local recycling The ACT Government will work into products that can be used within with the charity, community and the development and the exchange of business sectors to promote increased surplus construction and demolition participation in reuse and second hand materials within the development site. markets in Canberra and the region. The ACT will consult with facility Strategy 1.6: Promote reuse via providers and the construction industry the bulky waste collection trial to explore options for temporary construction and demolition facilities Access to collection services for large within new development areas. or bulky items, particularly for less mobile members of the community, was identified as an issue through community feedback. In response to TOWARDS A SUSTAINABLE CANBERRA 19 20 5. OUTCOME TWO—FULL RESOURCE RECOVERY TOWARDS A SUSTAINABLE CANBERRA 21

5. OUTCOME TWO—FULL RESOURCE RECOVERY The government will:

1. Boost commercial waste recycling.

2. Recover organic and residual waste resources from the household and commercial waste sectors.

3. Develop markets for organic and residual waste resources.

4. Establish free drop–off facilities for electronic waste including televisions and computers.

5. Promote education and awareness about recycling.

6. Promote government purchasing of recycled products.

7. Establish public place recycling.

8. Support public event recycling.

9. Develop markets for recyclable materials and strengthen regional connections.

10. Strengthen disincentives to landfill. These actions aim to achieve the following targets: • Increase the rate of resource recovery to over 80% by 2015. • Increase the rate of resource recovery to over 85% by 2020. • Increase the rate of resource recovery to over 90% by 2025, with no recoverable waste sent to landfill. A key goal of the government in waste ”the waste and recycling services management is to achieve full resource industry in Australia has been valued in recovery so that the need for the the range of $7 to $11.5 billion a year. disposal of waste to landfill is largely This was nearly 1.2% of total Gross limited to non-recoverable materials. Domestic Product (GDP) in 2006–07. Recycling can create employment Improvements in the availability of within the economy with 9.2 jobs waste treatment technologies mean per 10,000 tonnes of waste recycled that resources can be more effectively compared to 2.8 jobs for landfill recovered from mixed waste than in disposal.”8 the 1990s. The role of technology in the waste management system will be The government has identified ten expanded in order to meet the 2025 strategies to achieve the targets for vision for full resource recovery. full resource recovery. These strategies maintain the established goal of no There are significant economic and recoverable waste to landfill as a central employment benefits from increased indicator of success. resource recovery. According to the National Waste Report (2010), 8 The National Waste Report 2010 at http://www.ephc.gov.au/sites/default/files/WasteMgt_Nat_Waste_Report_ FINAL_16_Chapter_4_0_201005.pdf at page 228 22 FIGURE 6: THREE STEPS TO INCREASING THE RATE OF RESOURCE RECOVERY Step 1 Boost commercial waste recycling Step 2 Recover organic and residual waste resources Step 3 Develop markets for organic and residual waste resources Strategy 2.1: Boost commercial are actively recycling. This provides waste recycling consumers with the information they need to support businesses that have Just under 50% of waste sent to landfill good environmental credentials. comes from the commercial sector with 30 to 40% of this waste being readily All ACT Government agencies and recyclable glass, metals, plastics and directorates will improve recycling paper. The Strategy aims to increase efforts and report on improved waste the ACT rate of resource recovery from management in annual reports as over 70% to over 80% by redirecting required for the Chief Minister’s Annual readily recyclable waste from landfill to Report. The ACTSmart Office and recycling markets. ACTSmart Business recycling programs will be the primary programs for To maximise the recovery of waste from improved recycling. the commercial sector the government facilitating the establishment of a mixed Strategy 2.2: Recover organic commercial waste Material Recovery and residual waste resources Facility (Commercial MRF) at the Hume Resource Recovery Estate. The There are a number of different Commercial MRF is expected to recover approaches used by local governments between 40,000 and 70,000 tonnes of to collect household waste, including: waste resources from the commercial

1. Two bin collection service—one bin sector, substantially reducing the waste for readily recyclable waste (paper, this sector would normally send to glass, metal, hard plastic) and one landfill. The Commercial MRF should bin for remaining/residual waste be operational by 2014 with recovered (food, non-recyclable materials and material being sent to its highest value soft plastics). This is the current use. system operating in Canberra; The ACTSmart Office and ACTSmart 2. Garden waste third bin collection Business recycling programs, launched service—one bin for readily by the government in August 2009, will recyclable waste, one bin for green be continued and expanded to further garden waste (excluding food) and help participants sort and recycle their one bin for remaining/residual wastes. In many cases the introduction waste; of the ACTSmart recycling program has

3. Organic waste third bin collection reduced the cost of waste management service—one bin for readily for the offices and business involved. recyclable waste, one bin for Through ACTSmart Office and organic waste (food and garden ACTSmart Business Branding, the ACT waste), one bin for remaining/ Government is providing recognition residual waste (cloth, soft plastics to offices and businesses which and nappies). TOWARDS A SUSTAINABLE CANBERRA 23 While a government funded garden A Material Recovery Facility for residual waste collection service is desired by waste from households (Residual some ACT residents9, the ACT already -waste MRF) could recover nearly all of recycles over 90% of the city’s garden the organic material currently sent to waste using windrow composting. This landfill as well as dry-recyclables that garden waste is currently transported have not been appropriately placed in to commercial composters by private the yellow top bin (around 15% of the delivery (self-haul); or via a commercial total). green-waste collection service, such as trash packs. Due to the high rate Hyder Consulting (2011) estimated the of resource recovery through the net cost to the Territory of a Residual- current system, a third bin garden waste MRF at $8.4 million per annum waste collection service would not by 2021. significantly reduce waste to landfill but could adversely affect established A Residual-waste MRF could small businesses providing gardening also take mixed wastes from the services. commercial sector that are too wet, or contaminated to be processed in Similarly, an organic-waste third- the new Commercial MRF—there bin collection service would not may be over 50,000 tonnes a year significantly reduce the amount of of such material. A final decion on a garden waste interred to landfill. Residual-waste MRF would not be However, it would increase the recovery made until the Commercial MRF has of food waste. Organic-waste collection been operational for 12 to 24 months. systems in other Australian jurisdictions This is to enable the ACT Government have recovered between 18 and 51% and private sector technology providers of the food waste in the residual bins; to better understand the impact of the these recovery rates are consistent Commercial MRF on the commercial with international experience. The total waste sector. recovery of household organics would generally be well under 50% as tissues, Strategy 2.3: Develop markets nappies and incorrectly binned paper for organic and residual waste and cardboard as are often left in the resources residual waste bin. The ACT’s future waste system development will adhere to the Hyder Consulting estimated the net principle that waste should be directed cost to the Territory of establishing to the highest-value use. an organic waste collection system at $20.0 million pa by 202110. The net Submissions to the draft strategy costs consist of new bins and their highlighted the potential and advantage collection, a facility to receive the third of composting organic and food bin material, remove contaminates and waste. Composting and worm farming compost it minus the savings associated (to break down organic matter) can with less material going to landfill. This produce organic soil conditioners. indicates that a third bin service for However, composting also produces organic waste collection is a relative greenhouse gases and is not suited to expensive way to address household producing high value products from food waste, which would not divert residual household organics. even half of the organic waste currently going to landfill. 9 See TAMS Community Satisfaction Surveys at http://www.tams.act.gov.au/__data/assets/pdf_file/0004/193234/ Customer_Satisfaction_Summary_Nov_2009.pdf 10 Hyder Consulting: Assessment of Waste Infrastructure and service option for the ACT, November 2011. 24 Nonetheless, composting or worm wastes, such as wood, contaminated farming is a suitable technology for paper, cardboard and food, into energy. some clean waste streams including Thermal based technologies can also garden waste and well sorted safely convert plastics into energy. commercial food waste. Home composting has substantial benefits Energy-from-waste technologies in that it allows the organics to be support resource recovery facilities by collected and beneficially reused on site providing a market for materials that without associated transport or supply would otherwise have little value or chain costs. would incur an expense associated with landfilling. This strategy recognises that The ACT Government’s policies and some wastes currently being land filled programs such as AuSSI schools and are not suitable for power generation the ACTSmart Office and ACTSmart due to their low energy content or the Business programs are diverting a large risk of atmospheric pollutants requiring amount of garden and food waste expensive exhaust cleaning. into composting businesses and worm farms. The government will continue to investigate the costs and benefits Energy-from-waste technologies can associated with developing markets for provide a value or benefit to the ACT waste streams with a view to providing through the conversion of appropriately services that deliver the maximum sorted and pre-processed low-value benefit to the Canberra community in a materials such as wood waste and cost effective manner. This investigation process engineered fuels (PEF) into will proceed concurrently with the heat, power or transport fuels. review under the Sustainable Energy Policy 2011–2020 that will examine Energy-from-waste technologies renewable energy opportunities in produce renewable “bioenergy” general. through the conversion of organic Role of energy-from-waste technologies in the ACT waste management systems In June 2009, the ACT Government commissioned URS-Eco Waste to provide advice on how to improve resource recovery in the ACT through a holistic “material flow analysis” of the ACT’s waste streams, with a focus on the potential role of energy from waste in the ACT. The report identified a range of suitable materials that have limited market potential for a range of reasons, including high costs of recovery and low value or contamination. Consequently, much of this material ends up in landfill or is stockpiled. Such materials include: • wood waste from the construction and demolition sector and from the ACT’s urban forests; • film plastics; • commercial food waste; • dirty mixed plastics; • dirty or wet paper; and • fabrics (old clothes and carpet). TOWARDS A SUSTAINABLE CANBERRA 25 Role of energy-from-waste technologies in the ACT waste management systems (continued) Following analysis of the ACT’s waste streams and potential technologies currently available, it was estimated that 10–20% of the ACT’s waste streams could be better utilised for energy generation. The study found that new bioenergy capacity could be sustainably developed with currently available feed stocks and could be a cost competitive form of renewable energy for the ACT. The establishment of bioenergy facilities in the ACT would achieve a number of positive outcomes including: • increasing resource recovery; • reducing requirements for additional landfill; • reducing greenhouse gas emissions through removing organic waste from landfill; • generating renewable energy; and potentially • sequestering carbon through biochar manufacture for use in agriculture or horticulture. Strategy 2.4: Provide free in 2005. This is presently a user-pays drop-off facilities for electronic system. waste (e-waste) The Commonwealth’s Product The ACT became the first jurisdiction Stewardship Act 2011 came into to divert all computers and televisions effect in August 2011. Regulations for units from landfill by introducing the television and computer product stewardship scheme were passed in mandatory recycling for televisions in late 2011. This scheme is expected to 2010, complementing the mandatory provide at least two free drop-off sites recycling for computers introduced in the ACT, by the end of 2012. The National Waste Policy The former Environment Protection and Heritage Council (EPHC) agreed to the National Waste Policy: Less Waste More Resources in November 2009, which replaced the 1992 National Strategy for Ecologically Sustainable Development. The aims of the National Waste Policy are to: • avoid the generation of waste and reduce the amount of waste; • manage waste as a resource; • ensure that waste management is undertaken in a safe and environmentally sound manner; and • contribute to the reduction in greenhouse gas emissions, energy conservation and generation, water efficiency and the productivity of the land. The ACT will work closely with other jurisdictions to implement the National Waste Policy and proposed product stewardship schemes. This approach enables the ACT to meet its national obligations and address particular categories of waste that are best managed via product stewardship schemes such as e-waste and tyres. 26 Strategy 2.5: Promote education for reuse, recycling and disposal in and active recycling the ACT. These activities include tours of waste facilities, visits to schools, Educating the public and businesses businesses, residential facilities about recycling remains an important and community events. The ACT’s component of maintaining and consistently high household recycling improving resource recovery rates. The rates are testament to the value ACT Government provides an extensive of waste education. Education and amount of information for households awareness raising will continue using and businesses on its websites, as present forms of media and will evolve well as conducting targeted education with technology and social trends. and awareness programs. Information and awareness raising is important The ACT Government actively for changing behaviour and attitudes participates in the National Waste and ensuring that recycling efforts Education Division of the Waste are maintained within the home and Management Association of Australia. matched by recycling efforts at work, This participation assists in the sharing while shopping and at events. of best-practice approaches to waste education. The Territory is presently working towards this via a number of programs, Strategy 2.6: Government including the Australian Sustainable procurement Schools Initiative (AuSSI), and educational programs such as the The ACT Government’s Sustainability ACTSmart Business and ACTSmart Policy 2009, People, Place, Prosperity11, Office program, as well as through includes principles for sustainable ACT NOWaste. procurement to be incorporated into the ACT’s procurement processes. AuSSI provides curriculum material and structured opportunities for schools to The ACT Government purchases a educate children on the importance of range of goods and services. The ACT waste management; to enable students Government can use sustainable to understanding what happens to procurement principles to provide a market driver for increased use of waste once it is put into bins; and why recycled materials in the goods and this is important. AuSSI involves more works that it procures. It can also than 110 schools in the ACT. encourage service suppliers to use The Waste Wise component of AuSSI recycled products where practical. focuses on minimising waste to landfill The ACT Government will review the through recycling paper and plastic specifications used for government products; and composting organic tendering to identify where recyclable material as well as smart purchasing. alternatives can replace non-recyclable The program has been highly successful materials, for example in the tendering in reducing waste and saving money of construction and landscaping projects. in schools. Waste Wise aims to change As part of its proposed Carbon Neutral attitudes from viewing what we would ACT Government Framework, the ACT traditionally throw away as ‘waste’ to Government will pursue additional viewing these materials as ‘resources’. sustainable procurement practices. ACT NOWaste undertakes educational programs aimed at waste reduction Strategy 2.7: Public place and raising awareness with a focus recycling on household recycling and waste The ACT Government is trialling management using a range of activites. street level recycling to increase the These activites aim to promote actions opportunities for the public to recycle in the community, as well as an and to divert recyclables from landfill. understanding of the services available 11 See http://www.cmd.act.gov.au/__data/assets/pdf_file/0003/119730/people_place_prosperity.pdf TOWARDS A SUSTAINABLE CANBERRA 27 Following the initial trial, that will impediments to the development commence by the end of 2011, the and operation of effective markets for program will be evaluated to determine potential wastes. The ACT will ensure its the effectiveness of the program and procurement processes reflect the new options for its continued operation. standards once these are agreed. Strategy 2.8: Public event The ACT Government will continue recycling to explore and implement options for regional resource recovery, including Public events produce significant the South-East working with Regional amounts of material, some of which is Organisation of Councils which is the waste, but mostly consists of potentially primary regional waste organisation recyclable material including paper, of local governments in the region. cardboard, glass, metal, plastics and organics. The ACT currently provides waste and recycling services to the Queanbeyan In April 2011 the ACT Government City Council. In the future, there may commenced a twelve month trial to be opportunities to expand the ACT’s encourage recycling at public events regional role by increasing access to around the ACT. The aim of the program ACT resource recovery facilities for is to assist event organisers in managing regional councils and businesses. waste in the most efficient and effective This has the potential to significantly manner. It is designed to help event enhance the sustainability of south-east organisers implement recycling facilities NSW, while offsetting the cost of new within a public event, and provide the waste facilities for Canberra residents public the opportunity to recycle within and businesses. that event. The ACTSmart Public Event program is available to any event in Strategy 2.10: Disincentives to the ACT. The ACTSmart Public Event landfill including appropriate logo provides customer recognition pricing and regulation of an event’s waste management achievements. All events are required Price signals are an important to supply waste and recycling disposal mechanism to influence people’s data on completion of their program. behaviour. Landfill charges create a disincentive to send waste to landfill The Environment and Sustainable while drop-off facilities that are free Development Directorate has extended or charge nominal fees for specific the program until June 2013 and types of recyclable waste (for example, will work with the Economic garden waste, paper cardboard and Development Directorate to ensure other recyclables, oil, batteries, and that the more than 100 events that in the future, e-waste) will encourage form the Centenary of Federation people to sort and deliver waste to celebrations will be ACTSmart Public these facilities. Recycling events. The aim of future landfill and facility Strategy 2.9: Develop markets charging will be to encourage resource recovery and discourage waste being for recyclable materials dumped or going to landfill. Regulation and strengthening regional can also complement price signals, for connections example the banning of televisions, The ACT Government will further computers and other recyclable wastes develop waste markets in the ACT from going to landfill. and surrounding region. The government will continue to As part of the National Waste Policy update its regulatory and pricing the ACT will work both locally and approach to assist the efficient nationally to develop a suite of agreed operation of the ACT’s evolving guidelines and standards to remove waste management system. 28 6. OUTCOME THREE—A CLEAN ENVIRONMENT TOWARDS A SUSTAINABLE CANBERRA 29

6. OUTCOME THREE—A CLEAN ENVIRONMENT The government will:

1. Reduce litter and dumping through laws and awareness raising.

2. Participate in national approaches to litter management.

3. Further develop the Hume Resource Recovery Estate to co-locate resource recovery facilities.

4. Maintain a safe and environmentally responsible landfill to meet the ACT’s future needs.

5. Improve management of hazardous waste.

6. Improve management of soil waste through reuse and rehabilitation.

7. Review waste operations and urban planning requirements. These actions aim to achieve the following targets: • ACT leads Australia in low littering and incidents of illegal dumping: –– the ACT has the lowest litter levels in Australia; and –– incidences of illegal dumping declines. • ACT’s natural resources are protected and, where feasible, enhanced through waste management: –– ACT landfill is industry best practice; and –– soils are remediated or reused. Historically, waste was managed to Strategy 3.1: Reduce litter and reduce environmental and health risks dumping through laws and associated with landfill, dumping and raising awareness uncontrolled burning. While there are Litter management in the ACT is an now additional objectives relating to important contributor to the amenity resource recovery and climate change, of urban environments. The existing these original aims remain. regulatory framework provides a mechanism for penalising individuals The government has identified seven and businesses who engage in littering key strategies to achieve the targets for and dumping. The government a clean environment. continues to encourage reporting of illegal dumping. 30 Litter laws in the ACT The Litter Act 2004 (ACT) aims to enhance the natural and built environment by regulating deposits of litter, or other material that may become litter, and to facilitate the removal of litter. Littering of any kind is illegal under the Act. It is an offence under the Act to dump rubbish in a public place. If the rubbish contains hazardous waste, it is also an offence under the Dangerous Substances Act 2004. Under these Acts the following penalties apply: • basic littering penalties include $1,000 for individuals and/or $5,000 for businesses; • aggravated littering by means of littering that could cause injury to person animal or public place carries higher penalties, being $5,000 for individuals and/or $25,000 for businesses or imprisonment for 6 months or both; • the dumping of illegal substances under the Dangerous Substances Act 2004 carries penalties up to $200,000 for individuals and/or $1 million for businesses and/or 7 years imprisonment and the possibility of other penalties. The government will also continue to access to appropriate transport for promote awareness through anti-litter moving bulky goods. Recognising this, campaigns and provide targeted clean the ACT Government is trialling an on- up services to reduce the amount demand bulky waste collection service. of litter in the ACT. Strategy 3.2: National Illegal dumping is a concern in Canberra approaches to litter because it: management The ACT participates in the National • pollutes our lakes, rivers and Litter Index conducted by Keep waterways; Australia Beautiful12. The National • may contain hazardous waste; Litter Index reports annually on litter in each state and territory and provides • may be dangerous to the public, for national averages. The National Litter example, discarded syringes and Index 201012 provided further evidence asbestos; that Canberra is one of the national leaders in waste management, with the • may attract rats and cockroaches ACT recording the lowest rate of litter and spread disease; in Australia in terms of volume. • looks unsightly and reduces amenity; In April 2008, the Commonwealth • is a waste of resources as most and state/territory Ministers dumped items can be recycled or through the Council of Australian reused; and Governments (COAG) Standing Council on Environment and Water (SCEW • is a financial burden to rate payers. formerly the Environment Protection Illegal dumping on Canberra’s streets and Heritage Council) agreed to may occur when people do not have conduct an assessment of options for 12 Keep Australia Beautiful National Litter Index Report 2011 www.kabq.org.au/National-Litter-Index. TOWARDS A SUSTAINABLE CANBERRA 31 national measures to address resource There are a number of benefits that efficiency, environmental impacts, and arise from the co-location of waste the reduction of litter from packaging facilities in the Hume Resource wastes such as beverage containers. Recovery Estate, including the synergies The SCEW agreed to undertake between different parts of the recycling the development of a consultation industry which could result in increased regulatory impact statement (RIS) resource recovery, reduced costs and for a Container Deposit Scheme reduced traffic movements. (CDS), and other options which may have a positive cost benefit and a There are a number of government tangible impact on recovery rates and and privately owned and operated litter reduction. The ACT is an active facilities for resource recovery in the participant in this national work. ACT outside of the Hume/Mugga Lane precinct, including green waste facilities The ACT Government also at Macgregor and Mitchell, and a supports national approaches to construction and demolition recycling the management and recovery of centre at Pialligo. hazardous wastes such as lamps containing mercury and end-of-life Strategy 3.4: Maintain a batteries. safe and environmentally Strategy 3.3: Development of responsible landfill to meet the Hume Resource Recovery the ACT’s future needs Estate The ACT’s landfill will continue to There are a range of government be operated at best environmental resource recovery facilities in the standards. The National Waste Policy ACT which provide ACT residents and identifies that state and territory businesses with a number of accessible governments need to ensure the safety options for recycling. These include: and health risks arising from landfill gas emisions are managed across • Mugga Lane Resource Management all landfills through appropriate Centre; regulation and licence requirements. The ACT Government is committed • Mitchell Resource Management to maintaining a safe and environ- Centre; mentally responsible landfill for its waste workforce and the Canberra • West Belconnen Resource community. Methane gas capture is in Management Centre; as well as place for both the current and former landfills. • recycling drop-off Centres at Belconnen, Mitchell, Phillip, On present projections, the current Gungahlin, Weston and Tuggeranong. landfill cell at Canberra’s only operational landfill at Mugga Lane These facilities will continue to provide is expected to be filled by 2015–16. accessible waste services to different The territory is progressing the areas of Canberra. However, major new development of Mugga Lane Landfill waste infrastructure will primarily be Stage 5 to the north-east of the existing located in the Hume Resource Recovery landfill cells. Estate beside the Mugga Lane Resource Management Centre. At current projected waste generation rates Mugga Stage 5 will provide for The Hume Resource Recovery Estate the ACT’s landfill needs to 2040. With is being developed in conjunction with the improvements in resource recovery the Mugga Lane Resource Management outlined in this strategy Mugga Stage Centre as a recycling estate housing 5’s expected life may extend through a range of facilities. to 2100. 32 Strategy 3.5: Manage hazardous wastes according to its regulatory waste requirements and national and international best practice. Materials which have the potential to cause environmental harm are The management of hazardous generated for a variety of reasons materials is an area of active policy including medical applications, fuels, development nationally as the range of pest control, refrigeration and air hazardous materials grows over time. conditioning, automotive applications and cleaning. Hazardous materials The ACT Government is participating may also be produced as a result of in national efforts through industrial processes and in household implementation of the National Waste waste. Policy to further improve the system for the identification, classification, In the ACT, handling of hazardous collection, treatment, disposal and substances is governed by legislative monitoring of hazardous substances requirements. The ACT will continue to and waste. regulate the management of hazardous Environment Protection and Waste Management Legislation in the ACT Considerable work is being done nationally and internationally to minimise the risk to the environment from activities which involve hazardous materials. National approaches to the management of hazardous materials are developed under the National Environment Protection Act 1994 and equivalent legislation in other jurisdictions. In the ACT, the Commonwealth’s National Environment Protection Act 1994 is given effect through the National Environment Protection Council Act 1994. Together, the Acts provide for the development and implementation of National Environmental Protection Measures (NEPMs). NEPMs currently address aspects of hazardous materials management including the Movement of Controlled Wastes between States and Territories NEPM and the National Pollutant Inventory NEPM. The Environment Protection Act 1997 [EP Act] aims to prevent environmental degradation and adverse risks to human health and the health of ecosystems. The EP Act promotes reuse and recycling of materials and waste minimisation programs. The EP Act also aims to regulate, reduce or eliminate the discharge of pollutants and hazardous substances into the air, land or water consistent with maintaining environmental quality. Related acts include the Clinical Waste Act 1990, which relates to the treatment, storage, transportation and disposal of clinical waste, and the Dangerous Substances Act 2004, which aims to protect the health and safety of people, and to protect property and the environment from the hazards associated with dangerous substances. The duties in relation to dangerous substances are in addition to duties in the EP Act. The Waste Minimisation Act 2001 [WM Act] further embeds waste minimisation objectives and principles into how waste is to be managed. The WM Act provides the legal framework for the management, regulation and reduction of waste. The Act allows for Industry Waste Reduction Plans and the supply of waste management services and waste disposal facilities. TOWARDS A SUSTAINABLE CANBERRA 33 Strategy 3.6: Increase soil reuse Strategy 3.7: Review waste and rehabilitation operations and urban planning Soil Reuse requirements for multi-unit dwellings Virgin extracted natural materials (VENM) from construction sites are As Canberra grows, the pattern of sometimes landfilled in the ACT. The human settlement is changing. Inner ACT Government will work to facilitate city areas are becoming denser with the beneficial use of this material in more multi-unit housing and new new construction sites or as landscaping suburban areas have smaller blocks. products. In particular, the government This has implications for both waste will seek to have temporary soil and collection services and for the design construction and demolition material of buildings. exchange sites established to allow the The ACT Government will work with the efficient reuse of these materials were waste management industry, building possible without excessive transport or designers and developers to identify transaction costs. potential ways to increase resource Soil Rehabilitation recovery, and reduce the impacts of litter and dumping. This will inform The ACT has number of sites that have future waste collection services and been contaminated by past activities the design rules for urban settlement. such as old petrol stations. The ACT The ACT Government’s aim is assured Government will continue to work with and efficient collection services with an industry to ensure that these sites are urban design that works for residents. rehabilitated so they are suitable for new developments. The soil from old petrol station sites, for example can be biologically remediated over a period of months to produce material suitable for beneficial reuse at other sites. This has been successfully undertaken in the ACT. 34 7. OUTCOME FOUR—CARBON NEUTRAL WASTE SECTOR TOWARDS A SUSTAINABLE CANBERRA 35

7. OUTCOME FOUR—CARBON NEUTRAL WASTE SECTOR The government will:

1. Continue methane capture from landfill.

2. Minimise organic waste going to landfill.

3. Investigate options to adopt Energy-from-Waste technologies.

4. Increase recycling to avoid greenhouse gas emissions.

5. Promote energy efficient waste collection and transport systems. These actions aim to achieve the following targets: • The ACT waste sector is carbon neutral by 2020, including through: –– waste resources are recovered for carbon sequestration; and –– energy generated from waste doubling by 2020. Waste management and energy-from- The government has identified five waste will play an important role in key strategies to achieve the targets achieving the Government’s goal of for a carbon neutral waste sector. a 40% reduction in greenhouse gas emissions by 2020. According to the Strategy 4.1: Methane capture ACT Greenhouse Gas Inventory (2009), from landfill the waste sector generated just over Organic waste disposed of in landfill 124kt CO2-e in 2009, or around 3% produces methane—a potent of the Territory’s greenhouse gas greenhouse gas. emissions. Methane is extracted from Canberra’s Extraction systems to capture most of only operational landfill (Mugga Lane) the methane emissions from landfill and at the closed landfill facility (West were installed in 1998 and limit Belconnen) and is burned to generate greenhouse gas emission capture renewable electricity. The ACT’s from the ACT’s waste sector to under Mugga Lane landfill uses best practice 3% of the ACT inventory. A carbon techniques to capture most of this neutral waste sector could be achieved methane and the ACT Government through redirecting organic waste into receives an annual royalty on the composts, biochar production and renewable energy generated from renewable energy generation. the landfills. The methodology for determining Methane captured from both the carbon neutrality will be consistent Mugga Lane landfill and the West with the methodology adopted for the Belconnen facility generates more preparation of the ACT’s Greenhouse than 28,000 megawatt hours a year Gas Inventory. Methodologies to of renewable energy13, sufficient to account for offsets from soil carbon power nearly 3,300 homes. and renewable energy generation will be consistent with the Australian Approximately 40% of methane may Government’s Carbon Farming Initiative diffuse out of landfills in Australia and Clean Energy Future Acts and despite gas extraction14. The Territory regulations. 13 Australian Government Office of the Renewable Energy Regulator http://orer.gov.au/rec-registry/index.html. 14 “A typical gas collection system recovers 60% of landfill gases (the default value used for the estimation of emissions from landfills to the National Pollutant Inventory). This is supported by a recent analysis by Hyder Consulting that argues that while capture efficiencies of up to 95% have been reported and best practice is accepted as 75%, a more realistic typical value over an extended period of operation would be closer to 60%. BDA Group (2009) The full cost of landfill disposal in Australia see http://www.environment.gov.au/settlements/waste/publications/pubs/landfill-cost.pdf. 36 will continue to support the Australian international experience. The total Landfill Gas Emissions Reduction recovery of household organics would (ALGER) research program seeking to generally be well under 50% as tissues, improve the capture rates of methane nappies as well as incorrectly binned extraction systems as well as to paper and cardboard as are often left remediate diffuse methane emission in the residual waste bin. via biologically active landfill covers. The government will continue the A Material Recovery Facility for residual capture of greenhouse gas emissions waste from households (Residual from landfill and minimise organic -waste MRF) could recover nearly all waste being sent to landfill. of the organic material currently sent to landfill as well as mixed wastes from Strategy 4.2: Minimise organic the commercial sector that are too wet waste to landfill or contaminated to be processed in the Greenhouse gas emissions from the new Commercial MRF. There may be waste sector are primarily a result of over 50,000 tonnes a year of wet-mixed organic waste sent to landfill creating Commercial waste (See Strategy 2.2. methane as it decomposes. Around for more information on these material 50% of waste sent to landfill is organic, recovery facilities). made up of food, wood, paper and Strategy 4.3: Expand bioenergy garden wastes. Organic waste comes generation and investigate new from all waste sectors-household, energy-from-waste technologies commercial and construction and to generate energy demolition. Some waste streams have little value The new dry-Commercial-waste in recycling markets but may have Material Recovery Facility (commercial significant calorific (energy) value that MRF) is planned to recover over 40,000 can be used to generate electricity. tonnes of material a year that would Where these wastes are organic, such otherwise have been landfilled. Much as wood, soiled paper and food, the of this material will be organics such electricity generated is a renewable as paper, timber and cardboard. The source of energy (bioenergy). commercial MRF is expected to be operational in 2014. If coupled with electricity production, research suggests that a thermal Energy from waste facilities capable of conversion facility could produce 1,330 utilising wood waste, with a lower gate MWh of electricity in 2020, avoiding fee than the landfill, will also minimise emissions from electricity sourced wood waste that is landfilled. through the National Electricity Market by around 112,000 tonnes CO2-e with Due to high rates of garden waste a further reduction of 18,000 tonnes diversion in the ACT, an organic-waste CO2-e from avoided emissions from third-bin collection service would not landfill15. significantly reduce the amount of garden organics sent to landfill. It may The government will continue to reduce food waste in some specific investigate the costs and benefits households. Organic-waste collection associated with developing markets for systems in other Australian jurisdictions waste streams with a view to providing have recovered 18–51% of the food a service that will deliver the maximum waste in the residual bins; and these benefit to the Canberra community recovery rates are consistent with in a cost effective manner. 15 Pitt&sherry, “Weathering the Change: The ACT’s Draft Climate Change Action Plan 2: An analysis of pathways, costs and benefits”, July 2011. TOWARDS A SUSTAINABLE CANBERRA 37 Investigating energy-from-waste technologies Energy-from-waste technologies include in-vessel anaerobic digestion, landfill gas extraction, pyrolysis, gasification and direct combustion. The technologies can be categorised as biological (anaerobic digestion) or thermal (pyrolysis, gasification and direct combustion). Energy-from-waste technologies produce renewable “bioenergy” through the conversion of organic wastes, such as wood, contaminated paper, cardboard and food, into energy. The ACT generated more than 28 000 MWh of bioenergy from landfill gas extracted from existing landfill sites. Thermal based technologies can also safely convert plastics into energy. While gasification and direct combustion processes destroy most of the agronomic value of the organic matter in producing energy, anaerobic digestion and pyrolysis can enable most of the nutrients and some of the carbon to be captured and recycled back into the soil. Biochar produced from “slow” or low-temperature pyrolysis can not only sequester carbon for thousands of years but may offer significant agronomic and environmental benefits, such as improved water and nutrient retention within Australia’s naturally low- carbon soils. The potential to create biochar from organic waste streams provides an opportunity for long-term carbon sequestration. However, pyrolysis for waste processing is quite novel and the value of waste derived biochar remains uncertain. The ACT Government will work with research institutes and the Australian Government, to determine the agronomic, carbon sequestration benefits of producing and using biochars in the ACT and surrounds. The Territory has supported the Fenner School of Environment and Society at the Australian National University to use biochar in glass-house pot trials (the ANU trial). The ANU trial involves creating a growing medium consisting of one of the five biochars blended with both—an organic compost “potting mix” and a locally sourced top soil. Biochar concentrations ranged from 0.5 to 6% by volume. The growth media were then potted with five different plants, both native and exotic species. This randomised block plant trial contains over 1500 pots. Measurements of plant growth are being taken regularly and total biomass harvesting will occur in over late 2011 and early 2012. However, due to the time postulated for biochar to be fully incorporated into the soil and colonised by soil flora, it is likely that definitive results may need a further 12 to 24 months of repeated measurements. A range of soil chemical and physical properties are currently being measured on the different treatments. Process engineered fuels (PEFs) can the use of PEFs as a fossil fuel substitute be derived from residual wastes with is still relatively novel in Australia. low value but high energy content. PEFs can be used to generate heat for At present only South Australia licences industrial process such as steel, cement the use of PEFs, at the Brighton Cement or paper manufacture or in power Kiln, which has been receiving PEFs stations. While PEFs are widely used from Resource Co’s Material Recovery internationally—especially in Europe— Facility since 2003. 38 Opportunities to better utilise biosolids The ACT currently generates 38,000 wet tonnes of biosolids a year (13,500 dry tonnes) from ACTEW’s Lower Molonglo Water Quality Control Centre (LMWQCC). The biosolids are co-fired with diesel in a hearth furnace to produce an ash. The ash is high in calcium, phosphorous and micro-nutrients and is sold as a soil improver. As the LMWQCC is upgraded to further improve biological nutrient removal the amount of biosolids will increase and become much wetter. Hence increasing amounts of diesel will be needed to incinerate them. Alternatively, these biosolids could be processed with other ACT waste streams. The biosolids could increase the energy yield from a bioenergy facility. If the bioenergy facility were producing a compost or biochar then the biosolids could significantly enhance the value and quality of these products. ACTEW’s Strategic Review of Sewage Treatment Services includes options for managing biosolids and provides an opportunity to transition to a more sustainable integrated solution for the management of biosolids in the ACT. Strategy 4.4: Increase recycling Recycling can also reduce water and to avoid greenhouse gas energy use. Estimations of these savings emissions have been made for different types of recycled materials. Indicative figures Recycling avoids the generation of based on ACT NOWaste recycling data greenhouse gases by both reducing for 2009–10 and Commonwealth the production of raw materials and estimates are shown in Table 1. diverting waste away from landfill. TABLE 1 GREENHOUSE GAS AND WATER SAVINGS FROM RECYCLING Type of Tonnes water saving Water GHG saving GHG material recycled per tonne savings (kL) B per tonne emissions 09–10 A (KL) savings (tCO2–e) Paper 51224 15.58 798,000 1.54 79,000 Timber 47543 0.07 3,000 0.15 7,000 Glass 16783 2 34,000 0.33 6,000 Aluminium 2319 233.2 541,000 15.80 37,000 Steel cans 1026 1.1 1,000 0.81 1,000 A – Figures provided by Territory and Municipal Services Directorate, ACT Government. B – Figures from GHD (2009) ‘Waste Technology and Innovation Study’ for the Department of the Environment, Water, Heritage and the Arts (DEWHA) at http://www.environment.gov.au/settlements/ waste/publications/waste-technology.html. The ACT Government is committed markets for recoverable waste streams to increasing recycling and to develop as described under Outcomes 1 and 2. 16 Personal communication with South Australian Environmental Protection Authority (25 October 2011). TOWARDS A SUSTAINABLE CANBERRA 39 Strategy 4.5: Ensure energy Sorting of mixed waste through efficient waste collection and materials recovery facilities can reduce transport solutions greenhouse gas emissions associated with transportation of waste. Collection and transport systems are a Separation of waste at the source of the crucial part of the waste management waste generation supported by pick-up and resource recovery system in the of specific waste types may, however, ACT. The government will seek to increase the value of waste materials ensure that collection systems are for recycling e.g. higher grades of optimised both for collection logistics paper. The increased cost and separate and efficient down-stream resource transportation of food waste may recovery and processing. mean that this is only appropriate for large producers of food waste, such as The ACT currently has an established hospitals and supermarkets, rather than and well supported household individual households. recyclables collection service (yellow top bin). When combined with Like other forms of transport, waste resource recovery centres, garden transportation involves the production waste drop off facilities and other of greenhouse gases. As part of the niche recycling services, the current government’s commitment to reduce waste management system in the ACT transport emissions the government promotes a low cost and effective will work with commercial waste approach to diverting a large proportion operators and contractors to examine of dry recyclables and green waste from the feasibility of introducing low landfill. The government will maintain emission waste transport vehicles. this highly effective system. 40 8. MONITORING AND REVIEW TOWARDS A SUSTAINABLE CANBERRA 41

8. MONITORING AND REVIEW This Strategy outlines a vision for waste Resource recovery surveys and management to 2025 with success audits of waste composition will be to be monitored through targets maintained and updated as required to identified for each of the strategy’s four provide ongoing reporting and analysis objectives. Progress against targets of trends in waste to landfill and will be monitored and, where possible, resource recovery rates. quantitative data will be used, for examples tonnes of waste, items and Individual programs will also be volumes of litter. The ACT Government monitored to identify the contribution will ensure timely production each year that different strategies are making to of waste generation, resource recovery increase the rate of resource recovery and landfill data. and reduce waste to landfill. For example ACTSmart Office and Business Outcome 1 Target 1: programs will collect information on the volume of waste their participants Less waste The growth in ACT divert from landfill to recycling. generated waste generation is less than the rate of population growth. Outcome 3 Target 3: A clean ACT leads Australia in The amount of waste generated environment low litter levels and in the ACT is monitored through incidents of illegal annual Resource Recovery Surveys dumping. in conjunction with data collected from weigh bridges at the Resource Littering rates will be monitored Management Centre. The rate of through the National Litter Index. The waste generation will be compared to National Litter Index is published by population growth annually. Strategies Keep Australia Beautiful as a part of an that promote waste avoidance, such ongoing assessment of litter volumes as awareness raising campaigns, and and numbers of items across a range of product reuse through second hand sites to inform the general public about businesses and charities will also be the trends in litter at key locations. The monitored to evaluate the effectiveness audits of litter are undertaken twice of these strategies. a year in May and November and are reported on a financial year basis. The Outcome 2 Target 2: 2009–10 National Litter Index counts covered 76 sites across the ACT. Illegal Full resource The rate of resource dumping incidents will be reported recovery recovery increases to: calling Canberra Connect and as well as –– over 80% by 2015 being monitored through the National –– over 85% by 2020 Litter index. –– over 90% by 2025. 42 greenhouse gas inventory to provide Target 4: comprehensive information on the ACT’s natural major emission sources. Emissions for resources are the ACT are broken down into sectors protected and, where —electricity, natural gas, transport, land feasible, enhanced through waste use and land use change, waste, and management. miscellaneous. The ACT Greenhouse Gas Inventory is used to inform the ACT Landfill leachate quality will be on how it is tracking against greenhouse monitored to ensure risks from gas reduction targets. heavy metals and nutrients are being appropriately managed. The Inventory includes the Scope 2 emission related to energy generated The number of contaminated sites outside the ACT but consumed in will be reported each year by the the ACT. The emissions avoided by EPA. The quantity of contaminated generating energy from waste will be soil remediated each year will also be counted towards the achievement recorded by the EPA. of a carbon neutral waste sector. The ACT Waste Management Strategy Outcome 4 Target 3: will be reviewed every three to five Carbon Energy generated years to measure progress and ensure Neutral from waste doubles that the strategies remain current. The Waste Sector by 2020 review will be informed by monitoring The ACT Waste Sector against targets as outlined above and is carbon neutral by will identify: 2020. • infrastructure investment for further Energy generated from landfill gas diversion of wastes from landfill; and new bioenergy facilities will be monitored and reported each year. • modifications to actions such as program delivery and education and Greenouse gas emissions from the awareness raising; and ACT Waste Sector will be monitored as part of the annual ACT Greenhouse • progress in national waste issues, Gas Inventory. The ACT Government including national stewardship commissions an ACT specific program for e–waste. TOWARDS A SUSTAINABLE CANBERRA 43 44 9. ACT GOVERNMENT AGENCIES’ ROLES AND RESPONSIBILITES IN MANAGING WASTE TOWARDS A SUSTAINABLE CANBERRA 45

9. ACT GOVERNMENT AGENCIES’ ROLES AND RESPONSIBILITES IN MANAGING WASTE Environment and Sustainable are fulfilled through a combination of Development Directorate policy development, education and (ESDD) information, resolving complaints and formal regulation. ESDD develops and implements sustainable environmental policies Territory and Municipal Services and practices, particularly in the areas Directorate (TaMS) of natural resource management, biodiversity, greenhouse gas TaMS is the primary delivery agency abatement, energy, water and for implementation of the ACT waste waste management. strategy through ACT NOWaste. TaMS also contributes to keeping Canberra The Directorate also implements clean through management of public a number of programs including places. ACTSmart Office and ACTSmart Business recycling programs and the ACT NOWaste Australian Sustainable Schools Initiative. ACT NOWaste is a Business Unit of TaMS that manages contracts and ACT Planning and Land service agreements for domestic waste Authority (ACTPLA) and recycling activities delivered to The ACT Planning and Land Authority around 130,000 Canberra households. (ACTPLA) sits within ESDD and is the ACT NOWaste also encourages the ACT Government’s statutory agency resource recovery industry to maximise responsible for planning for the future the recovery and recycling of wastes in growth of Canberra in partnership the ACT and surrounding region. Other with the community. ACTPLA is also responsibilities include management of the technical regulator of utilities and waste acceptance and disposal facilities. administers technical and network safety codes for licensed entities, which ACTEW and ActewAGL includes ACTEW Corporation Limited ACTEW Corporation Limited (ACTEW) (ACTEW). is a government owned company with assets and investments in water, Environment Protection wastewater, electricity, gas and Authority (EPA) telecommunications totalling over The EPA sits within ESDD and has $1.4 billion. ActewAGL provides water legislative responsibility to administer and wastewater services to the people the Environment Protection Act 1997 of the Australian Capital Territory covering activities that can impact through an agreement with ACTEW on air, land and water quality such as Corporation, who owns the ACT’s water environmental noise, contaminated and wastewater assets. sites, waste transport and disposal and pesticide use. These responsibilities 46

ANNEX 1 ACT waste streams and estimated volumes (‘000 kg) in 2008 WASTE GENERATION COLLECTION SERVICES SORTING, PROCESSING (& EMISSIONS) MARKETS N20 200 Composting Self Haul Compost GREEN WASTE (window) 5 CH4 Collection (weekly) Gas extraction 68 landfill HOUSEHOLD CH4 & CO2 45 Recycling collection Clean Material Dry recyclables (fortnighly) Recovery Facility (paper, clean 11 (MRF) 4 Rejects glass & plastic) 100 COMMERCIAL 90 Electricity Electricity grid generation 27 Timber CONSTRUCTION & C&D Material stockpile Aggregates etc DEMOLITION (C&D) 280 Recovery Facilites 35 wet Agri-ash (13 dry) (Ca rich ash) Agriculture BIOSOLIDS Incinerator (gypsum substitute) 15–20 Stockpile URBAN TREES Prunings Woodchip (solar drying) Base Case Note: All data from 2008–09 and reported in kilo-tonnes Chipped per year. Heavy lines indicate key areas targeted fro better spreads resource recovery. Values include some interstate material. TOWARDS A SUSTAINABLE CANBERRA 47 48