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Implementing Waste Management Systems

Guide to Community Consultation

and Engagement

Prepared by the Local Government Association of South Australia

October 2009

Implementing Waste Management Systems Guide to Community Consultation and Engagement

DME 50769 Prepared by the Local Government Association of SA 1 October 2009

Introduction Australia is amongst the highest producers of waste. Whilst there has been a significant increase in resource recovery through household recycling, commercial and industrial recycling, generation of waste in Australia has increased by 28 per cent between 2003 and 2007. (REF J) Municipal Solid Waste represents approximately one third of the waste stream generated in South Australia (REF D). Between 2002/03 and 2006/07, South Australia experienced a 10% decrease in the disposal of waste to landfill and a 13% increase of recycling activity (REF J). The historical role of Local Government in waste management is to provide leaders for the community they serve through the development of policy and the provision of environmentally responsible household waste management services. Numerous studies have shown a distinct correlation between the quality of the services provided by Local Government i.e. type of container for the collection of materials, frequency of collection, ease of use and convenience, and the motivation of householders to participate in effective waste management (REF A, B, C, E). Education and communication is vitally important to achieve participation and behavioral change. Studies show that if there are adequate provisions available for recycling, coupled with education, good practice will evolve and become a social norm. In recognition of its responsibilities to lead the community, the South Australian State and Local Governments therefore aim to provide technology, infrastructure, policy, public communications and education programs to reduce waste encouraging the public to be key participants. The introduction and implementation of integrated waste, recycling and composting strategies are a significant budget line of councils. There is no point in investing in a system or infrastructure if no one is motivated to use it. To support the LGA model contract and tendering material this discussion paper has been prepared to assist councils develop consultation and communications strategies and plans underpinning the introduction of new waste services to the community.



Introduction to Public Relations and Communication in waste and recycling strategies. A lack of public consultation and failure to consider public opinion in the development of waste and recycling strategies can often create a sense of disgruntlement and mistrust in the community.. Building trust and a sense of public ownership through public consultation can create a successful foundation on which to build, if various options are presented and opinions are considered. Note: Waste strategy communication is not restricted to Council conveying messages to their residents. The LGA has provided a vast amount of resources to guide Council to develop waste management strategies, to understand financial implications, policies and processes. Discussion papers, tendering material and examples of model contracts can be found at http://www.lga.sa.gov.au/site/page.cfm?u=1092 What is the aim of public relations, and how does i t benefit Council and community? The primary outcome of PR work is to establish an accord between the Council and the community. Good communication eliminates ambiguity and uncertainty for all stakeholders. The recognition of all stakeholder expectations must be coordinated with clear expectations, goals and messages, which are then communicated to the wider community (Fig 1)(ref A). It is vital for the message carrier i.e. those charged with the responsibility of conveying the message, to also be well informed. Though there will be an element of confidentiality throughout stages of any strategy development it is important to remember that principles such as openness, clarity, feedback and credibility are vital to for successful PR. Motivating the community to utilise waste and recycling infrastructure is key for the success of any waste management strategy. Behavioral change is easier to generate if there is a direct positive outcome for the participant. To create motivation that leads to changed habits that are environmentally beneficial or have a latent positive outcome is more challenging.

COUNCIL EXPECTATIONS

CONTRACTOR EXPECTATIONS

PUBLIC EXPECTATIONS

GOVERNMENT EXPECTATIONS

- Residential - Business - Special interest groups

- Federal/State - Zero Waste - EPA

COORDINATION

GOAL AND MESSAGE



Key motivational elements (Ref A and B) 1. Provision of Knowledge Why should the individual participate? Provide wider concepts such as saving natural resources and sustainability while linking it to the local environment (available land space, economics, local environment, job creation). 2. Practical Application A practical application, that is the infrastructure, must be available and convenient for the user. 3. Positive Outcome Participation in recycling that leads to positive foreseeable or tangible results, such as economic rebate in rates, community involvement, better facilities, job creation or regeneration of landfill sites open to public. Acknowledgement of target groups The Householder (target group) is not a homogeneous group. Variants embraced include age, gender, socio-economic status, language preference, new mothers, locality and population density and diversity of groups within the total community. Some residents may be more directly affected by changes in waste management than others. For instance, those who live close to prospective waste management sites (e.g. new transfer stations) or those who live near facilities due for closure or along transportation routes. Commercial enterprise and industry may or may not be considered as a target group depending on the scope of the waste and recycling strategy and the infrastructure limitations. The type and volume of waste generated will usually be vastly different from the Householder group and its disposal focused on economic or eco-marketing incentives. It is important to note that changes may, like the householder, affect some businesses more than others (independent recycling depots). The Media is also a target group. It is important to ensure that local media is informed, not only of the decisions of Council but also of how Council arrived at those decisions. This may come in the form of providing a tour of recycling, composting and waste facilities to journalists to motivate their interest in the issues at hand. Guidelines and Considerations for Public Relations during the development and delivery of Waste management strategies. Preparing the waste strategy Key objectives and priorities will present themselves while developing a waste management strategy; • closure of existing landfill; • opening of new facilities e.g.; putrescible transfer station; • waste and / or recyclable materials transport; • engagement of community groups (such as Scouts, Lions, Rotary, Progress Association) in achieving waste management objectives ; • cessation of crate or bundled recyclables and the introduction of comingled collection of recyclables; and • change of green organics collection from weekly to fortnightly collection.



Though it may be clear in the strategy developer’s mind which technical system offers the most appropriate logistical and practical solution for the budget allowed, it is unlikely the householder group will have in depth knowledge of waste systems and their associated costs and issues. Research and anecdotal findings show residents from both metropolitan and rural regions within South Australia often identify with waste management fees being too high. However a desire for knowledge about what happens to waste, recyclables and green organics after the bin is emptied, is shared and increasingly sought. As each option is explored and sorted in order of preferable solutions for Council to adopt, costs and practical issues of all options should be used for public consultation. A thorough evaluation of the existing waste management system should also be undertaken in order to compare these pros and cons with prospective systems. This not only shows that Council have done their “homework” but enables residents to gain an insight into the practicalities and costs in setting up new waste management systems. Note: Council should not assume what the public wants. Any new proposed waste system provides an opportunity to listen to initial concerns, questions and opinions that can enable Council to shape not only the waste strategy but also a public relations plan for the future.

Preparing the Public Relations Strategy Regardless of budget, community consultation and its flow on effect of support for the new system is essential. From the outset, community consultation and education strategy costs and schedules must be factored in, whether its extent is generous or limited. Public relations and community education should be clearly defined and factored in during development of Tenders and Contracts. Council should set parameters for essential communications allowing flexibility for additional communications should unforeseen issues arise. Product (waste service) is one deliverable. However communications is often needed in a pressured time frame in response to community issue or demand.

Key stages for Community Engagement Step One - Community Forum The first engagement should be made prior to a final decision being made by Council. This should be in the form of a well advertised community forum, where varying waste strategy options are presented and question and answer session held. Advertising the initial community forum is imperative in order to create a good communications foundation. Several forms of advertising should be explored including advertisements in the local paper accompanied with editorial explaining purpose for change. Schools, RSL and other club newsletters are useful to further advertise forums as well as placing posters in supermarkets or key shopping areas.



It is important to be well prepared with answers to concerns that may be raised. These may range from:

• public health and social issues such as property value, vermin, visual impact, odour, dust control, fire risks, litter, noise and traffic increase;

• environmental concerns such as groundwater impact and local irrigation, carbon emissions and global footprint, procedures for minimizing risk and how the proposed strategy compares with others regarding environmental impact; and

• Council communications such as how the resident will be kept informed of progress

and decisions, how the resident can be more involved or who they can contact for more information, timelines and what to expect next.

A waste strategy paper should be available to the public on request by mail out or pick up from Council office(s) so that participants are informed prior to the presentation at the forum. Forum participants could also be requested to write comments and hand in or return to Council within the week allows less vocal residents to express their concerns. Documentation of comments and concerns should be made for review and response. Step Two – Response to Community Forum Issues and opinions raised during the consultation process should be publicized as should preferred options, outcomes and decisions that Council determines. Step Three – Letter of Introduction Preparation time: 9-7 weeks prior to roll out of waste system depending extent of design and printing quality. A letter informing all residents of waste management changes should be sent approximately one month prior to commencement of implementing the new system. This should briefly outline topics such as: • Key changes in waste management (receiving new bins/opening of transfer stations) • Reasons for the changes • What will happen to existing systems (e.g. closure of landfill) • Time scales of when changes will occur • What to expect during the change over period and how it effects the householder • Informing the householder that they will receive additional information (e.g. guide

booklet) regarding how to use the new system closer to the change over date • How long to use the existing bins for and when to start using new bins • Changes in the rates may be included within this letter in addition to the guide booklet. • Hotline or contact details for residents to discuss issues with Council



Step Four - Editorial/advertisement and guide to ne w system. Preparation time: 12-13 weeks prior to roll out

During the week of roll out an informational advertisement or preferably a structured editorial should be placed in the local paper. This should be in a prominent position including photographs (e.g. householder with new bins, items for recycling etc). Content should be informative and interesting reminding the reader about the importance of recycling and that community involvement contributes to the reduction of waste. Details of what the householder will expect during the week should be weaved into the content. Information An informational guide is imperative to the communication strategy. If changes are considerable, such as the introduction of comingled recycling, the guide should be in the form of a booklet, rather than a leaflet covering topics such as:

• brief summary of the newly adopted strategy; • what will the householder receive? • when does the householder start using the new bins? • what happens to existing bins? • how often are collection services (weekly/fortnightly/seasonal)? • placement of bins (distances away from obstruction/time); • lost, stolen or damaged bins; • how changes will affect rates; • “Do’s and Don’ts” of what to place inside each bin (i.e.; contaminated waste stream); • additional tips for best recycling tips (rinsing, caps off, what distinguishes waste from

recycling, e.g. items with mixed materials); • what other changes are taking place (new depot opening); • who to contact for additional information (website, waste hotline); and • the booklet should cover all of these points. It is important to keep text to a minimum

and use visuals and images as much as possible. A waste collection calendar may be required, especially if certain locations are new to collection routes, there are changes in routes or zonings or if there is alternating collection days for recycling and green organics. The practicality of the calendar is important, as it is desirable that it be suitably designed for householders reference i.e.; fridge magnet. Distribution of booklets and calendars may be done via post or through a distribution company. The householder should receive them just prior to delivery of bins (1 to 3 days prior).

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If new bins are to be delivered or fitting of replacement bin lids to take place as part of the new waste strategy the guide booklet may be delivered at the same time, usually within a sealed plastic covering and attached to the bin. Development timelines can be long. However Councils may still be negotiating with contractors regarding collection routes or new bins yet to be manufactured or delivered. Calendars are complex and often subject to changes as the contractor and Council finalise collection zones and routes. Other issues include printing, distribution of information resources to householders and consultation with key stakeholder groups e.g.; recyclers, business.

Case Study Wattle Range Council booklet comprised of 8 pages and contained all topics mentioned in step 4. This highly visual booklet conveyed messages with graphics and used bin lid colors throughout the graphic layout to reiterate purpose of bin (yellow = recycling). Kangaroo Island Council produced a comprehensive 18 page booklet including new collection routes, A to Z guide to recyclables, home composting guide, local recycling depot information, as well as previously mentioned key topics (step 4). Due to numerous messages and images needing to be conveyed this project required approximately 16 weeks to develop.

Step five - On-going follow up It is important that Council promotes tangible results and outcomes e.g.; community involvement, saving of natural resources, volumes of waste diverted, improved facilities etc. The community will want to know if the new system is reducing waste and increasing recycling and level of Councils expenditure. Positive outcomes are key.



Local Media and Council Newsletters Regularly spaced articles and news snippets over the initial six to twelve month period following implementation increase awareness and maintain community engagement. Local media and or Council newsletters can be used to recognize householder participation and performance. The editorials should reflect positive results of increased recycling and present actual data in a visual or graph form. Photos of volumes of recycling can also help people understand that collectively their recycling is significant. Ongoing and new education should be provided. Options may include a pictorial theme such as “touring” the new waste transfer station, or a “Did you know?” theme (One recycled milk carton makes 5 sheets of office paper). The aim of the editorials is to continue to provide new stimulus and knowledge, reinforcing the reasons why the individual should participate. Monitoring the new waste system will identify issues. Public relation ideas provide opportunities for residents to be involved, physically ask questions and gain broader understanding of waste management. They can target specific groups, clubs, retirement villages and schools or individuals. Open days Open days and tours of waste and recycling facilities are an excellent way to drive home certain messages. Volumes of waste and recyclables can be viewed, contamination issues pointed out, efforts to achieve best financial and environmental effectiveness can be explained (e.g. baling recyclables to reduce transportation cost and carbon footprint). It is important to have a Council representative to facilitate technical and other waste and recycling related questions available as part of the tour. If the facility is a transfer station, it will be beneficial to have a visual presentation (posters or power point) of what happens to the materials after they leave the local area. School Education Waste and recycling education within schools engages teachers and students with messages often filtering through to parents. School education campaigns can include teaching resources (lesson plans or posters), guest presentations or workshops in classes, or a whole school approach to reducing waste. The Kangaroo Island and Yorke Peninsula waste education strategies are examples

Case Study Comprehensive “Litter and Waste Sessions” were developed and delivered for Kangaroo Island’s primary and secondary school children. Four variants of sessions catered to the age brackets and covered simple recycling activities, linking natural resources to products and debating waste management topics such as landfill practices and resource recovery. The results of session evaluation represented 20 teachers from the various campuses. Teachers very strongly agreed that the information presented was informative and relevant and expressed that student involvement indicated a high degree of student interest. In addition to student participation, 70% of teachers stated they also learnt from the sessions, with 90% inspired to explore these topics further (75% would continue to use resources provided to them) and 20% of teachers felt they would increase their household recycling efforts.



Community Events Displays at community events need to be highly visual and/or tactile in order for the public to pause and absorb information. In general, event goers will spend less than a minute attending information stalls. The key waste strategy theme identifying community participation should be conveyed clearly through photographs and short captions. (Ref C)

Involving community groups in recycling activities creates multiple benefits and should be encouraged. Levels of involvement may range from offering groups a guest speaker to explain recycling processes or home composting, or tours through facilities to implementing a long term system such as using CDL refunds to raise money for their group.

Case Study Throughout Kangaroo Island blue wheelie bins, distinct from all other bins, were located and provided points for the collection of CDL. The contents collected provided the Lions Rotary Club with funds obtained from the deposit refund and gave members of the community a sense of goodwill for supporting Lions and provided Council an added way to collect recyclables.

Focus Groups Focus groups are a useful way to gain insightful information and opinions from the public. A well structured and controlled group can provide participants with an opportunity to articulate more than through individual surveys, and opens up conversation between participants, resulting in enhanced awareness of issues and greater insight into public opinion for the Council. The formation of focus groups may be more beneficial if implemented during the waste strategy development stage and used throughout the first year of implementation. The outcome must provide Council with useful information that can be applied to their waste/education strategy. How the facilitator constructs the questions and debated topics is vital to the final outcome. The facilitator needs to be aware of group characteristics and guide all participants to have input and allowing enough time for people to formulate their opinions (this may require providing introductory information prior to the forum).

Anti Litter Campaigns Littering impacts negatively on clean up costs to Councils and causes environmental harm and endangers wildlife. Anti-litter programs to reduce litter and improve resource recovery from the waste stream may be targeted in areas such as highways, tourist areas or café and takeaway localities. Coupled with new waste disposal systems, campaigns can reduce clean up costs to council and trigger improved behaviour. Illegal Dumping The Local Government Association in conjunction with Zero Waste SA and KESAB environmental solutions have implemented an illegal dumping reduction strategy. Stronger community engagement and focus on illegal dumping hotspots through surveillance and signage detailing enforcement are several approaches adopted by Councils (refer www.lga.sa.gov.au/site/page.cfm?u=1922)



Home Composting Workshops or Guides Council may develop a practical guide to home composting by either making information available or conducting education sessions or workshops on weekends. By advertising workshops Councils will demonstrate ongoing community engagement.

Case Study Kangaroo Island evaluated the new waste management system and community education program 18 months after implementation. One element of the telephone survey to 100 residents from both township and rural settings was to ascertain if there was a need to introduce a third bin for the collection of green organics. The results lead to the decision not to introduce the bin, but instead to promote home composting. Comprehensive ‘Guide to Composting’ included:

o Why compost? Benefits and environmental responsibility, o Site selection, o How to build a compost (various techniques discussed), o Maintaining a healthy compost, o What can and can’t go into the compost guide, o Trouble shooting, o Using finished compost, o Composting with worms.

• Fact sheet (a summary of booklet) • Promotional Poster displayed in various locations such as supermarkets, school

campuses, the library, retirement home and Kangaroo Island Council reception.



Editorials and Council Newsletters Visuals are very important in what could be an otherwise dry subject. Port Adelaide Enfield and Charles Sturt Councils ran a joint campaign conveying the human factor in recycling. Images such as site staff in front of volumes of recycling or pulling out plastic bags from green organics are a powerful way to remind residents that people work at disposal sites dealing with contamination and other issues. If there are no photographs incorporate something other than text such as a table of do’s and don’ts, to break up the text and to cater for those who skim through the paper.

Explaining complex issues such as post collection processes, or dispelling skepticism, e.g. split bin systems or single pass trucks, by use of graphics requires less effort for the resident to grasp the concept and will be of more interest than text.



Booklets Creating an individual style of booklet design is worth the effort, as it will be unique and set apart from other Council material. Using international symbols such as ticks against a photo of recyclables can convey a message far stronger than a paragraph or dot point list.

Conveying a message such as saving natural resources can be achieved by linking product with resource (glass/sand, plastic/oil, paper/tree, coal and bauxite/cans and tins) as in the Eastern Eyre Peninsula guide to recycling. Separating out essential information such as ‘tips’ or ‘recycling hints’ directs the reader to absorb vital messages and gives them the opportunity to either skip past or read the additional information.

Use of colour is essential if new or changed bins or lids are being introduced. Block colour behind text or colour-coded text that links with the bin to reiterate bin purpose. This can be used in any publications, bin stickers, fridge magnets, displays and school resources. Creating a theme that is carried across all campaigns is an effective way to catch the attention of residents and familiarize them with waste issues.



Summary The implementation of a new waste strategy should engage the total community. To assist with smooth transition it is in the interest of Councils to consult with the community, and to inform and educate with a well structured public relations and implementation strategy. Successful waste and recycling systems are dependent on relationships and partnerships. Adopting a sound foundation will ensure residents play their part as environmental sustainability issues increasingly seek stronger community support and action to reach our common objectives.



Reference:

A. Salhofer, S., 2002. Importance of Public Relations in Recycling Strategies: principles and case studies. Environmental Management Vol. 30, No. 1, pp. 68-76

B. Fietkau, H.J. 1984. Requirements for ecological acting. Societal tasks of

environmental psychology, Beltz, Weinheim.

C. Refsgaard, K. and Magnussen, K., 2009. Household behaviour and attitudes with

respect to recycling food waste – experiences from focus groups. Journal of environmental management Vol. 90 pp. 760-771

D. http://www.zerowaste.sa.gov.au/Content/Uploaded/Assets/zw_strategy_background

_paper.pdf

E. http://www.zerowaste.sa.gov.au/Content/Uploaded/Assets/zw_waste_strategy_final.

pdf F. http://www.epa.sa.gov.au/pdfs/kerbside.pdf

G. http://www.environment.gov.au/settlements/publications/waste/pubs/waste-

recycling.pdf H. Allan, P., 2006, Waste and Recycling in Australia; Short Paper, Department of

Environment and Heritage, report no: 4, http://www.environment.gov.au/settlements/publications/waste/pubs/waste- recycling.pdf

I. (Zero Waste SA Act (2004). J. (Waste and Recycling in Australia, 2008)

http://www.environment.gov.au/settlements/waste/publications/pubs/waste- recycling2008.pdf

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