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Waste Management and Minimisation Plan 2012

PALMERSTON NORTH CITY COUNCIL

DECEMBER 2012

September 2012 i i PNCC W MMP 2012

This document was prepared by Palmerston North City Council, City Networks, Water and

Waste Division.

Name Signature Date

Prepared by: Louise Jones/Rob Green

May - August 2012

Reviewed by: Greg Boyle

August 2012

Approved for Issue by: Rob Green

19th December 2012

September 2012 i i i PNCC W MMP 2012

Version No. Reason for Amendment Date

1 Original Issue May 2012

2 -4 Development Edits May – July 2012

5 -7 Editorial Changes July – September 2012

8 – 10 Changes after Planning & Policy Committee Meeting

September 2012

11 Final Formatting Changes September 2012

12 Final Issue – For Public Consultation 27th September 2012

13 Officer’s recommended changes as a result of submissions presented to Planning & Policy Committee Meeting 3 December 2012

26th November 2012

14 Changes requested after Planning & Policy Committee Meeting 3 December. Present to full Council 17th December 2012 for Final Adoption

4th December 2012

PNCC Reference No: DMS-#814857

Water & Waste Division Palmerston North City Council l Private Bag 11034 l Palmerston North

P: +64 (6) 3568199 l F: +64 (6) 3514489 l www.pncc.govt.nz

http://www.pncc.govt.nz/

September 2012 iv PNCC W MMP 2012

Waste Management and Minimisation Plan

Contents 1 Introduction .................................................................................................. 1

1.1 Purpose of the Plan .................................................................................................. 1

1.2 Scope of the Plan ..................................................................................................... 1

1.3 Current Status of the Plan ........................................................................................ 1

1.4 Levels of Service Considerations ............................................................................. 2

1.5 Plan Review ............................................................................................................. 2

2 Visions, Goals and Targets ......................................................................... 2

2.1 Council Vision and Goals ......................................................................................... 2

2.2 Sustainable City Strategy ......................................................................................... 2

2.3 Waste Minimisation Targets ..................................................................................... 3

2.4 Public Health Protection ........................................................................................... 3

2.5 Climate Change ....................................................................................................... 3

3 Policies, Plans and Regulations .................................................................. 4

3.1 Summary of Policies and Legislation ........................................................................ 4

3.1.1 Waste Minimisation Act 2008 ............................................................................. 4

3.1.2 New Zealand Waste Strategy 2010.................................................................... 5

3.1.3 Local Government Act 2002............................................................................... 5

3.1.4 The Health Act 1956 .......................................................................................... 5

3.1.5 The Resource Management Act 1991 ................................................................ 5

3.1.6 PNCC Nuisance Bylaw 2011 ............................................................................. 6

4 The Waste Problem ...................................................................................... 6

4.1 Overview of Existing Waste Management ................................................................ 6

4.2 How Much Waste is generated in Palmerston North? ............................................... 7

4.2.1 How Much of the Waste Stream is Controlled by Council? ................................ 8

4.3 How is Waste Collected in Palmerston North? ......................................................... 9

4.4 How is Waste Disposed of in Palmerston North? ................................................... 10

4.5 How Much Waste Can we Divert from Landfill? ...................................................... 11

5 Proposed Methods for Waste Management and Minimisation ................ 14

5.1 Areas of focus in 2012 Waste Management and Minimisation Plan........................ 14

5.2 Options for the Future ............................................................................................ 14

5.3 Council’s Existing Waste Management Services .................................................... 15

5.4 Council’s Intended Role ......................................................................................... 15

September 2012 v PNCC W MMP 2012

5.5 Action Plan ............................................................................................................. 16

6 Funding the Plan ........................................................................................ 23

6.1 How Rubbish and Recycling Activities in the City are Funded ................................ 23

6.1.1 Rubbish Collection and Disposal ..................................................................... 23

6.1.2 Recycling Collection and Processing ............................................................... 23

6.1.3 Composting Operations ................................................................................... 23

6.1.4 Other revenues ................................................................................................ 23

6.2 Waste Minimisation Levy Funding .......................................................................... 23

6.3 Direct Funding of Initiatives in the 2012 WMMP ..................................................... 24

6.4 Indirect Funding of Initiatives in the 2012 WMMP ................................................... 24

7 Monitoring and Progress Reporting ......................................................... 24

7.1 Monitoring .............................................................................................................. 25

7.2 Reporting ............................................................................................................... 25

Appendices External Organisations Involved in Recycling & Waste Minimisation Appendix A.

Activities ..................................................................................................................... 26

Waste Assessment - Executive Summary ................................................ 28 Appendix B.

Table of Figures Figure 1: Overview of Waste Management in the District ...................................................... 7

Figure 2: Palmerston North Waste Stream Control and Composition .................................... 9

Figure 3: Potentially Recoverable Landfill Materials in Palmerston North ............................ 13

Table of Tables Table 1: Overall Waste Breakdown for Palmerston North ..................................................... 7

Table 2: Council Control of Overall Waste Flows from Palmerston North .............................. 8

Table 3: Collection Services Provided ................................................................................. 10

Table 4: Drop-off and Transfer Stations .............................................................................. 10

Table 5: Composition of Landfilled Waste ........................................................................... 12

Table 6: Non-recyclable volumes ........................................................................................ 13

Table 7: Palmerston North City Council Waste Minimisation Action Plan ............................ 17

September 2012 vi PNCC W MMP 2012

Waste Management and Minimisation Plan

Foreword

This Waste Management and Minimisation Plan (WMMP) has been developed following

preparation of a detailed waste assessment in early 2012 and review of the previous, 2009

WMMP, in accordance with the Waste Minimisation Act 2008. Whilst limited actual progress

has been made in some areas since adoption of the 2009 WMMP, introduction of the

recycling wheelie bin service in 2010 and construction of the recycling processing facility at

the Awapuni Resource Recovery Park were major achievements for the Council and provide

most residents in the City the opportunity to readily participate in recycling.

The waste assessment has shown that approximately 60% of the Palmerston North waste

stream has been diverted from landfills since 2009, largely as a result of the above recycling

initiatives. This Plan retains the four strategic focus areas from 2009 and introduces a series

of aims and objectives designed to facilitate achievement of the community’s target of 75%

diversion of waste to beneficial use by 2015.

Acknowledgements and References

The Council wishes to acknowledge the work of Eunomia Research and Consulting Ltd and

Waste Not Consulting Ltd in preparing the 2012 Waste Assessment that was subsequently

used to inform and guide this WMMP. A link to this document can be found on Council’s

website: www.pncc.govt.nz


September 2012 vi i PNCC W MMP 2012

Executive Summary

The Council’s 2009 Waste Management and Minimisation Plan has been reviewed to take

account of the preparatory Waste Assessment completed in 2012 and to bring it up to date

with current initiatives towards achieving the community target of diverting 75% of waste to

beneficial use by 2015.

This WMMP builds on the strategic focus areas from 2009, being:

Reduction and diversion

Collection of residual waste

Disposal of residual waste

Means of implementation and funding

Aims, objectives and actions in the Plan have been updated to reflect Council’s role in

facilitating waste minimisation practices and linkages to Council’s Sustainable City Strategy

and 2012-22 Long Term Plan have been made.

The WMMP includes:

A waste assessment

Aims and objectives for achieving effective and efficient waste management and

minimisation within the City

A series of actions to achieve the aims and objectives of the WMMP

Details of how the WMMP is to be implemented and funded

Monitoring, reporting and review procedures

The key features of this WMMP include:

The role of Council – collaboration, facilitation and promotion of waste management

and minimisation

Measures to improve control of the waste stream and to improve accessibility to

recycling outlets

Processes to improve financial management of the activity

Measures to collaborate with and improve the involvement of community

organisations and businesses

Steps to improve access to waste data

Investigations into opportunities for waste minimisation to inform decisions regarding

programme development for the 2015-25 Long term Plan

September 2012 1 PNCC W MMP 2012

1 Introduction

1.1 Purpose of the Plan

The Waste Management and Minimisation Plan (WMMP) provides a summary of Palmerston

North City Council’s areas of strategic focus, aims, and objectives with respect to waste

management and minimisation. It describes how Council intends to achieve these objectives

through selected waste management activities.

The overriding goal is to divert as much waste material as is practicable from disposal to

landfill and convert it to some form of beneficial use through a 6-step hierarchal waste

minimisation process, starting with reduction and finishing with disposal of any residual

waste.

The Palmerston North City Council has an important role in promoting effective and efficient

waste management and minimisation within the City. It is not a role that it can fulfil in

isolation from other parts of the community and has therefore adopted a collaborative

approach involving facilitation, education and coordination of service delivery arrangements

with community organisations, the commercial sector, and government departments.

This Plan identifies how Council intends to combine the key contributors to waste

management and minimisation to collectively work towards achieving the community goal of

diverting 75% of waste to beneficial use by 2015.

This WMMP fulfils the requirements of the Waste Minimisation Act 2008.

1.2 Scope of the Plan

This WMMP covers waste minimisation for the whole of Palmerston North. It includes solid

waste collected and disposed of by commercial enterprise as well as waste collected by

Palmerston North City Council.

The WMMP also considers disposal of biosolids, specifically waste products from the

wastewater treatment (sludge).

1.3 Current Status of the Plan

This is the third version of the WMMP. First written in 2005 the WMMP was thoroughly

reviewed in 2009 when the current strategic focus areas were developed, being:

Reduction and diversion of waste

Collection of residual waste

Disposal of residual waste

Means of implementation and funding

The current (2012) review of the WMMP updates the aims and objectives in line with

current best practice, and builds on the progress made on waste minimisation targets

since 2009.


1.4 Levels of Service Considerations

In preparing the WMMP, as well as ensuring compliance with all relevant legislation,

consideration has been given to national and international policy and best practice for waste

minimisation and recycling.

The WMMP has been prepared to ensure that the Levels of Service provided for the

Rubbish and Recycling Activity, as stated in the 2012-22 Long Term Plan, are achieved, and

that Council’s Vision and Goals and the ethos of key strategies and policies are upheld.

1.5 Plan Review

The WMMP will be next reviewed in 2015 and thereafter at intervals not exceeding six years.

2 Visions, Goals and Targets

2.1 Council Vision and Goals

Palmerston North City Council’s vision is that:

Palmerston North is recognised as a

vibrant, caring, innovative and sustainable

city

This Vision is supported by a number of Goals, in particular:

Palmerston North is a leading city in the quest to become

environmentally sustainable

2.2 Sustainable City Strategy

In 2010 Council adopted a Sustainable City Strategy. This strategy developed the Council

Vision and Goals with regard to creating a sustainable city. The Sustainable City Strategy

contains a number of goals around environmental sustainability one of which specifically

seeks to decrease waste:

Driver Four: Decreasing Waste

Reduce production of waste materials

Increase recycling by residents and business

Increase diversion of waste to productive uses

The WMMP is a key planning document in achieving the aims of the Sustainable City

Strategy.


2.3 Waste Minimisation Targets

Palmerston North City Council (PNCC) has set the following community target for waste

minimisation in the City:

By 2015, Palmerston North will divert

75% of waste to beneficial use

2.4 Public Health Protection

Protecting public health is one of the original reasons for local authority involvement in waste

management. This was set out in the Heath Act 1956, although the requirements relating to

the removal of rubbish have now been repealed.

The NZ Waste Strategy (2010) contains the twin high level goals of “reducing the harmful

effects of waste” and “improving the efficiency of resource use”. In terms of addressing

waste management in a strategic context, protection of public health should be considered

one of the components entailed in ‘reducing harmful effects’.

In considering the manner in which public health issues should be addressed in the context

of this WMMP, it has been assumed that public health issues are likely to be present at

some level across all options. Public health issues should not therefore drive strategic

decisions about waste management activities, but should be evaluated across all options.

Issues can be flagged where a level of risk is likely to require specific management controls

or interventions, or where risks are so great as to override other considerations.

In most cases, public health issues will be addressed through setting appropriate

performance standards for waste services contracts, ensuring monitoring and reporting of

performance and that there are appropriate structures within contracts for addressing public

health issues that may arise.

2.5 Climate Change

In November 2011 Council, reinforced its commitment to being a sustainable city by signing

the Global Cities Covenant on Climate (The Mexico City Pact1). The principles of the Pact

include a commitment for Palmerston North City to reduce its greenhouse gas emissions

voluntarily, implementing measures to meet its goals, and registering emissions inventories

in a measurable, reportable and verifiable manner. The City’s progress is reported on the

Cities Climate Registry2.

At a City level the Council will measure progress against the Government's goals of:

•A 50% reduction in greenhouse gas emissions from 1990 levels by 2050

•A reduction of between 10% and 20% below 1990 levels by 2020.

1 www.mexicocitypact.org/en/

2 citiesclimateregistry.org/


The Council uses the International Emissions Analysis Protocol supplemented with New

Zealand specific emissions factors to produce its inventories. Waste is an analysis sector of

the protocol, and one of the main sources of emissions for the City. The waste estimate for

the City in this plan will be used to inform future community scale estimates of greenhouse

gas emissions.

The Council also adopted a Climate Change Action Plan to reduce greenhouse gas

emissions from its own operations. The Waste Management and Minimisation Plan’s goal for

the City was adopted as a corporate goal. The full set of the Council’s goals is:

Council will:

1. Strive to be a zero carbon organisation by 2050

On the journey towards becoming a zero carbon organisation Council will aim to:

2. Use a 100% renewable electricity supply by 2015

3. Reduce energy use by 10% by 2015

4. Divert 75% of Council's waste from landfill by 2015

5. Have 35% of employees travel to work by active transport by 2015

3 Policies, Plans and Regulations

3.1 Summary of Policies and Legislation

In preparing the WMMP, Palmerston North City Council has taken into account national

legislation and policies that place a commitment on territorial authorities when considering

waste minimisation and waste collection and disposal practices. The following section

summarises the key legislation.

3.1.1 Waste Minimisation Act 2008

The Waste Minimisation Act 2008 (WMA (2008)) aims to encourage waste minimisation and

decrease waste disposal in order to protect the environment from harm and to provide

environmental, social, economic and cultural benefits.

The Act describes the relationship between a waste management and waste minimisation

plan to the waste hierarchy of:

Reduction

Reuse

Recycling

Recovery

Treatment and disposal

(in descending order of importance).

The main elements of the Act include:

A levy placed on waste disposal to landfill to generate funding for local government,

communities and businesses to reduce the amount of waste.


Development of product stewardship.

Regulation to assist in reporting on waste minimisation.

Definition of roles and responsibilities of territorial authorities with regard to waste

minimisation, including the requirements for a Waste Assessment, a Waste

Management and Minimisation Plan (this document), the requirement to spend levy

funding on waste minimisation activities and provision for creation of Waste Bylaws.

Enforcement provisions

Establishment of an independent Board to advise the Minister for Environment on

waste minimisation issues.

3.1.2 New Zealand Waste Strategy 2010

The WMA (2008) requires that territorial authorities have regard to the New Zealand Waste

Strategy (NZWS) when preparing and developing their WMMP. The NZWS has two main

goals:

reducing the harmful effects of waste, and

improving the efficiency of resource use.

These two goals form the fundamental basis of this WMMP (refer to Clause 5.5)

3.1.3 Local Government Act 2002

The Local Government Act 2002 (LGA) requires that territorial authorities produce and

review a Long Term Plan (LTP) every three years which outlines the Council’s vision and

goals, financial strategy, community outcomes and programme of work for the next ten

years. The WMMP must reflect the outcomes of the LTP.

The LGA also empowers territorial authorities to make bylaws to protect the public from

nuisance and maintain public health and safety and provides powers to enforce such bylaws.

3.1.4 The Health Act 1956

The Health Act 1956 places obligations on territorial authorities to provide sanitary works for

the collection and disposal of refuse for the purpose of public health protection.

The Health Act provides that a territorial authority must:

improve, promote and protect public health within its district

employ Environmental Health Officers, whose duties include enforcing nuisance

provisions, regulations and bylaws

identify and abate nuisances

It is the Health Act that compels territorial authorities to ensure litter and other rubbish and

refuse is removed from public places so as not to cause a nuisance or public health risk.

3.1.5 The Resource Management Act 1991

The Resource Management Act 1991 (RMA) provides guidelines and regulation for the

sustainable management of natural resources. The RMA allows regional councils to control

the discharge of contaminants to air, land or water through the resource consent process. All

waste minimisation activities must comply with the requirements of the RMA and any specific

resource consents issued.


3.1.6 PNCC Nuisance Bylaw 2011

Palmerston North City Council Nuisance Bylaw 2011 sets out the specific requirements for

refuse disposal and recycling in Palmerston North to ensure:

That refuse is disposed of in a safe and sanitary manner in the interests of public

health

That obstruction of the streets by refuse and recyclable material is kept to a minimum

4 The Waste Problem

4.1 Overview of Exist ing Waste Management

Palmerston North, located in the heart of the Manawatu, is a major service centre for

surrounding rural areas. Its economy is based substantially on being a distribution hub to the

central North Island, on research and education related to the agricultural sector and also as

a base for the defence sector. Although there is some manufacturing activity the

manufacturing base is relatively small compared to national profiles and is projected to

diminish in importance in the coming years. Key waste streams now and in the future

therefore are related to agricultural processing, distribution, retail, healthcare and

administration type activities.

Palmerston North’s population is expected to steadily increase at a rate of 0.7% p.a. over the

next ten years, reducing to 0.6% p.a. over the following ten year period, to reaching

approximately 94,000 people by 2031. The small towns of Longburn and Bunnythorpe

(combined population of approximately 2,500), previously serviced by Manawatu District

Council, have become part of PNCC from 1 July 2012.

A waste assessment carried out in 2012 in accordance with section 51 of the Waste

Minimisation Act 2008 identified, inter alia, the current status of and future demand for waste

management and minimisation services in the City (Refer to Appendix B). A full copy of the

waste assessment can be found on Council’s website: www.pncc.govt.nz

Waste services in the City, including refuse and recycling collection, transfer station and

operation of drop-off facilities and processing and disposal facilities are provided by a mix of

private sector, community and Council organisations. Figure 1 shows an overview of waste

management in the City.



Figure 1: Overview of Waste Management in the District

** Note Cairns Group have subsequently been placed into receivership and are no longer

operating a Transfer Station at Mathews Avenue

4.2 How Much Waste is generated in Palmerston North ?

Based on the generalised waste figures for New Zealand in the 2012 Waste Assessment, it

has been estimated that approximately 108,000 tonnes of waste per annum was produced in

Palmerston North City during the 2011/2012 financial year. The overall waste stream is

broken down into four basic waste types as shown in Table 1.

Type of waste T/annum 2011/2012 % of total

Landfilled waste 44,000 T/annum 41%

Recycled waste 20,070 T/annum 18%

Composted waste 19,124 T/annum 18%

Cleanfilled waste 25,000 T/annum 23%

Total 108,194 T/annum 100%

Table 1: Overall Waste Breakdown for Palmerston North

Bonny Glen

Landfill

Midwest

Disposal

(TPI &

ESL)

Matthews Ave Transfer Station

(Cairns Group)

Malden St Transfer Station

(Manuwatu Waste)

Budget

Waste

(ESL)

Waste

Management

(TPI)

Council

(City Enterprises)

Domestic Kerbside

Collections

Ferguson St

Recycle

Depot

Medical Medichem

Ashhurst RTS(PNCC)

Out of district

waste

(mainly C&D)

Construction &

Demolition

Industrial/

Commercial/

Institutional

Landscaping

Residential

General Waste

MRF

Greenwaste

Strongs Metal

FullCircle

Awapuni RRP

Cleanfill

Waste to landfill

Recycling

Green waste

Cleanfill

Hazardous waste

Civil works &

excavations

KEY


Of the 108,000 tonnes of waste materials generated annually in Palmerston North,

approximately 40% is disposed of to landfill, with a further 23% disposed of in cleanfills.

Recycling and composting each divert a similar proportion of waste materials.

Palmerston North is currently diverting 59% of waste from landfil

including 36% to beneficial use

4.2.1 How Much of the Waste Stream is Control led by Council?

Palmerston North City Council ‘controls’ about 40% of the overall flow of waste materials

generated in the city. The degree of Council control varies significantly between the different

types of waste. While Council controls only 14% of waste to landfill (through kerbside

collections and operational waste), it controls an estimated 97% of composted waste - the

material processed at Awapuni Resource Recovery Park.

Type of waste % council-controlled

% private-controlled

Landfilled waste 14% 86%

Recycled waste 42% 58%

Composted waste 97% 3%

Cleanfilled waste 40% 60%

Overall Waste 40% 60%

Table 2: Council Control of Overall Waste Flows from Palmerston North

The control of these waste streams is shown in Figure 2.


Figure 2: Palmerston North Waste Stream Control and Composition

4.3 How is Waste Collected in Palmerston Nor th?

A range of collection and drop off services are provided to the 28,000 households in the City

through both Council and private sector providers. The following tables outline the

range of services provided.

Service/Facility Service Provider Service

Kerbside Refuse PNCC, City Enterprises Weekly user-pays bag collection

Envirowaste/ Budget Waste Wheeled bin collections - various

Transpacific Waste Management

Wheeled bin collections - various

Kerbside Recycling PNCC, City Enterprises Alternate fortnightly two-stream wheeled bin plus crate collection

Organic Waste Envirowaste/ Budget Waste Weekly or fortnightly wheeled bin collections

PNCC, City Enterprises Food wastes – weekly collection

Biosolids from Palmerston North WWTP


Weekly wheeled bin collections

Commercial Waste PNCC, City Enterprises Twice-weekly user-pays bag collection

Envirowaste/ Budget Waste Various bins sizes and collection



frequencies


Various bin sizes and collection frequencies

Greenhub By arrangement

Commercial Recycling PNCC, City Enterprises Food waste wheeled bin collections

Recycling collections

Envirowaste/Budget Waste Range of materials


Range of materials


Table 3: Collection Services Provided

Service/Facility Service Provider Facility

Transfer Stations PNCC, City Enterprises Ashhurst Transfer Station

Budget Waste Malden Street Transfer Station

PNCC, City Enterprises Ferguson Street Recycling Centre

Recycling Centres PNCC, City Enterprises

Greenhub

Awapuni Recycling Drop Off Centre

E-waste and reuse drop off centre

Table 4: Drop-off and Transfer Stations

In addition to the services described above, there are other programs or services provide by

the Council. These include:

Public place recycling

Litter bins

Illegal dumping removal and enforcement

4.4 How is Waste Disposed o f in Palmerston North?

Residual waste from Palmerston North is largely disposed of in Bonny Glen Landfill 3 ,

situated in the Rangitikei area. Nearly all the waste going to Bonny Glen landfill is collected

via one of the three transfer stations in the City.

Cleanfill materials, which are generally virgin materials, such as soil, or inert demolition

materials, such as rubble, are generated by infrastructure maintenance and development,

and construction and demolition activity, such as site clearance. These materials are

disposed of at a number of sites around the City. As these sites are not regulated by PNCC

no specific details can be given.

3 The Bonny Glen landfill has a landfill gas collection system. Greenhouse gas emissions factors are lower for

landfills with these systems which has implications for conducting greenhouse gas inventories.


Almost all greenwaste and other organic materials are processed at the Council-owned

Awapuni Resource Recovery Park. A small amount of greenwaste is removed from the City

by a private waste operator for composting elsewhere.

Recycled materials, or diverted waste, are disposed of to a variety of buyers. Approximately

20,000 tonnes of waste materials are estimated to be recycled annually from Palmerston

North. The largest component of recycled waste is paper/cardboard that is collected and

processed by the private sector. Paper/cardboard represents 64% of all recycled waste in

the city. Council’s kerbside mixed recycling material is the second largest component,

comprising 21% of the total. Council recycling materials are sold to a variety of buyers all of

which are vetted to ensure reliability and integrity of the statements made about the final

destination of the materials. Where possible Council endeavours to sell recycled products to

companies that have sound environmental management and safe ethical work practices.

The final destination of the recycled materials collected by the private sector is not known.

4.5 How Much Waste Can we Divert from Landfi l l?

It is estimated that on average 44,000 tonnes of waste goes to landfill from Palmerston North

each year. It is estimated that as much as 65% to 70% of the residual waste can be

recovered for beneficial use. Table 5 shows the composition of this landfilled waste and

Figure 3 shows the figures in a graphical form highlighting the quantities of potentially

recoverable materials


Primary material

classification

Secondary

material

classification

Kerbside collections

– Council and private

combined

Overall waste to

landfill per annum

Potential Greenhouse gas emissions

4

% of

total

T/annum % of

total

T/annum T CO2-e T/annum

Paper Recyclable paper 14.1% 2,301 10.0% 4,411 5,250

Non-recyclable

paper

2.2% 353 1.6% 708 840

Subtotal 16.3% 2,654 11.6% 5,119 6,090

Plastic Recyclable plastic 2.6% 430 2.0% 872 0

Non-recyclable

plastic

8.0% 1,297 10.8% 4,733 0

Subtotal 10.6% 1,727 12.7% 5,605 0

Organics Kitchen waste 29.1% 4,738 20.7% 9,124 4,070

Greenwaste 17.4% 2,826 8.0% 3,515 1,570

Other 2.0% 330 2.6% 1,160 520

Subtotal 48.5% 7,894 31.4% 13,800 6,150

Ferrous metal 2.0% 332 4.4% 1,938 0

Non-ferrous

metal

1.0% 161 1.0% 430 0

Glass Bottles/jars 4.0% 655 3.4% 1,488 0

Multi-material/other 0.7% 115 2.7% 1,166 0

Subtotal 4.7% 770 6.0% 2,654 0

Textiles 3.4% 559 5.2% 2,279 2,710

Sanitary 6.8% 1,099 6.0% 2,630 0

Rubble,

concrete

2.7% 444 7.5% 3,292 0

Timber 2.8% 461 12.9% 5,667 5,050

Rubber 0.1% 17 0.6% 251 0

Potentially

hazardous

0.9% 143 0.8% 334 0

Total 100.0% 16,260 100.0% 44,000 20,010

Table 5: Composition of Landfilled Waste

4 GHG potential emissions were estimated using Guidance for Voluntary Corporate Greenhouse Gas Reporting

Data and Methods for the 2010 Calendar Year. Figures have been rounded.


Figure 3: Potentially Recoverable Landfill Materials in Palmerston North

The estimated total volume of rubbish that is considered not suitable (at this time) for

diversion based on the above Waste Assessment is shown in Table 6.

Primary material

classification

Secondary material

classification

Overall waste to landfill

per annum

% of total T/annum

Paper Non- Recyclable paper 1.6% 708

Plastic Non-recyclable plastic 10.8% 4,733

Organics Other 2.6% 1,160

Glass Multimaterial/other 2.7% 1,166

Total 17.7% 7,767

Table 6: Non-recyclable volumes

There is the potential to reduce the amount of waste being landfilled by a further 36,000

tonnes, if 100% of all possible recoverable materials are diverted from the waste stream.

This represents approximately 30% of the total waste volume The additional waste diverted

from landfill will contribute towards the City and Council reducing its greenhouse gas

emissions.

If Palmerston North was able to recover just 50% of the recoverable

and partially recoverable materials currently going to landfill then

76% of total waste would be diverted to beneficial use

Recyclable paper10%

Recyclable plastic2%

Kitchen waste21%

Greenwaste8%

Ferrous metal4%Non-ferrous metal

1%Bottles/jars

3%

Rubble, concrete

7%

Timber13%

Rubber1%

Textiles5%

Sanitary6%

Potentially hazardous1%

Non-recyclable paper2% Non-recyclable

plastic11%

Other3%

Multimaterial/other3%

Recoverable57%

PartiallyRecoverable

25%

Non-

recoverable18%


These recoverable and partially recoverable materials have been the focus for Council’s

development of the 2012 WMMP.

5 Proposed Methods for Waste Management and Minimisation

5.1 Areas of focus in 2012 Waste Management and Minimisation Plan

The 2012 WMMP retains the following strategic focus areas from the 2009 WMMP:

1. Reduction and Diversion of Waste

This area focuses on ways for providing services and funding that encourage the

avoidance of waste and its disposal to landfills. The major initiative in this area post the

2009 WMMP was the very successful introduction of recycling wheelie bins and

construction of the recycling processing facility in 2009/10. Other initiatives focus on

organic waste, which has been partially progressed through the development of a pilot

composting operation at Awapuni, and the provision of a resource recovery park. This

will be further addressed through the planned upgrades of Ferguson Street Recycling

Drop-Off Point in 2012/13. This area also includes the education programmes that have

been developed for primary and intermediate schools as well as continued support for

the Zero Waste Academy partnership with Massey University.

2. Collection of Residual Waste

This area focuses on ensuring residual waste is collected efficiently and hygienically. It is

intended to regularly review the refuse collection services in Palmerston North and

Council’s role in that activity.

3. Disposal of Residual Waste

This area focuses on ensuring residual waste disposal is carried out with minimal

environmental impact. It is intended to look at options for cleanfill and hazardous waste

disposal.

4. Implementation and Funding

This area focuses on ensuring appropriate funding and charging mechanisms are in

place to provide the required services and recover the costs of waste minimisation

activities. Initiatives include determining best use of the MfE Waste Levy funding,

developing partnerships with the private sector for the provision of waste services and

looking at ways that Council could provide leadership in the area of waste minimisation

in Palmerston North. Although some work has already been done in this area, very little

progress has been made.

5.2 Options for the Future

In developing the 2012 WMMP it has become clear that there is still considerable progress

to be made on the four strategic focus areas from the 2009 WMMP, so these focus areas

have been retained. In addition, the Council has updated and consolidated the Aims and


Objectives from the 2009 plan into five Aims and methods for implementation of waste

management and minimisation in Palmerston North City

The five Aims and methods are:

1. To continue existing activities and find new activities to divert

waste to beneficial use

2. To control and regulate waste collection so as to ensure that

maximum waste is diverted to beneficial use and to minimise

environmental impact

3. To fund waste management activities in a way that promotes

waste minimisation and recycling and appropriately apportions

the costs to users, rate payers and suppliers

4. To work with community groups and the private sector to

achieve waste minimisation goals in collaboration with

developing Council funded activities or assets

5. To continue to educate the community as to the benefits and

methods of waste minimisation and thereby improve the

participation in waste minimisation activities

5.3 Council ’s Existing Waste Management Services

Council’s involvement in waste management activities has been reviewed as part of the

WMMP review. Consideration was given to alternative models for provision of rubbish and

recycling services in the City. The Council’s view is that it is important that it retains, and in

fact attempts to increase, control over rubbish and recycling services in the City to ensure

that Palmerston North is able to continue towards its goal of becoming a sustainable city.

Therefore, Council will continue to provide the same levels of service for its Rubbish and

Recycling activity through the collection of rubbish and recycling in the City and provision of

transfer stations and recycling drop off points where the need can be justified. Council will

also continue existing education and other waste minimisation programmes.

5.4 Council ’s Intended Role

Palmerston North City Council has an integral role in management of waste in the City.

Council has a number of statutory obligations with respect to the planning and provision of

waste services. In determining its role Council has endeavoured to ensure that these

obligations are met. Council’s view is that waste is not just a ‘Council’ problem but ultimately

resides with all sectors of the community to solve. While Council, through its statutory

obligations and its traditional involvement in waste management activities, has a natural


leadership role, it is vital that part of the role entails securing commitments from all sectors

and ensuring that there are clear action plans for each sector to follow to minimise waste

disposal to landfills . On that basis Council’s intended role is one of collaboration, promotion

and facilitation.

It is proposed that part of the Council’s role may be to provide appropriate regulatory and

economic incentive frameworks to steer solid waste activity.

Council will provide leadership in advocating waste minimisation, including promotion and

education programmes, establishing partnerships, and information sharing where

appropriate.

In addition, Council proposes to continue provision of a range of waste minimisation services

similar to those currently delivered, and in a manner that provides cost effective solutions for

the City as a whole. This role may include facilitation of services provided by the private

sector.

5.5 Action Plan

In order to put the five aims into practice Council has developed an Action Plan.

The following table outlines the five aims and objectives for waste management and

minimisation for the City and the actions and timeframes required to achieve the objectives:


Table 7: Palmerston North City Council Waste Minimisation Action Plan

Aim 1. Diversion of Waste to Beneficial Use

To continue exist ing activi t ies and f ind new activit ies to d ivert waste to benef icial use

Objectives Waste Assessment reference

Method of Waste Management & Minimisation

Action Linkage to Goals of NZ Waste Strategy (refer Clause 3.1.2)

Timeframe (financial year)

LTP Provision

1. Increase organic waste utilisation

Section 11.1 Recovery and recycling

a. Investigate feasibility of food waste collection

Improving efficiency

2012/13

Provision made in operational budgets for investigation work.

No budget provision for implementation of investigation outcome within the 2012-22 LTP.

Budgets will be requested pending investigation outcomes.

b. Investigate feasibility of green waste collection


c. Investigate feasibility of composting of nappies

Reducing harm

d. Investigate feasibility of beneficial reuse of sewage sludge

Reducing harm

2. Increase commercial waste recycling

Section 11.1 Recycling a. Investigate feasibility of improving/co-ordinated collection of commercial sector recycling in PN


2012/13 Provision made in operational budgets for investigation work. Anticipate that any Council involvement in this area will be self-funding.

3. Increase recycling collection areas to Longburn, Bunnythorpe and other rural areas where service sought by sufficient residents and is economically justified

Section 11.1 Recycling a. Investigate demand for extending

recycling collection service Improving efficiency

2012/13 If demand warrants the service then make provision in 2013/14 financial year.





Timeframe (financial year)

LTP Provision

4. Improve accessibility of recycling in public places

Section 11.1 Recycling a. Implement recycling at major events Improving efficiency

On-going No funding required

b. Implement recycling bins in public spaces


On-going $20,000 capital per annum for 7 years

c. Improvements/provision of additional recycling drop off points – increase range of products accepted for recycling


2012/13 Carry forward of Programme 17 for upgrade of Ferguson Recycling Drop off Centre and Awapuni Recycling Drop Off Point


Aim 2. Regulation of Provision and Use of Collection Services

To control and regulate waste col lection so as to ensure that maximum waste is d iverted to benef icial use and to minimise

environmental impact




Timeframe

(financial year)

LTP Provision

1. Regulate waste collection in Palmerston North to help ensure waste collected is put to beneficial use where feasible

Section 11.2 Reuse and recycling

a. Develop bylaws to regulate waste collection services and the use of those services


2012/13 Provision made in operational budgets for investigation work.

2. Monitor and collect data to help direct future waste services

Section 11.2 Reuse and recycling

a. Analyse information provided as result of implementation of bylaw



3. Protect the environment by regulation of waste disposal

Section 11.2 Disposal a. Provision of clean-fill disposal areas Reducing harm


No budget provision for implementation of investigation outcome within the 2012-22 LTP.

b. Provision of hazardous waste/battery collection

Reducing harm

2012/13 Provision made in operational budgets for investigation work. Anticipate that any Council involvement in this area will be self-funding.

c. Develop plans for management and minimisation of hazardous wastes

Reducing harm



Aim 3. Funding of Waste Minimisation Activities

To fund waste management activi t ies in a way that promotes waste minimisation and recycl ing and appropriate ly apport ions costs to users and rate payers




Timeframe

(financial year)

LTP Provision

1. Reduce operational costs to minimise the cost of the activity to rate payers

Section 11.3 All methods of waste management and minimisation

a. Review efficiency of operations to reduce costs


On-going Provision made in operational budgets for investigation work.

b. Review glass collection methods to reduce wastage volumes (completed)


c. Review contamination of recycled materials to increase sales


d. Review process for managing illegal dumping and subsequent prosecution



2. Ensure funding for waste management activities promotes re-use and recycling and penalises disposal to landfill

Section 11.3 Reduction , reuse and recycling

a. Review Council’s Revenue and Financing Policy for waste management activity



3. Find alternate funding sources to help subsidise waste minimisation activities

Section 11.3 Reuse, recycling and recovery

a. Develop additional lease sites for waste minimisation activities


TBD No operational budgets available in the 2012-22 LTP.

b. Develop business cases for cost neutrality (user pays) for new recycling products


On-going Provision made in operational budgets for investigation work.

c. Advocate product stewardship and lobby central government


On-going No budget required


Aim 4. Working with Community/Commercial Sector Groups

To work with community groups and the private sector to achieve waste minimisation goals in col laborat ion wi th developing Council funded act ivit ies or assets




Timeframe

(financial year)

LTP Provision

1. Increase overall diversity and volume of recycling in Palmerston North

Section 11.4 Recycling a. Establish partnerships for ‘User Pays’ recycling (i.e. e-waste)


On-going Provision made in operational budgets for investigation work. Anticipate that any Council involvement in this area will be self-funding.

b. Allocate funds for community groups to carry out waste minimisation education or waste minimisation events (e.g. Super Grans compost workshops)


TBD No operational budgets available in the 2012-22 LTP.

c. Continue ‘Zero Waste Academy’ with Massey University (R&D)


On-going Programme 374

d. Work with transfer station owners to enhance hazardous waste collection facilities

Reducing harm



Aim 5. Education in Waste Minimisation

To continue to educate the community as to the benefi ts of waste minimisation and thereby improve the part icipat ion in waste minimisation activi t ies




Timeframe

(financial year)

LTP Provision

1. Increase public awareness and participation in waste minimisation activities

Section 11.5 Reduction, reuse, recycling, and recovery

a. Redevelop council website to include up to date information and links to other websites promoting waste minimisation


2012/13 Carry forward of Programme 17 for reworking of website and existing recycling media

b. Produce a series of factsheets explaining and promoting re-use and recycling activities in Palmerston North


2012/13 Carry forward of Programme 17 for reworking of website and existing recycling media

c. Investigate re-use/recycling promotion at events in Palmerston North (Expos at Arena etc.)


On-going Provision made in operational budgets for limited advertising and promotion work

d. Continue school education programmes


On-going Programme 374

e. Investigate introduction of additional public education programmes and media advertising


On-going Provision made in operational budgets for investigation work

2. Increase public awareness of hazardous wastes

Section 11.5 Reduction, reuse, recycling, and recovery

Improve public information about the correct procedures for managing hazardous wastes including medical wastes

Reducing harm



6 Funding the Plan

6.1 How Rubbish and Recycling Activi ties in the City are Funded

Rubbish and recycling activities in the City are funded in a number of ways.

6.1.1 Rubbish Col lection and Disposal

Council rubbish bag collection is funded through the sale of rubbish bags. In theory the

revenue from bag sales should fund the kerbside collection, transport and disposal of

rubbish. In recent years there has been a shortfall in bag sales revenue compared to

operational costs and the bag price has been increased to try and make this activity self-

funding. Residents using private sector rubbish collection services are charged directly for

the service by their provider.

Council owned Transfer Stations are funded by the gate fee charged to residents for the

materials dropped off. A similar system operates for non-Council owned transfer stations and

rubbish drop off points with a gate fee charged to cover the cost of processing and disposal.

6.1.2 Recycl ing Col lect ion and Processing

The recycling wheelie bin service is funded by a targeted rate, whereby each residential

property able to receive the service pays the same rate. Most residential and some

commercial properties are rated for the collection service. The targeted rate covers the cost

of the recycling collection service, operation of the recycling processing facility and the cost

of operating the Ferguson Street Recycling Centre. Rates are offset by any revenue

resulting from the sale of recyclable materials such as glass, plastics and metals. Council

also generates a small amount of revenue from processing recycling materials collected

from commercial operators.

Any extension to recycling collected areas would be funded by the targeted rate.

6.1.3 Composting Operat ions

Composting operations are partly funded by the fee charged to residents at the gate for the

green waste dropped off and partly funded by the targeted rate for recycling. There are also

several commercial operators who pay a fee to dispose of organic waste at the composting

site.

6.1.4 Other revenues

Council generates a small amount of revenue from the lease of commercial sites at the

Awapuni Closed Landfill site.

6.2 Waste Minimisation Levy Funding

Council receives approximately $220,000 plus GST a year in waste levy funding. This levy

amount is forecast to decrease slightly in future years as the volume of waste to landfill

decreases. The funding is primarily used for education programmes (approximately

$155,000 per year) with the remainder being used for smaller projects such as introduction

of recycling bins in public places. In summary, waste minimisation projects to be funded from

the levy include:

Waste minimisation education material


Waste minimisation advertising and promotion

Provision of recycling bins in public areas (parks, event venues etc.)

Refurbishment of recycling drop-off points

Community based recycling initiatives

Investigations of waste minimisation proposals

Research and development activities in partnership with the Zero Waste Academy

6.3 Direct Funding of Ini t iatives in the 2012 WMMP

The majority of the initiatives proposed in the 2012 plan are of an investigative nature. These

investigations will either be carried out within Council and are thereby funded as general

Council labour costs or will be carried out by external consultants. Specific operational

budgets have been set in the 2012-22 Long Term Plan for completion of such consultant

studies.

There is an on-going operational programme for education programmes identified in the

Long Term Plan as well as a programme for renewals works for the recycling processing

facility and the wheelie bins.

There are few new works planned in the rubbish and recycling area for the next three years

as the preliminary preparation of the 2012 WMMP did not identify specific areas that were

ready for capital investment. It is likely that completion of the investigations identified in this

plan will result in the identification of new capital works for consideration in subsequent

Annual Plans or the 2015-25 Long Term Plan.

6.4 Indirect Funding of Initiat ives in the 2012 WMMP

It is the Council’s intention that, until such a time that product stewardship necessitates the

take back of consumer goods by the manufacturer, the expansion of recycling activities or

other waste minimisation activities within the City will, on the whole, be a cost neutral

exercise for Council.

The most effective way for Council to achieve this is to work with the private sector so that

they can bear the risk associated with capital investment and the changing recycling

commodities market.

Similarly, effort will be directed to ensure that for any Council initiated scheme a full business

case is carried out. This will enable establishment of an appropriate charging mechanism in

cases where the revenue from sales of the recycled product does not cover the cost of

collection and recycling.

7 Monitoring and Progress Reporting

By the time the next review of the WMMP is due the target of diverting 75% of waste to

beneficial use by 2015 will need to have been realised. The City is currently a long way from

this target with 59% of waste diverted to beneficial use. Monitoring of progress on the

initiatives outlined in this plan will be essential in order to achieve this target.


7.1 Monitoring

It is intended to monitor progress on the Action Plan on an annual basis. In addition, Council

will undertake a high level Waste Assessment in Year 2 of the WMMP cycle to monitor

progress against the overall waste minimisation target of 75% of waste to beneficial use by

2015. The results of this monitoring will be used to direct actions in the final year of the

WMMP in order to help achieve this target.

7.2 Reporting

Council will report on the Action Plan on an annual basis.


External Organisations Involved in Recycling & Waste Appendix A.

Minimisation Activities The list below presents the names of those organisations that responded to a 2nd hand/re-use survey conducted on behalf of PNCC by the Zero Waste Academy in early 2012. The list is not considered to be an exhaustive representation of those involved in the 2nd hand re-use sector but rather provides an indication of the types of 2nd hand and re-use activities occurring in the city. Other community based organisations that advise Council of their involvement in recycling and waste minimisation activities will be added to the list.

Auto Parts (5)

ABCO Auto Wreckers

Commercial 4 x 4 Ltd

Nissan Car Parts Ltd

Toy-Yota Parts Ltd

Ace Auto Dismantlers

General Used Goods (18)

Target Appliances Sales and Service

Mac’s Used Appliances

Arohanui Hospice

Green Hub

Manawatu Building Recyclers

Seekers MEGA MART

Treasure Within

Manawatu Trading Centre

Red Cross

Sorters and Packers Ltd

Terrace End Used Appliances

Urban Charm 2nd

Hand Store

Better Bargains

Interville

Methodist Social Services

Salvation Army Church Street

Salvation Army Main Street

St Vincent De Paul Opportunity Society

Clothing Recycling (2)

Save Mart

Recycle Boutique


Scrap Metal Recycling (1)

Strongs Metal Recycling

Specialty Recycling (6)

Arts Recycling Centre

PC Recycling (Electronics)

Human Aid Focus (Timber)

Green Bike Trust (Bicycles)

Budget Plastics (NZ) Ltd

Just Zilch

2nd

Hand Bookshops (2)

Trash and Treasures Book Shop

Star Second Hand Bookshop


Waste Assessment - Executive Summary Appendix B.(Prepared by Eunomia Research and Consulting Ltd and Waste Not

Consulting Ltd)

Waste Assessment Executive Summary

Waste Assessment for

Waste Management and Minimisation

Plan Review

Executive Summary

Prepared for Palmerston North City

Council

FINAL

6/08/2012

Waste Assessment Executive Summary i

Prepared for:

Louise Jones

Greg Boyle

Palmerston North City Council

Prepared by:

Duncan Wilson (Eunomia Research & Consulting Ltd)

Lisa Eve (Eunomia Research & Consulting Ltd)

Sunshine Yates (Waste Not Consulting Ltd)

Bruce Middleton (Waste Not Consulting Ltd)

Approved by:

Duncan Wilson

(Project Director)

Contact Details

Eunomia Research & Consulting Ltd

PO Box 78 313

Grey Lynn

Auckland 1245

New Zealand

Tel: +64 9 376 1909

Fax: +64 9 360 5187

Web: www.eunomia-consulting.co.nz

Waste Not Consulting Ltd

PO Box 78 372

Grey Lynn

Auckland 1245

New Zealand

Tel: +64 9 360 5188

Fax: +64 9 360 5187

Web: www.wastenot.co.nz

Waste Assessment Executive Summary ii

Contents of Executive Summary

E.1.0 Introduction .................................................................................................. 1

Purpose ................................................................................................................ 1 E.1.1

Scope ................................................................................................................... 1 E.1.2

E.2.0 Overview of Waste Management in the District ......................................... 2

Key Waste Flows .................................................................................................. 2 E.2.1

E.3.0 Waste Generation ......................................................................................... 3

Council control of overall waste stream ................................................................. 6 E.3.1

Estimates of kerbside refuse ................................................................................. 6 E.3.2

Potential to Divert Waste ....................................................................................... 7 E.3.3

E.4.0 Services and Tools to Manage Waste ......................................................... 8

Collection Services ............................................................................................... 8 E.4.1

Drop-off and Transfer Stations ............................................................................ 10 E.4.2

Other Council Services ....................................................................................... 10 E.4.3

Solid Waste Related Bylaws ............................................................................... 10 E.4.4

Waste Education and Minimisation Programmes ................................................ 10 E.4.5

Assessment of Services ...................................................................................... 11 E.4.6

E.5.0 Waste Infrastructure .................................................................................. 12

E.5.1 Assessment of Waste and Recovery Infrastructure ............................................. 13

E.6.0 Future Demand & Gap Analysis ................................................................ 13

E.7.0 Statement of Options ................................................................................. 14

E.8.0 Statement of Council’s Intended Role ...................................................... 16

Statutory Obligations ........................................................................................... 16 E.8.1

Overall Strategic Direction and Role ................................................................... 16 E.8.2

E.9.0 Statements of Proposal ............................................................................. 17

Aim 1. Diversion of Waste to Beneficial Use ....................................................... 17 E.9.1

Aim 2. Regulation of Collection Services ............................................................. 17 E.9.2

Aim 3. Funding of Waste Minimisation Activities ................................................. 17 E.9.3

Aim 4. Working with Community/Public Sector Groups ....................................... 17 E.9.4

Aim 5. Education in Waste Minimisation ............................................................. 17 E.9.5

E.10.0 Statement of Extent .................................................................................... 17

Protection of Public Health ............................................................................... 17 E.10.1

Effective and Efficient Waste Management and Minimisation .......................... 18 E.10.2

Waste Assessment Executive Summary iii

Table of Figures – Executive Summary

Figure 1: Schematic of Key Palmerston North Waste Flows.................................................. 3

Figure 2: Overall Waste Breakdown for Palmerston North .................................................... 4

Figure 3: Palmerston North Waste Stream Control and Composition .................................... 5

Figure 4: Breakdown of potentially recoverable material in waste to landfill .......................... 7

Figure 5: Projected Waste and Recovery Demand .............................................................. 13

Table of Tables – Executive Summary

Table 1: Overall Waste Flows from Palmerston North ........................................................... 3

Table 2: Council Control of Overall Waste Flows from Palmerston North .............................. 6

Table 3: Calculation of Privately-Collected Kerbside Refuse ................................................. 6

Table 4: Breakdown of potentially recoverable material in waste to landfill ............................ 8

Table 5: Collection Services .................................................................................................. 8

Table 6: Drop-off and Transfer Stations .............................................................................. 10

Table 7: Disposal Facilities ................................................................................................. 12

Table 8: Resource Recovery ............................................................................................... 12

Table 9: Summary Table of Potential Options ..................................................................... 15

Waste Assessment Executive Summary 1

Executive Summary

E.1.0 Introduction This is a summary of the Waste Assessment that has been prepared for the Palmerston

North City Council in accordance with the requirements of the Waste Minimisation Act 2008

(WMA). The Waste Assessment provides background information and data to support the

Palmerston North City Council’s waste management planning process.

Purpose E.1.1

The Waste Assessment is an initial step to the development of a waste management and

minimisation plan (WMMP), and sets out the information necessary to identify the key issues

and priority actions to be included in the draft WMMP.

Section 51 of the WMA outlines the requirements of a Waste Assessment, which must

include:

1. a description of the collection, recycling, recovery, treatment, and disposal services provided within the territorial authority’s district

2. a forecast of future demands

3. a statement of options

4. a statement of the territorial authority’s intended role in meeting demands

5. a statement of the territorial authority’s proposals for meeting the forecast demands

6. a statement about the extent to which the proposals will protect public health and promote effective and efficient waste management and minimisation

Scope E.1.2

The Waste Assessment covers all waste and material recovery activities within the district

whether provided by council or the private and community sectors.

This Waste Assessment, in general, takes a 10 year timeframe in terms of its planning

horizon. For some assets and services it is necessary to consider a longer timeframe and

this is taken into account where appropriate.

In line with Council’s previous waste management strategies, this assessment is focused on

solid waste. However, issues such as landfill gas, biosolids and some liquid hazardous

wastes are also noted where they relate directly to solid waste management.

In considering how public health issues should be addressed in the context of this Waste

Assessment, the view is taken that all options will present at least some level of public health

risk and that the key issue is how risks are managed. Public health issues should not

therefore drive strategic decisions but should be evaluated across all options, and issues

flagged where the level of risk is likely to require specific management controls or

interventions, or where the risks are so great as to override other considerations.


E.2.0 Overview of Waste Management in the District

Under the current Waste Management Plan (adopted in 2009) Palmerston North City has a

vision of Zero Waste. This Policy includes a target of diverting 75% of waste to landfill by

2015.

Palmerston North, located in the heart of the Manawatu, is a major service centre for the

surrounding rural areas, and its economy is based substantially on this and on research and

education related to the agricultural sector, and as a distribution hub to the central North

Island. Although there is manufacturing activity, the manufacturing base is relatively small

compared to national profiles and is projected to diminish in importance. Key waste streams

now and in the future therefore are related to agricultural processing, distribution, retail,

healthcare and administration type activities.

Waste services in the City, including refuse and recycling collection, transfer station and

drop off facilities and processing and disposal facilities are provided by a mix of private

sector, community and Council service providers. Detail on the waste services provided are

contained in sections E.4.0 and E.5.0

Key Waste Flows E.2.1

The key Palmerston North waste flows are represented in the chart below


Figure 1: Schematic of Key Palmerston North Waste Flows

** Note Cairns Group have subsequently been placed into receivership and are no longer

operating a Transfer Station at Mathews Avenue

E.3.0 Waste Generation Based on the research undertaken for this Waste Assessment, it has been estimated that

approximately 108,000 tonnes of waste per annum were produced in Palmerston North City

during 2011/2012. The overall waste stream is broken down into four basic waste types in

Table 1 and Figure 2 below.

Table 1: Overall Waste Flows from Palmerston North

Type of waste T/annum 2011/2012 % of total

Landfilled waste 44,000 T/annum 41%

Recycled waste 20,070 T/annum 19%

Composted waste 19,124 T/annum 18%

Cleanfilled waste 25,000 T/annum 23%

TOTAL 108,194 T/annum 100%

Bonny Glen

Landfill

Midwest

Disposal

(TPI &

ESL)

Matthews Ave Transfer Station

(Cairns Group)

Malden St Transfer Station

(Manuwatu Waste)

Budget

Waste

(ESL)

Waste

Management

(TPI)

Council

(City Enterprises)

Domestic Kerbside

Collections

Ferguson St

Recycle

Depot

Medical Medichem

Ashhurst RTS(PNCC)

Out of district

waste

(mainly C&D)

Construction &

Demolition

Industrial/

Commercial/

Institutional

Landscaping

Residential

General Waste

MRF

Greenwaste

Strongs Metal

FullCircle

Awapuni RRP

Cleanfill

Waste to landfill

Recycling

Green waste

Cleanfill

Hazardous waste

Civil works &

excavations

KEY


Figure 2: Overall Waste Breakdown for Palmerston North

Of the 108,000 tonnes of waste materials generated annually in Palmerston North,

approximately 40% is disposed of to landfill, with a further 23% disposed of in cleanfills.

Recycling and composting each divert a similar proportion of waste materials. The control of

these waste streams and the potential to recover landfilled material are shown in the

following set of diagrams.

Landfilled waste44,000 tonnes

41%

Recycled waste 20,070 tonnes

19%

Composted waste

19,124 tonnes18%

Cleanfilled waste25,000 tonnes

23%


Figure 3: Palmerston North Waste Stream Control and Composition

PNCC-controlled waste to landfill

6,200 tonnes14%

Commercially-controlled waste

to landfill37,800 T/annum

86%PNCC waste to cleanfill 10,000

tonnes40%

Commercial waste to cleanfill15,000 tonnes

60%

PNCC-controlled recycled waste8,340 T/annum

42%

Commercially-controlled

recycled waste11,730 T/annum

58%

PNCC-controlled composted

waste18,624 tonnes

97%

Commercially-controlled composted

waste500 tonnes

3%


Council control of overall waste stream E.3.1

Using the definitions for ‘Council-controlled waste given in Section 4.1.2 of the Waste

Assessment, the four waste types can be broken down as shown in Table 2.

Table 2: Council Control of Overall Waste Flows from Palmerston North

Type of waste T/annum

2011/2012

% council-

controlled

% private-

controlled

Total

Landfilled waste 44,000 T/annum 14% 86% 100%

Recycled waste 20,070 T/annum 42% 58% 100%

Composted

waste 19,124 T/annum 97% 3% 100%

Cleanfilled waste 25,000 T/annum 40% 60% 100%

OVERALL

WASTE

108,194

T/annum 40% 60% 100%

Palmerston North City Council ‘controls’ about 40% of the overall flow of waste materials

generated in the city. The degree of Council control varies significantly between the different

types of waste. While Council controls only 14% of waste to landfill (kerbside collections and

operational waste), it controls an estimated 97% of composted waste - the material

processed at Awapuni Resource Recovery Park.

Estimates of kerbside refuse E.3.2

Kerbside refuse in Palmerston North is collected by both Council and private waste

operators. While data on the Council kerbside collection is available, separate tonnages for

kerbside refuse have not been provided by the private operators. However, per capita data

for kerbside refuse from several other districts is available, and this data has been used to

calculate a tonnage of privately-collected kerbside refuse in Table 3 below. In this context,

‘kerbside refuse’ refers to refuse that is collected in either bags or wheeled bins from both

residential and commercial premises.

Table 3: Calculation of Privately-Collected Kerbside Refuse

Private kerbside refuse Source of data

Population - Palmerston North

2010

81,300 PNCC

Assumed per capita kerbside

refuse per annum

0.200 tonnes Surveys in other districts

with similar service levels

Annual tonnage of kerbside

refuse

16,260 tonnes Calculated from other data


Private kerbside refuse Source of data

Annual tonnage of Council

kerbside refuse

4,164 tonnes Council records

Annual tonnage of private

kerbside refuse

12,096 tonnes Calculated from other data

Analysis suggests that Council collects approximately a quarter of household kerbside waste

by weight, although 40% of households use the service.

Potential to Divert Waste E.3.3

Figure 3 above shows that up to 36,000 tonnes of recoverable waste could be diverted from

the landfill. This represents approximately 30% of the total waste stream.

A breakdown of the overall waste that can potentially be recovered is shown in the chart and

table below:

Figure 4: Breakdown of potentially recoverable material in waste to landfill

Note: ‘Partially recoverable’ material refers to material for which it is currently technically possible to

recover at least some fraction of the waste. For Example untreated timber can generally be

recovered but treated timber is problematic

Recyclable paper10%

Recyclable plastic2%

Kitchen waste21%

Greenwaste8%

Ferrous metal4%Non-ferrous metal

1%Bottles/jars

3%

Rubble, concrete

7%

Timber13%

Rubber1%

Textiles5%

Sanitary6%

Potentially hazardous1%

Non-recyclable paper2% Non-recyclable

plastic11%

Other3%

Multimaterial/other3%

Recoverable57%

PartiallyRecoverable

25%

Non-

recoverable18%


Table 4: Breakdown of potentially recoverable material in waste to landfill

Tonnes %

Recoverable

Recyclable paper 4,411 10%

Recyclable plastic 872 2%

Kitchen waste 9,124 21%

Greenwaste 3,515 8%

Ferrous metal 1,938 4%

Non-ferrous metal 430 1%

Bottles/jars 1,488 3%

Rubble, concrete 3,292 7%

Subtotal 25,070 57%

Partially recoverable (@ 50% recovery rate)

Timber 2,834 6%

Rubber 126 0.3%

Textiles 1,140 3%

Sanitary 1,315 3%

Potentially hazardous

167 0.4%

Subtotal 5,581 13%

Total recoverable 30,651 70%

Assuming approximately half of the ‘partially recoverable’ material can be recovered, the

data suggests that on the order of 70% of what is being sent to landfill can potentially be

recovered. This would be equivalent to another 30,000 tonnes of materially being diverted

each year, and would achieve Council’s goal of diverting 75% of waste to landfill by 2015.

E.4.0 Services and Tools to Manage Waste A range of services and facilities are available within Palmerston North to manage waste.

These are outlined below:

Collection Services E.4.1

Table 5: Collection Services


Kerbside Refuse City Enterprises Weekly user-pays bag collection

Budget Waste Weekly wheeled bin collections





Kerbside Recycling City Enterprises Fortnightly two-stream wheeled bin plus crate collection

Organic Waste Budget Waste Weekly or fortnightly wheeled bin collections

City Enterprises Food wastes – weekly collection

Biosolids from Palmerston North

WWTP



Commercial Waste City Enterprises Weekly user-pays bag collection

Budget Waste Various bins sizes and collection frequencies


Various bins sizes and collection frequencies

Cairns bins Various bins sizes and collection frequencies. Collection of medical and hazardous waste


Commercial Recycling City Enterprises Food waste wheeled bin collections

Recycling collections

Budget Waste Range of materials


Range of materials

Cairns bins Range of materials



Drop-off and Transfer Stations E.4.2

Table 6: Drop-off and Transfer Stations


Transfer Stations City Enterprises Ashhurst Transfer Station

Budget Waste Malden Street Transfer Station

Cairns Matthews Ave Transfer Station

Recycling Centres City Enterprises Ferguson Street Recycling

Centre

Awapuni Recycling Drop Off

Centre

Greenhub E-waste and reuse drop off

centre

Other Council Services E.4.3

In addition to the services described above, there are other programs or services provide by

the Council. These include:

Litter bins

Illegal dumping removal and enforcement

Public place recycling for events as required

Regulation

Education

Solid Waste Related Bylaws E.4.4

Although Palmerston North City Council does not have a specific solid waste bylaw, it has a

Nuisance Bylaw which was adopted in 2011 that sets out conditions for use of the Council’s

refuse and recycling collection services. The bylaw aims to ensure:

That refuse is disposed of in a safe and sanitary manner in the interest of public health

That obstruction of the streets by refuse and recyclable material is kept to a minimum.

Waste Education and Minimisation Programmes E.4.5

PNCC provides a range of communication and education initiatives to inform ratepayers,

schools and service users of the available waste services and to promote waste

minimisation.

PNCC has recently undertaken a waste communications review and has completed a Waste

Communications Strategy. The Strategy identifies key audiences and the barriers to


fostering desired waste minimisation behaviours. The Strategy proposes a coordinated

consistent approach to communications around waste services and waste minimisation.

Assessment of Services E.4.6

Key points from the assessment of services include the following:

An estimated 40% of all households use the Council refuse bag service but this accounts for 25% of the household kerbside refuse by weight. Approximately 60% of households use a private wheeled bin service but this accounts for 75% of the household collected waste.

Households with large wheeled bins discard more refuse, with a large proportion of this being greenwaste

Competition from private sector operators limits the Councils options for encouraging waste minimisation

There is no current audit data on the composition of household refuse bags and bins but extensive data from other authorities suggests the proportion of food waste is typically around 30-40%

Council’s two-stream kerbside recycling collection service appears to be popular and well utilised. Per capita recycling rates are equivalent to those in other cities with well-developed kerbside recycling systems.

Targeting organic waste is therefore likely to represent the biggest opportunity to reduce waste from kerbside refuse

There are a good range of commercial waste and recycling services available

There are likely to be opportunities for greater recovery of material from commercial sources

There is good provision of transfer station and drop off facilities

Waste recovery at the transfer stations varies significantly, with Cairns Group making significant effort to divert waste at its Matthews Ave, facility, while the Malden Street facility is focused on waste consolidation for transport to landfill

The proposed coordination of a consistent approach to communications around waste services and waste minimisation will enhance behaviour change outcomes. A key aspect that could be addressed in more depth is waste prevention.

The lack of a dedicated solid waste bylaw contributes to the general lack of data regarding waste flows in the district. It also means that Palmerston North City Council has no control over what happens with waste other than that collected by their City Enterprises and the influence of its kerbside recycling collection.

While facilities for handling of medical and hazardous and wastes exist there is room for a more comprehensive approach and provision of better information to the public regarding disposal and handling of hazardous materials.

With the increasing complexity of waste and resource recovery arrangements needed to progress towards zero waste and sustainability there will be a growing need for a diverse range of expertise. The private and community sectors are able to offer valuable skills in relation to waste management and minimisation. The roles that these sectors can play in helping the Council and community meet future challenges will need ongoing review,


E.5.0 Waste Infrastructure The following tables identify the key waste and resource recovery infrastructure that service

the City:

Table 7: Disposal Facilities


Landfill Manawatu Waste Bonny Glen Landfill

Horowhenua District Council

Levin Landfill

Cleanfill Higgins Aggregates Ltd Manawatu River flood plain/Raukawa Road, Palmerston North

Tip Road quarry pits

Longburn/ PNCC Walkers Road, Longburn

Blackley Contractors Near Ashhusrt

Pitt Park Featherston St

PNCC Awapuni Closed Landfill

Mighty River Power Green’s Rd, Palmerston North

Table 8: Resource Recovery


Resource Recovery PNCC - Awapuni Resource Recovery Park / City Enterprises

Material Recovery Facility

PNCC - Awapuni Resource Recovery Park / City Enterprises

Composting

FullCircle Bulking

PNCC - Awapuni Resource Recovery Park / Strongs Metals

Bulking

Cairns Material Recovery Facility

TPI Material Recovery Facility

Paranui Composting Composting


E.5.1 Assessment of Waste and Recovery Infrastructure

Key points from the assessment of waste and recovery infrastructure include the following:

Bonny Glen landfill is the most significant disposal asset in the region and Palmerston North is effectively dependent on this for waste disposal. This can be mitigated to an extent through engagement in regional planning and collaboration between PNCC and Rangitikei District Council.

Bonny Glen is proposing to extend its capacity significantly to give a projected life of a further 50 years

Identifying alternative management options for construction and demolition waste and end-of-life tyres is an issue for the City.

The Awapuni RRP means that Palmerston North City has a good range of facilities to sort and process recovered materials.

While there is existing availability for most waste streams to be diverted, if a wider range of organic material, such as household food waste, is to be targeted, changes to the existing facilities and or management processes may be required.

The City is well served by transport routes enabling access to markets for recyclables.

E.6.0 Future Demand & Gap Analysis Total waste and recovered material quantities are estimated to grow slowly over the next 10-

20 years in line with household and economic growth. These projected rates are around 1-

1.2% per annum. For the purposes of projecting total waste quantities a figure of 1.2% per

annum has been used.

The most substantial change will come in the balance of how material is handled. If PNCC

is to meet a target of 75% diversion5, less material will need to flow to landfill and more to

recycling and organic waste processing activities. The figure below shows an estimate of

the change in tonnages that is likely to be required:

Figure 5: Projected Waste and Recovery Demand

5 For the purposes of this calculation we have excluded cleanfill material. Most cleanfill material is excavation

material (soil, gravel etc) and it is arguably not appropriate to count it either as diverted material or as disposal.


The projection indicates that a further 11,000 tonnes of recyclable material will need to be

diverted (allowing for waste growth) as well as 18,000 tonnes of organic waste. Services

and facilities to collect and process this material will therefore be required to be in place to

meet this future demand.

The projection is based on diverting material from the waste stream as identified in the

composition analysis. In order to achieve an overall 75% diversion rate as shown

approximately 70-75% of the key divertible materials currently sent to landfill are assumed to

be captured for beneficial use.

E.7.0 Statement of Options The following table provides a summary of key potential options that have been identified to

meet the forecast future demand.

2012 2023

Council Organics 18,669 33,107

Private Organics 455 4,332

Council Recycling 7,670 10,802

Private Recycling 12,400 20,884

Council Landfill 6,200 4,322

Private Landfill 37,800 19,117

-

10,000

20,000

30,000

40,000

50,000

60,000

70,000

80,000

90,000

100,000


Table 9: Summary Table of Potential Options

Kerbside

services

Drop off

services

Transfer

stations

Education Regulation Monitoring Infrastructure

Recyclable

commodities

Increase recovery rates

Target

greater

separation of

commodities

at source

Target

business

Improve-waste drop off facilities

Public place

recycling

Review

funding of

drop-off

services and

Ashhurst

WTS

Target greater separation of commodities

Differential

charging

Promote reduction

Restrict disposal of recyclables in residual refuse collection services

RTS data

Operator

licensing

data

RRP data

Evaluate business case for kerb sort of glass

Organic

wastes

Consider kitchen and or garden waste collections

N/A Promote separation of garden waste

Home composting

Restrict disposal of organics in residual refuse collection services

RTS data

Operator

licensing

data

Composting

data

Improve capacity of composting operation to accept putrescible wastes

Construction

& Demolition

waste

Work with private sector to offer separation

Target greater separation

Differential

charging

Promote prevention

Site waste plans

Cleanfill

bylaw

Waste analysis

RTS data

Operator

licensing

data

Reusable

goods

‘Inorganic’ collection

Provide for drop-off of reusable goods

Establish reuse centres at RTS

Encourage reuse

Second-hand

Sundays

Restrict disposal of reusable goods in residual refuse collection services

RTS data

Operator

licensing

data

Liquid and

hazardous

Target greater separation.

Improve

management

Promote good practice for safe disposal.

Use web to

identify

disposal

points.

RTS data

Operator

licensing

data


Kerbside

services

Drop off

services

Transfer

stations

Education Regulation Monitoring Infrastructure

Residual

collection/

RTS

Consider wheeled bins

N/A Price residual collection services to represent full cost of disposal

Advertise via web register of area based collection services

Consistent rules around collection times, materials, presentation of bins/bags etc.

Waste analysis

RTS data

Operator

licensing

data

Residual

disposal

Waste analysis

Negotiate with landfill operators

E.8.0 Statement of Council’s Intended Role Statutory Obligations E.8.1

Councils have a number of statutory obligations in respect of the planning and provision of

waste services. These include the following:

Promoting effective and efficient waste management and minimisation as required by the Waste Minimisation Act 2008

Having regard to the NZ Waste Strategy. The NZ Waste Strategy has two high levels goals: ‘Reducing the harmful effects of waste’ and ‘improving the efficiency of resource use’.

Council must consult the public about its plans for managing waste

Meeting any obligations under the Resource Management Act 1991 (RMA),

Protecting Public Health

Ensuring a healthy and safe working environment

Palmerston North City Council, in determining its role, needs to ensure that its statutory

obligations, including those noted above, are met.

Overall Strategic Direction and Role E.8.2

As noted the current WMMP encompasses an aspirational vision of progressing towards

zero waste. To assist in achieving this vision, Council’s key roles are proposed to cover the

following:

Council will continue existing activities and find new activities to divert waste to beneficial use

Council will aim to control and regulate waste collections so as to ensure that maximum waste is diverted from landfill and to minimise environmental impact

Council will endeavour to fund waste management activities in a way that is equitable and promotes waste minimisation and recycling and that minimises the cost to the ratepayer

Council will work with community groups and the private sector to achieve waste


minimisation goals in preference to developing additional Council-funded activities or assets

Council will continue to educate the community as to the benefits of waste minimisation and thereby improve participation in waste minimisation activities

E.9.0 Statements of Proposal Based on the options identified in this Waste Assessment and the Council’s intended role in

meeting forecast demand the following proposals are put forward. Actions and timeframes

for delivery of these proposals are identified in the Draft Waste Management and

Minimisation Plan.

Aim 1. Diversion of Waste to Beneficial Use E.9.1

Increase organic waste utilisation

Increase commercial waste recycling

Improve accessibility of recycling in public places

Aim 2. Regulation of Collection Services E.9.2

Regulate waste collection in Palmerston North to help ensure waste collected is put to beneficial use where feasible

Monitor and collect data to help direct future waste services

Protect the environment by regulation of waste disposal

Aim 3. Funding of Waste Minimisation Activities E.9.3

Reduce operational costs to minimise the cost of the activity to rate payers

Ensure funding for waste management activities promotes re-use and recycling and penalises disposal to landfill

Find alternate funding sources to help subsidise waste minimisation activities

Aim 4. Working with Community/Public Sector Groups E.9.4

Increase overall diversity and volume of recycling in Palmerston North

Aim 5. Education in Waste Minimisation E.9.5

Increase public awareness and participation in waste minimisation activities

E.10.0 Statement of Extent In accordance with section 51 (f), a Waste Assessment must include a statement about the

extent to which the proposals will (i) ensure that public health is adequately protected, (ii)

promote effective and efficient waste management and minimisation.

Protection of Public Health E.10.1

The Health Act 1956 requires PNCC to ensure the provision of waste services adequately

protects public health.

Households and organisations currently have access to a wide range of refuse and recycling

collection services which ensure that waste materials are able to be collected on a frequent


basis, and these services will be continued and enhanced to promote further waste

minimisation. Materials collected are disposed of at a modern sanitary landfill or are

processed for recovery through consented facilities.

The Waste Assessment has identified potential public health issues associated with each of

the options, and appropriate initiatives to manage these risks would be a part of any

implementation programme

In respect of Council provided waste and recycling services public health issues will be able

to be addressed through setting appropriate performance standards for waste service

contracts and ensuring performance is monitored and reported on, and that there are

appropriate structures within the contracts for addressing issues that arise.

Privately provided services will be regulated through bylaws or appropriate legislation

It is considered that, subject to any further issues identified by the Medical Officer of Health

the proposals would adequately protect public health.

Effective and Efficient Waste Management and Minimisation E.10.2

The assessment has investigated current and future quantities of waste and diverted

material, services provided in the District, future demands for waste and diverted material

services, options to meet these demands and the PNCC’s role in meeting these demands.

It is considered that the process of forecasting future demands and options to meet these

demands has been robust, and that the Council’s intended role in meeting these demands is

appropriate in the context of the overall statutory planning framework for the Council and for

promoting effective and efficient waste management and minimisation.

Therefore, it is considered that the proposals would promote effective and efficient waste

management and minimisation.

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