Palmerston North City Council Assessment

November 2018

Palmerston North Waste Assessment

Report for the Palmerston North City Council

Prepared by Duncan Wilson, Lisa Eve and Bruce Middleton

Approved by

Duncan Wilson (Project Director)

Eunomia Research & Consulting Ltd Tel: +64 9 376 1909 PO Box 78 313 Grey Lynn Web: www.eunomia.co.nz 1245

New Zealand

Acknowledgements

Disclaimer Eunomia Research & Consulting has taken due care in the preparation of this report to ensure that all facts and analysis presented are as accurate as possible within the scope of the project. However no guarantee is provided in respect of the information presented, and Eunomia Research & Consulting is not responsible for decisions or actions taken on the basis of the content of this report.

16 November 2018 Contents

1 ... Introduction...... 1 1.1 Structure of this Document ...... 1 1.2 Purpose of this Waste Assessment ...... 2 1.3 Legislative Context ...... 2 1.4 Scope ...... 3 1.4.1 General ...... 3 1.4.2 Period of Waste Assessment ...... 3 1.4.3 Consideration of Solid, Liquid and Gaseous ...... 3 1.4.4 Public Health Issues ...... 4 1.5 Strategic Context ...... 5 1.5.1 Waste Strategy ...... 5 1.5.2 International Commitments ...... 6 1.5.3 National Projects ...... 6 1.6 Local and Regional Planning Context ...... 7 1.6.1 Ten Year Plan ...... 7 1.6.2 Eco-City Strategy ...... 8 1.6.3 Asset Management Plan 2017 – Rubbish and ...... 9 1.6.4 Horizons Regional Council ...... 10 2 ... Our City ...... 15 2.1 Manawatu-Wanganui Region ...... 15 2.2 Physical Characteristics ...... 16 2.2.1 Overview ...... 16 2.2.2 Geography ...... 16 2.2.3 Climate ...... 17 2.2.4 Demographics ...... 17 2.3 Economy ...... 21 3 ... Waste Infrastructure ...... 23 3.1 Summary of in Palmerston North ...... 23 3.2 Disposal Facilities ...... 24 3.2.1 Class 1 ...... 25 3.2.2 Transfer Stations and Drop-off Centres ...... 26

Palmerston North Waste Assessment 3.2.3 Closed Landfills ...... 27 3.2.4 Class 2-4 Landfills ...... 27 3.2.5 Assessment of Residual Waste Management Infrastructure ...... 28 3.3 Facilities and Services ...... 29 3.4 Recycling and Reprocessing Facilities ...... 29 3.4.1 Recycling and Reprocessing Facilities Outside Palmerston North ...... 30 3.4.2 Assessment of Recycling and Reprocessing Facilities ...... 31 4 ... Waste Services ...... 32 4.1 Council-provided Waste Services ...... 32 4.1.1 Collection Services ...... 32 4.1.2 Other Council Services ...... 32 4.1.3 Waste Education and Minimisation Programmes ...... 32 4.1.4 Solid Waste Bylaws ...... 33 4.1.5 Hazardous Waste ...... 33 4.1.6 Service Delivery Models ...... 33 4.2 Assessment and Funding of Council-provided Solid Services ... 34 4.3 Non-Council Services ...... 34 4.3.1 Assessment of Non-Council Services ...... 35 5 ... Situation Review ...... 36 5.1 Waste to Class 1-4 Landfills ...... 36 5.1.1 Definitions Used in this Section ...... 36 5.2 Overview of Waste to Class 1-4 Landfills ...... 36 5.3 Waste Quantities ...... 36 5.3.1 Waste to Class 1 Landfills ...... 36 5.3.2 Waste to Class 2-4 Landfills ...... 37 5.3.3 Summary of Waste Disposed of to Land ...... 37 5.4 Waste to Class 1 Landfills ...... 38 5.4.1 Composition ...... 38 5.4.2 Activity Source of Waste ...... 39 5.4.3 Diversion Potential ...... 40 5.5 Composition of Kerbside Refuse ...... 41 5.5.1 Composition of the Full Kerbside Stream ...... 42 5.5.2 Diversion Potential of Palmerston North kerbside waste ...... 43 5.5.3 Comparative Composition of Kerbside Refuse Components ...... 44

16 November 2018 5.5.4 Comparative Diversion Potential of Kerbside Refuse Components ...... 45 5.6 Diverted Materials ...... 46 5.6.1 Overview of Diverted Materials ...... 46 5.6.2 Material Diverted Through Kerbside Recycling and Drop-Off Facilities ...... 47 5.6.3 Composition of Kerbside Recycling ...... 47 5.6.4 Commercially-Diverted Materials ...... 48 6 ... Performance Measurement ...... 49 6.1 Current Performance Measurement ...... 49 6.1.1 Per Capita Waste to Class 1 Landfills ...... 49 6.1.2 Per Capita Domestic Kerbside Refuse to Class 1 Landfills ...... 51 6.1.3 Per Capita Kerbside Recycling ...... 52 6.1.4 Council Bag Share of Domestic Kerbside Refuse Market ...... 54 7 ... Future Demand and Gap Analysis ...... 55 7.1 Future Demand ...... 55 7.1.1 Population ...... 55 7.1.2 Economic Activity ...... 55 7.1.3 Changes in Lifestyle and Consumption ...... 57 7.1.4 Changes in Waste Management Approaches ...... 57 7.1.5 Summary of Demand Factors...... 58 7.2 Future Demand – Gap Analysis ...... 58 7.2.1 Waste Streams ...... 59 7.2.2 Hazardous Wastes ...... 59 8 ... Initial Review of the 2012 Waste Management and Minimisation Plan ...... 61 8.1 Data ...... 61 8.2 Key Issues ...... 61 8.3 New Guidance ...... 61 8.4 Actions ...... 62 9 ... Statement of Options ...... 66 9.1 Key Issues to Be Addressed by WMMP ...... 66 9.2 Regulation ...... 67 9.3 Measuring and Monitoring ...... 68 9.4 Education and Engagement ...... 69 9.5 Collection & Services ...... 70 9.6 Infrastructure ...... 72

Palmerston North Waste Assessment 9.7 Leadership and Management ...... 73 9.8 Summary Table of Potential Scenarios ...... 74 10 . Statement of Council’s Intended Role ...... 78 10.1 Statutory Obligations and Powers ...... 78 10.2 Overall Strategic Direction and Role ...... 79 11 . Statement of Proposals ...... 80 11.1 Statement of Extent ...... 80 11.1.1 Protection of Public Health ...... 80 11.1.2 Effective and Efficient Waste Management and Minimisation ...... 80

16 November 2018 1 Introduction This Waste Assessment has been prepared for Palmerston North City Council (the Council) by Eunomia Research & Consulting in accordance with the requirements of the Act 2008 (WMA). This document provides background information and data to support the Council’s waste management and minimisation planning process. 1.1 Structure of this Document This document is arranged into a number of sections designed to help construct a picture of waste management in our city. The key sections are outlined below. Introduction The introduction covers a number of topics that set the scene. This includes clarifying the purpose of this Waste Assessment, its scope, the legislative context, and key documents that have informed the assessment. Manawatu-Wanganui Region This section presents a brief overview of key aspects of the region’s geography, economy, and demographics that influence the quantities and types of waste generated and potential opportunities. It also provides an overview of regional waste facilities, and initiatives that may be of relevance to how we manage our waste. Our City This section presents a brief overview of key aspects of the city’s geography, economy, and demographics that influence the quantities and types of waste generated and potential opportunities. Waste Infrastructure, Services, Data and Performance Measurement These sections examine how waste is currently managed, where waste comes from, how much there is, its composition, and where it goes. Gap Analysis and Future Demand This section provides an analysis of what is likely to influence demand for waste and recovery services in the region and identifies key gaps in current and future service provision and in the Council’s ability to promote effective and efficient waste management and minimisation. Statement of Options & Council’s Proposed Role These sections develop options available for meeting the forecast future demand and identify the Council’s proposed role in ensuring that future demand is met, and that the Council is able to meet its statutory obligations. Statement of Proposals The statement of proposals sets out what actions are proposed to be taken forward. The proposals are identical to the actions that will be put forward in the upcoming Waste Management and Minimisation Plan (WMMP) so the Waste Assessment simply references the WMMP for this section.

Palmerston North Waste Assessment Appendices The appendices contain additional waste management data and further detail about facilities in each district. This section includes the statement from the Medical Officer of Health as well as additional detail on legislation. 1.2 Purpose of this Waste Assessment This Waste Assessment is intended to provide an initial step towards the development of a WMMP and sets out the information necessary to identify the key issues and priority actions that will be included in the draft WMMP. Section 51 of the WMA outlines the requirements of a waste assessment, which must include: • a description of the collection, recycling, recovery, treatment, and disposal services provided within the territorial authority’s district • a forecast of future demands • a statement of options • a statement of the territorial authority’s intended role in meeting demands • a statement of the territorial authority’s proposals for meeting the forecast demands • a statement about the extent to which the proposals will protect public health, and promote effective and efficient waste management and minimisation. 1.3 Legislative Context The principal solid waste legislation in New Zealand is the Waste Minimisation Act 2008 (WMA). The stated purpose of the WMA is to: “encourage waste minimisation and a decrease in waste disposal in order to (a) protect the environment from harm; and (b) provide environmental, social, economic, and cultural benefits. To further its aims, the WMA requires TAs to promote effective and efficient waste management and minimisation within their district. To achieve this, all TAs are required by the legislation to adopt a WMMP. The WMA requires every TA to complete a formal review of its existing waste management and minimisation plan at least every six years. The review must be consistent with WMA sections 50 and 51. Section 50 of the WMA also requires all TAs to prepare a ‘waste assessment’ prior to reviewing its existing plan. This document has been prepared in fulfilment of that requirement. The Council’s existing Waste Assessment was written in August 2012 and the WMMP was adopted in December 2012. Further detail on key waste-related legislation is contained in Appendix A.3.0.

16 November 2018 1.4 Scope

1.4.1 General As well as fulfilling the statutory requirements of the WMA, this Waste Assessment will build a foundation that will enable Council to update its WMMP in an informed and effective manner. In preparing this document, reference has been made to the Ministry for the Environment’s ‘Waste Management and Minimisation Planning: Guidance for Territorial Authorities’1. A key issue for this Waste Assessment will be forming a clear picture of waste flows and management options in the city. The WMA requires that a waste assessment must contain: “A description of the collection, recycling, recovery, treatment, and disposal services provided within the territorial authority’s district (whether by the territorial authority or otherwise)”. This means that this Waste Assessment must take into consideration all waste and recycling services carried out by private waste operators as well as the TA’s own services. While the Council has reliable data on the waste flows that it controls, data on those services provided by private industry is limited. Reliable, regular data on waste flows is important if the TA chooses to include waste reduction targets in their WMMP. Without data, targets cannot be readily measured. The New Zealand Waste Strategy 2010 also makes clear that TAs have a statutory obligation (under the WMA) to promote effective and efficient waste management and minimisation in their district. This applies to all waste and materials flows in the district, not just those controlled by councils. 1.4.2 Period of Waste Assessment The WMA requires WMMPs to be reviewed at least every six years, but it is considered prudent to take a longer-term view. The horizon for the WMMP is not fixed but is assumed to be centred on a 10-year timeframe, in line with council’s ten year plans (TYPs). For some assets and services, it is necessary to consider a longer timeframe and so this is taken into account where appropriate. 1.4.3 Consideration of Solid, Liquid and Gaseous Wastes The guidance provided by the Ministry for the Environment on preparing Waste Management and Minimisation Plans states that: “Councils need to determine the scope of their WMMP in terms of which wastes and diverted materials are to be considered within the plan”. The guidance further suggests that liquid or gaseous wastes that are directly managed by a TA, or are disposed of to , should be seriously considered for inclusion in a WMMP.

1 Ministry for the Environment (2015), Waste Management and Minimisation Planning: Guidance for Territorial Authorities

Palmerston North Waste Assessment Other wastes that could potentially be within the scope of the WMMP include gas from landfills and the management of from wastewater treatment plant (WWTP) processes. The nearest landfill to Palmerston North City is Bonny Glen landfill, which has a capture system in place. In line with the Council’s previous WMMP, this Waste Assessment is focused on solid waste that is disposed of to land or diverted from land disposal, including solid waste collected and disposed of by commercial enterprise as well as waste collected by the council. The WMMP also considers disposal of biosolids, specifically waste products from the waste water treatment system (sludge). 1.4.4 Public Health Issues Protecting public health is one of the original reasons for local authority involvement in waste management. The New Zealand 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 can be considered one of the components entailed in “reducing harm”. Protection of public health is currently addressed by a number of pieces of legislation. Discussion of the implications of the legislation is contained in Appendix A.3.0.

1.4.4.1 Key Waste Management Public Health Issues Key issues that are likely to be of concern in terms of public health include the following: • Population health profile and characteristics • Meeting the requirements of the Health Act 1956 • Management of putrescible wastes • Management of nappy and sanitary wastes • Potential for dog/seagull/vermin strike • Timely collection of material • Locations of waste activities • Management of spillage • and • Medical waste from households and healthcare operators • Storage of wastes • Management of biosolids/sludges from WWTP • Management of hazardous wastes (including asbestos, e-waste, etc.) • Private on-site management of wastes (i.e. burning, burying) • Closed landfill management including air and water discharges, odours and vermin • Health and safety considerations relating to collection and handling.

16 November 2018 1.4.4.2 Management of Public Health Issues From a strategic perspective, the public health issues listed above are likely to apply to a greater or lesser extent to virtually all options under consideration. For example, illegal dumping tends to take place ubiquitously, irrespective of whatever waste collection and transfer station systems are in place. Some systems may exacerbate the problem (infrequent collection, user-charges, inconveniently located facilities etc.) but, by the same token, the issues can be managed through methods such as enforcement, education and by providing convenient facilities. In most cases, public health issues will be able to be addressed through setting appropriate performance standards for waste services. It is also important to ensure performance is monitored and reported on and that there are appropriate structures within the contracts for addressing issues that arise. There is expected to be added emphasis on workplace health and safety under the Health and Safety at Work Act 2015. This legislation could impact on the choice of collection methodologies and working practices and the design of waste facilities, for example. In addition, public health impacts will be able to be managed through consideration of potential effects of planning decisions, especially for vulnerable groups. That is, potential issues will be identified prior to implementation so they can be mitigated for. 1.5 Strategic Context

1.5.1 New Zealand Waste Strategy The New Zealand Waste Strategy: Reducing Harm, Improving Efficiency (NZWS) is the Government’s core policy document concerning waste management and minimisation in New Zealand. The two goals of the NZWS are: 1. Reducing the harmful effects of waste 2. Improving the efficiency of resource use.

The NZWS provides high-level, flexible direction to guide the use of the tools available to manage and minimise waste in New Zealand. These tools include: • The Waste Minimisation Act 2008 • Local Government Act 2002 • Hazardous Substances and New Organisms Act 1996 • Resource Management Act 1991 • Climate Change Response Act 2002 and Climate Change (Emissions Trading) Amendment Act 2008 • International conventions • Ministry for the Environment guidelines, codes of practice • Voluntary initiatives.

The flexible nature of the NZWS means that councils are able to decide on solutions to waste management and minimisation that are relevant and appropriate to local situations and desired community outcomes.

Palmerston North Waste Assessment Section 44 of the WMA requires councils to have regard to the NZWS when preparing their WMMP. For the purpose of this Waste Assessment, the council has given regard to the NZWS and the current WMMP (2012). 1.5.2 International Commitments New Zealand is party to the following key international agreements: 1. Montreal Protocol – to protect the ozone layer by phasing out the production of numerous substances 2. – to reduce the movement of hazardous wastes between nations 3. Stockholm Convention – to eliminate or restrict the production and use of persistent organic pollutants 4. Waigani Convention – bans export of hazardous or to Pacific Islands Forum countries

1.5.3 National Projects A number of national projects are underway, aimed at assisting TAs, business and the public to adopt waste management and minimisation principles in a consistent fashion.

1.5.3.1 National Waste Data Framework Project The first stage of the National Waste Data Framework (NWDF) project, led by WasteMINZ, was funded by a grant from the Waste Minimisation Fund. The development of the NWDF took the following form: • A staged development approach, focusing initially on the most important elements while also setting out a clear ‘upgrade’ path to include other elements. • The first stage of the NWDF (which has been completed) includes data on waste disposed of at levied disposal sites (Class 1 landfills) and information on waste services and infrastructure as well as other areas where practicable. • Subsequent stages of the NWDF will include more detailed data on diverted materials and waste disposed of at non-levied disposal sites.

The first stage of the NWDF is complete. WasteMINZ is now working on the implementation phase. The NWDF will only be successful if it is widely adopted and correctly applied. The implementation report clearly sets out a range of options to move the NWDF forwards. The Council intends to be a part of the implementation of the NWDF by using the categories and terminology of the NWDF in the Waste Assessment and the forthcoming revised WMMP.

1.5.3.2 National Standardisation of Colours for Bins Until recently, councils and businesses in New Zealand had used a variety of colours to indicate what waste streams can be placed in what bins. This was viewed as possibly creating confusion when colours were used inconsistently and increasing the likelihood of contamination.

16 November 2018 In October 2015 WasteMINZ, the Glass Packaging Forum, and councils around New Zealand agreed on a standardised set of colours for mobile recycling and rubbish bins, crates and internal office bins. Companies wishing to implement nationwide recycling schemes are strongly encouraged to use these colours both for their bins and also on their signage. This will ensure that the colours used are consistent with both public place recycling and household recycling. The recommended colours are: For bin bodies: For 240 litre and 120 litre wheeled bins, black or dark green should be used. These colours maximise the amount of recycled content used in the production of the bins. For bin lids, crates and internal office bins: • Red should be used for rubbish • Yellow should be used for commingled recycling (glass, plastic, metal and paper combined) • Lime green should be used for food waste and food waste/garden (referring to green) waste combined; noting that food waste-only collections are strongly encouraged to use a smaller bin size than combined food and garden collections. • Dark Green should be used for garden waste. • Light Blue should be used for commingled glass collections (white, brown, green glass combined). • Grey should be used for paper and cardboard recycling.

Council’s containers partially follow this colour coding system, although the plastic bags used for the kerbside rubbish collection are green and the crates used for glass are black. However it should be noted that these crates were already in use in 2015; furthermore the colour of the rubbish bags is similar to that of the recommended colour for bodies of wheeled bins, and for a similar reason. Council also has in place its Waste Management and Minimisation Bylaw 2016, which gives it the ability to require licensed waste operators to comply with certain conditions, including possible conditions relating to collection containers. 1.6 Local and Regional Planning Context This Waste Assessment and the resulting WMMP will have been prepared within a local and regional planning context whereby the actions and objectives identified in the Waste Assessment and WMMP reflect, intersect with, and are expressed through other planning documents. Key planning documents and waste-related goals and objectives are noted in this section. 1.6.1 Ten Year Plan Council’s current TYP was adopted on 25 June 2018. A key part of the ten year plan (TYP) is the vision that has been set for the Council. The vision is: “Small city benefits, big city ambition.”

Palmerston North Waste Assessment Council wants every resident to be able to enjoy the benefits of living in a small city, with the advantages of a big city. The TYP also includes the following goals for the city: • An innovative and growing city. • A creative and exciting city. • A connected and safe community. • An eco-city. • A driven and enabling Council. Council’s desire is for Palmerston North to be recognised for its great quality of life while at the same time offering the lifestyle, education and business opportunities offered in much larger cities. Rubbish and recycling services are provided in order to: • Ensure the city’s solid waste is adequately and affordably managed • Maximise the amount of waste diverted from landfill (such as through recycling and composting) • Manage hazardous waste in an environmentally responsible manner. The TYP notes that there are potentially significant negative impacts from the ‘rubbish and recycling’ activity including gas emissions from closed landfills, and leachate and stormwater discharges. 1.6.2 Eco-City Strategy The Eco-City Strategy was developed to meet goal 4 of the Long Term Plan, to be “an eco- city”. The priorities under the Eco-City Strategy are: • Invest in infrastructure that serves to protect, enhance, and preserve the environment. • Use Council’s legislative powers and policies to ensure urban development is sustainable now and into the future. • Demonstrate leadership and best practice by developing and implementing an environmental sustainability plan for the Council, Council-run events, and facilities. The Eco-City Strategy is supported by five plans; of which the Waste Plan and the Sustainable Practices Plan are relevant to solid waste management and minimisation.

1.6.2.1 The Waste Plan The purpose of the Waste Plan is to deliver on the first and third priorities shown above (investing in infrastructure, and demonstrating leadership and best practice). The Waste Plan states that Council provides waste and recycling services for the city in order to: • Ensure the city’s solid waste is adequately and affordably managed • Maximise proportion of waste diverted from landfill (e.g. through recycling, composting) • Manage hazardous waste in an environmentally responsible manner. The goals of the Waste Plan are to:

16 November 2018 • Reduce the gross volume of waste produced in the city • Reduce the gross volume of waste produced by Council operations • Divert a greater proportion of waste from landfill, and instead increase diversion through recycling and composting • Meet the demand for recycling services in the growing north-west of the city • Provide sustainable recycling options for more materials that currently are sent to landfill. The Plan includes a number of programmes and actions to achieve these goals: • Investigate providing a polystyrene recycling service (by end of 2018/2019). • Trial programme providing for the recycling of mattresses (by end of 2018/2019). • Review the procurement policy to require lower waste Council purchasing (by end of 2019/2020). • Investigate establishing a new drop-off site for recycling and in the north-west of the city to service urban growth (by end of 2018/2019). • Investigate providing receiving and disposal options for liquid hazardous waste (by end of 2018/2019). • Review the Waste Management and Minimisation Plan (by end of 2018/2019). • Introduce RFID monitoring of kerbside recycling bins. • Utilise GPS tracking of trucks to optimise routes • Incorporate electric trucks to the fleet • Provide greenwaste composting services to divert green waste from landfill and provide a revenue stream • Work towards ‘zero-waste events’ • Work with iwi and other regional partners • Support the implementation of the Para Kore programme • Work with other public institutions to trial food waste management systems • Work with the commercial sector to improve recycling rates The success of the Waste Plan will be measured by: • A decrease in the gross volume of waste produced city-wide • An increase in the proportion of waste diverted from landfill • Having more events that are zero-waste.

1.6.2.2 The Sustainable Practices Plan This Plan identifies waste management and minimisation as contributing to three work areas – events on Council land and/or funded by Council being more sustainable, reducing resource use and waste by changing community and business practices, and extending behaviour change programmes. 1.6.3 Asset Management Plan 2017 – Rubbish and Recycling The 2017 Asset Management Plan (AMP) for rubbish and recycling aims to describe strategies and work programmes for the activity such that required levels of service are delivered in the most cost effective way. It is a framework for sustainable asset management.

Palmerston North Waste Assessment The AMP covers the time period from 1 July 2018 to 30 June 2048, but has a particular focus on the first five years of that time. The TYP is informed by the AMP. Growth in both population and the number of households is discussed, and the implications of this and other growth factors are discussed in the context of demand for rubbish and recycling services. Council is responsible for a number of assets that are related to solid waste management and minimisation, including the Awapuni complex which includes a closed landfill, park (RRP), materials recovery facility (MRF), organic waste management, and associated activities; the Ashhurst closed landfill and transfer station; and Ferguson Street recycling centre. Council also owns the wheeled bins and crates used for their kerbside recycling collections. The most significant and variable cost over the 30 years of the AMP is the replacement of the wheeled bins and crates used for the kerbside recycling service, on a roughly ten-year full replacement cycle. The AMP also includes budget for planned asset developments, including: • City-wide - public spaces rubbish and recycling bins – annual programme • City-wide – wheeled bins and crates for kerbside recycling service provided to new properties – annual programme • City-wide – public recycling facilities upgrades 2021/2022 • City-wide – wheeled bins and crates for kerbside recycling service provided to non- residential properties – initial introduction 2019/2020 to 2021/2022, and then annually thereafter • Awapuni RRP – annual landscaping programme • Closed landfills and transfer stations – site infrastructure works 2018/2019 to 2021/2022, and then three-yearly from 2023/2024. The asset maintenance and development plans are intended to maintain assets and service levels to a growing community in the city over the next 30 years, while also maintaining the potential of the assets to continue providing these levels of service beyond the term of this AMP. 1.6.4 Horizons Regional Council The Horizons Regional Council, which covers the Manawatu/Wanganui region, adopted the ‘One Plan’ in November 20142. This document covers the requirements of the consolidated regional policy statement, the regional plan, and the regional coastal plan for the region. In the One Plan, the regional council states that it recognises “the need to focus on the full life cycle of waste from generation to disposal, and that waste is a wasted resource.” The Plan goes on to discuss specific requirements with respect to hazardous substances and contaminated land.

2 Available at www.horizons.govt.nz/publications-feedback/one-plan

16 November 2018 Waste is defined as “any material, solid, liquid or gas that is unwanted or unvalued and discarded or discharged.”3 Chapter Three of the One Plan sets out the objectives, policies and methods relating to waste. Increased quantities of waste produced and hazardous substances used is resulting in concern in several areas: • Wasted resources and an increasing need for appropriate disposal • Potential for poor management of hazardous substances • Potential for land contamination, leading to risks to people and environment. The waste management objective included in the One Plan is: “The Regional Council and Territorial Authorities must work together in a regionally consistent way to: (i) Minimise the quantity of waste generated in the Region and ensure it is disposed of appropriately, (ii) Manage adverse effects from the use, storage, disposal and transportation of hazardous substances, and (iii) Manage adverse effects from contaminated land. Solid waste facilities such as landfills, transfer stations and resource recovery facilities should be recognised as being physical resources of regional and national importance; and these should be managed in a way that considers the significant benefits derived from the assets. The One Plan includes four policies intended to give effect to the objective above. These policies are as follows: Policy 3-8 Waste policy hierarchy Wastes, including solid, liquid, gas and sludge waste, must be managed in accordance with the following hierarchy: (a) reducing the amount of waste produced (b) reusing waste (c) recycling waste (d) recovering resources from waste (e) appropriately disposing of residual wastes. Policy 3-9 Consent information requirements – waste policy hierarchy and hazardous substances Where a proposal has the potential to give rise to significant adverse effects on the receiving environment, an assessment must be required, as part of the consent information requirements for all discharges to air, land, water and the coastal marine area, of:

3 Glossary section of the One Plan

Palmerston North Waste Assessment (a) reduction, , recycle and recovery options for the discharge in accordance with Policy 3-8, and (b) any hazardous substances that may be present in the discharge, and alternatives to those hazardous substances. Policy 3-10 Cleanfills, composting and other waste reduction activities Waste reduction activities will be encouraged, in particular by generally allowing cleanfills and composting activities. Policy 3-11 Landfill management Landfills must generally be designed, constructed, managed, operated, remediated and monitored in line with appropriate guidelines and national environmental standards. Taking into account the applicability of these guidelines and standards in relation to the type and scale of activity proposed, the following guidelines may be considered appropriate: (a) Centre for Advanced Engineering Landfill Guidelines, April 2000 (b) Ministry for the Environment, Module 1: Hazardous Waste Guidelines – Identification and Record Keeping, June 2002, ME637 (c) Ministry for the Environment, Module 2: Hazardous Waste Guidelines, Landfill Waste Acceptance Criteria and Landfill Classification, May 2004, ME510 (d) Ministry for the Environment, A guide to the Management of Cleanfills, January 2002, ME418 (e) Ministry for the Environment, A guide to the Management of Closing and Closed Landfills in New Zealand, May 2001, ME390 (f) Ministry for the Environment, Guide to Landfill Conditions, May 2001, ME389 (g) Ministry for the Environment, Good Practice Guide for Assessing and Managing the Environmental Effects of Dust Emissions, September 2001 (h) Landfill gas collection and destruction or reuse in accordance with the Resource Management (National Environmental Standards Relating to Certain Air Pollutants, Dioxins and other toxics) Regulation 2004. Cleanfills are defined as landfills only accepting: “materials such as clay, soil and rock, and other inert materials such as concrete or brick that are free of: a) Combustible, putrescible (except that cleanfill material can contain up to 5% by weight putrescible matter), degradable or leachable components b) Hazardous substances c) Products or materials derived from hazardous , hazardous waste stabilisation or hazardous waste disposal practices d) Materials that may present a risk to human health e) Liquid waste.

16 November 2018 This definition departs from the waste acceptance criteria set out in the 2016 Technical Guidelines for Disposal of Waste to Land4 in two key respects – firstly the criteria allow no more than 2% of biodegrable material by volume per load; and manufactured materials such as concrete and brick are permitted to make up no more than 5% by volume per load. The non-regulatory methods associated with the objective and policies above are: Method 3-1 Regional Territorial Authority Waste Forum… Work with the territorial authorities to achieve a regionally consistent approach to waste and to progress Region- wide waste issues and implement agreed initiatives, including: - hazardous waste disposal facilities - recycling facilities -resource recovery network - public information -waste education schools - consistent waste data collection and reporting - development of Region-wide waste reduction targets in line with the New Zealand Waste Strategy 2002 - cleanfill management and monitoring - waste minimisation and in business/trade sectors - economic instruments including incentives for waste reduction Method 3- 2 Public Information: Easily accessible information will be developed and provided to increase public awareness on waste issues generic to the Region, including: - cleanfill management and guidelines - waste minimisation - availability of waste disposal and recovery facilities (including for campervans) - fly tipping - hazardous substances - burning of waste - offal pits and farm dumps - septic tank discharges - composting Some actions in the One Plan are now obsolete, as they refer to requirements for waste planning under the Local Government Act (2002) rather than the Waste Minimisation Act (2008). The One Plan also refers to the New Zealand Waste Strategy 2002, particularly with respect to targets, even though this document was reviewed in 2010 and any specific targets removed. Although the One Plan was not adopted until 2014, large sections of the Plan were notified for consultation as early as 2007 and so referred to strategies and legislation that were in effect at this time. As no submissions were received with respect to the waste section of the Plan, it was not possible to update this section prior to final adoption. The Horizons Regional Council acknowledges that there are references in the One Plan that are now dated and perhaps even obsolete, but also notes that the changes which took place

4 Available on www.wasteminz.org.nz

Palmerston North Waste Assessment following the introduction of the Waste Minimisation Act in 2010 have significantly reduced any statutory role they play in solid waste management and planning, beyond a consenting and monitoring role.

16 November 2018 2 Our City This section presents a brief overview of key aspects of the city’s geography, economy, and demographics. These key aspects influence the quantities and types of waste generated and potential opportunities for the Council to manage and minimise these wastes in an effective and efficient manner. 2.1 Manawatu-Wanganui Region Palmerston North City is one of the two main urban centres in the region, along with . Local authorities in the region comprise ten territorial authorities and the Manawatu- Wanganui Regional Council, trading as Horizons Regional Council. The region completely covers five territorial authorities (Palmerston North City and Whanganui, Manawatu, Horowhenua and Ruapehu Districts), and part of five (Tararua, Rangitikei, Stratford, Waitomo and Taupo Districts) – these five territorial authorities are also included in the regions of Waikato, Bay of Plenty, Taranaki, Hawkes Bay, and . The land area of the region covers 22,215 hectares and has a diverse geography, which is dominated by two river systems – the Manawatu, which is characterised by rolling farmland, and the Whanganui, which travels through forest-covered mountains and hills. Figure 1: Map of Region and Territorial Authority Areas

Source: http://www.localcouncils.govt.nz/lgip.nsf/wpg_URL/Profiles-Councils-Manawatu-Wanganui-Regional- Council-Main?OpenDocument

Palmerston North Waste Assessment 2.2 Physical Characteristics

2.2.1 Overview Palmerston North City has a land area of 395 square kilometres, and is located in the eastern part of the Manawatu plains near the foothills of the Tararua ranges. It is one of the two main urban centres in the Manawatu-Wanganui region (along with Whanganui). Figure 2: Map of District

Source: Palmerston North City Council

2.2.2 Geography Palmerston North is situated about 140km north of Wellington. The urban area is bordered on the southeast by the Manawatu river, while the city boundaries extend into the Tararuas. The city is predominantly flat and urban in nature, but also includes agricultural land to the south and northeast. Palmerston North is located on predominantly flat land on the northern banks of the Manawatu river; although the city extends into the foothills of the Tararua ranges to the

16 November 2018 south, and the Ruahines to the east. The small towns of Ashhurst, Bunnythorpe and Longburn have been included in the city’s area since boundary changes in 2012. 2.2.3 Climate Palmerston North’s climate is temperate with an average of 13.3C; and with average rainfall of 980mm per annum and around 200 rain free days annually. The area is known for sustained wind, especially in spring, particularly in the foothills of the Tararua and Ruahine ranges5. Close to the city are the largest series of ‘wind farms’ in the southern hemisphere, with 286 turbines providing power for around 50,000 homes6. 2.2.4 Demographics At the 2013 census, Palmerston North had 80,079 residents, making it the 8th in size out of the 67 districts in New Zealand7. This was an increase of around 3% from the 2006 census; however during this time the boundaries of the city were also extended. This change accounted for a large proportion of the additional 2,355 residents. Palmerston North’s population in 2015 was estimated to be 85,500. Statistics New Zealand projections for Palmerston North’s population in 2013 forecast a 15,300 increase between 2013 and 2043 (medium growth projection), with the city’s population reaching 98,800 by 2043. The medium 30-year growth projection of 0.6% average annual growth is lower than the national average of 0.8%. Population projections are shown in the following table: Table 1: Population Projections to 2043

Change Change 2013 – 2013 – 2043: Projection 2013 2018 2023 2028 2033 2038 2043 2043: average number annual percent

High 88,500 93,200 98,100 102,800 107,400 111,800 28,400 1.0

Medium 83,500 86,800 89,600 92,300 94,700 96,900 98,800 15,300 0.6

Low 85,000 85,900 86,400 86,700 86,500 86,000 2,500 0.1

The projections show a decline in the average rate of growth over the 30-year period covered by the projections. The average rate of growth for Palmerston North is projected to be 0.8% between 2013 and 2018, declining to 0.4% over the period between 2038 and 2043. The growth rate for New Zealand is projected to decline more quickly, slowing from a

5 Collated from www.pncc.govt.nz, www.niwa.govt.nz, and www.en.climate-data.org. 6 Summarised from www.windenergy.org.nz 7 Quickstats about Palmerston North City, on www.stats.govt.nz.

Palmerston North Waste Assessment projected annual growth rate of 1.3% between 2013 and 2018 to 0.5% between 2038 and 20438. Source: Long Term Projections for Palmerston North, May 2016 from www.pncc.govt.nz

The following table shows key demographic metrics for the district Table 2: Key Demographic Indicators (2013 census)

Demographic Households HH Size Median Home Formal Building indicators (Occupied income ownership qualifi- consents Dwellings) cations

Palmerston 29,892 2.6 27,000 62.4% 20.9% 221 North City (94%) people

New Zealand 89% 2.7 28,500 64.8% 20% NA people

Source: Compiled from http://www.stats.govt.nz/Census/2013-census/profile-and-summary- reports/quickstats-about-a-place.aspx?

The majority of the population identifies themselves as ethnically European (78.9%, a decrease from the 2006 census and slightly above the NZ average) with a second large ethnic group identifying themselves as Maori (16.5, an increase from the 2006 census and slightly above the NZ average). The city has 29,892 occupied dwellings, and a lower than average number of unoccupied dwellings (1,914, or 6% compared to 10.5% nationally). The median income in the city is $27,000, under the national average ($28,500). The proportion of permanent Palmerston North residents that own their own home is close to the national average – 62.4%, compared to 64.8% nationally. Tangata whenua are the Rangitane iwi, with local hapu including Ngāti Hineaute, Ngāti Rangiaranaki, Ngāti Rangitepaia, and Ngāti Tauira9. Palmerston North city maintains a relatively high maori population. This is largely due firstly to high numbers of Maori employed at Linton Military Camp (particularly a major expansion of the number of staff employed at the camp in the early 1990s) and a significant increase in Maori participation in tertiary education between 1996 and 2006. There are high Maori populations in the catchment regions for the tertiary institutions based in Palmerston North so increased participation in tertiary education by Maori increases the level of migration by young Maori people to the city.

8 Long Term Projections for Palmerston North, May 2016 from www.pncc.govt.nz

9 http://www.tkm.govt.nz/iwi/rangitane-north-island/#

16 November 2018 As could be expected the influence of the tertiary sector is also reflected in a slightly higher proportion of post-school qualifications compared to the country as a whole – 20.9% compared to 20%. The average household size in Palmerston North City is 2.6 people, compared with 2.7 in New Zealand as a whole. The number of single person households is expected to rise over the next 30 years, primarily due to an ageing population. The population profile for Palmerston North City in 2013 is shown in the chart below: Figure 3: Population Profile for Palmerston North City (2013 census)

65+ yrs, 13.1% 0-14 yrs, 20.0%

0-14 yrs 15 - 39 yrs 40 - 64 yrs 40 - 64 yrs, 29.1% 65+ yrs

15 - 39 yrs, 37.8%

➢ The median age (half are younger, and half older, than this age) is 33.8 years for people in Palmerston North. For New Zealand as a whole, the median age is 38 years. ➢ 13.3 percent of people in Palmerston North are aged 65 years and over, compared with 14.3 percent of the total New Zealand population. ➢ 20 percent of people are aged under 15 years in Palmerston North City, compared with 20.4 percent for all of New Zealand.

Palmerston North Waste Assessment The age distribution of the population relative to NZ as a whole is shown in the figures below. Figure 4: Total Population (Age group and sex) Palmerston North City, 2013 Census New Zealand, 2013 Census

Source: http://www.stats.govt.nz/Census/2013-census/profile-and-summary-reports/quickstats-about-a- place.aspx?request_value=14263&tabname=Ageandsex The population shows a bulge in the 15-24 year age group. This clearly reflects the influence of the tertiary sector in attracting students to the area, and the presence of two major New Zealand Defence Force bases in the region. This is balanced to a degree by relatively low numbers in the 30-44 age brackets, probably as a result of graduates moving outside of the city in pursuit of careers. There were 29,600 occupied dwellings counted in the 2013 census, and 31,806 dwellings in total; an increase of 10.8% from 2001. The number of occupied non-private dwellings (short or long term communal or transitory type accommodation) and empty dwellings increased at a faster rate than the number of occupied dwellings. The proportion of empty dwellings (4.3%) in Palmerston North was lower than the national average of 9%, reflecting the expected smaller number of holiday homes or second dwellings in the city compared to some other areas of New Zealand. The increase in non-private dwellings is likely to be related largely to the education sector (student accommodation etc) and the expansion of the New Zealand Defence Force base in the city. Occupied non-private dwellings are a significant factor in Palmerston North, with 189 occupied non-private dwellings accommodating around 2,500 people in 2013, or around 3% of the city’s population. Palmerston North also has slightly larger dwellings than the average for New Zealand (3.2 bedrooms in 2013, compared to 3.1 for New Zealand), but the number of people per household is slightly less (2.6 compared to 2.7 for New Zealand). Palmerston North City Council ratings data suggests the total number of occupied households at 30 June 2013 was 31,500. The difference is likely to be due to:

16 November 2018 • Undercounting through the census process; • Families and households temporarily away on census night, or temporarily at another address; • Change between census night 5 March and 30 June 2013; and • Dwellings considered to be one single dwelling for census purposes, but separately rated for Council purposes. Projections have been based on the Council figure of 31,500 occupied dwellings. Table 3: Households and Projected Household Growth

Number of 2013 2018 2023 2028 2033 2038 households

Palmerston 31,500 33,100 34,500 36,000 37,300 38,400 North

Average annual 320 280 300 260 220 change

Average annual 1.0% 0.8% 0.9% 0.7% 0.6% growth rate

Source: Long Term Projections for Palmerston North, May 2016 from www.pncc.govt.nz 2.3 Economy Palmerston North is the major economic hub for the Manawatu-Whanganui region for education, research health services, retailing, business services such as banking and finance, insurance, and professional services, government administration, agribusiness and logistics. The city’s growing economic influence within the region is demonstrated by the number of people continuing to work in Palmerston North from surrounding areas, and the expansion of the city’s labour market region over the past 25 years. With 34% of the regional population, Palmerston North has 48% of jobs and 49% of earnings for the region. Projected growth in the economy will lead to more industrial, commercial and residential development, all of which requires additional infrastructure capacity. The expansion of Palmerston North’s labour market has contributed to slowed population growth in the city’s urban area and employment growth in some sectors of the economy. The tertiary education, research and central government sectors play a big part in the city's economy. The tertiary education, health services, research and central government (including defence forces) sectors play a big part in the city's economy. However, businesses that support both the rural sector and nationwide wholesale and retail operations, coupled with industry- leading distribution & logistics businesses also make a significant contribution to the local economy.

Palmerston North Waste Assessment The city also has a major role as a service centre in the lower half of the . This is reflected in its 2.7 percent share of national retail sales. The largest employer in the city is the health care and social assistance sector, with 15.1 percent of all employees in the city. The sector accounts for just 11.2 percent of national employment. The tertiary education sector provides around NZ$600 million dollars a year to the local economy while the total education and training sector accounts for 12.6% of the Palmerston North workforce. The city is home to major educational and research institutions, including Massey University, UCOL - Universal College of Learning, Te Wānanga O Aotearoa and the International Pacific College (IPC). Significant research institutions based in the city in addition to Massey University include Plant and Food Research, Ag Research, Landcare Research, the Fonterra Research Centre, the Riddett Institue, the Hopkirk Research Institute and the Leather & Shoe Research Association. Council and the Manawatu District Council established the central economic development agency (CEDA) in 2016 to help build the region’s economic wealth. CEDA is responsible for many of the actions included in the Council’s economic development strategy.

16 November 2018 3 Waste Infrastructure The facilities available in Palmerston North are a combination of those owned, operated and/or managed by the Council, and those that are owned and/or operated by commercial entities or community groups. This inventory is not to be considered exhaustive, particularly with respect to the industry as these services are subject to change. It is also recognised that there are many small private operators and second-hand goods dealers that are not specifically listed. However, the data is considered accurate enough for the purposes of determining future strategy and to meet the needs of the WMA. 3.1 Summary of Waste Management in Palmerston North The figure below shows the main waste flows in Palmerston North. Figure 5: Key Waste Flows in Palmerston North

As this diagram shows, a high proportion of waste landfilled from Palmerston North is channelled through the Matthews Ave refuse transfer station (RTS), which is operated by EnviroNZ Ltd (previously Envirowaste Services). Waste from the small Council transfer station in Ashhurst is also taken to this RTS before going to landfill. Waste from Matthews Avenue RTS is bulk-hauled to Bonny Glen landfill, situated west of Marton, for disposal. Minor quantities of kerbside waste and general waste from Manawatu District are understood to be disposed of at Matthews Avenue RTS as are special wastes from Palmerston North. It has not been possible to quantify these waste streams.

Palmerston North Waste Assessment The two major waste operators in Palmerston North are EnviroWaste Services Ltd and Waste Management NZ Ltd. Midwest Disposals Ltd, owner of Bonny Glen landfill, is jointly- owned by these waste operators. Palmerston North City Council provides weekly kerbside collections of prepaid rubbish bags and a rates-funded two-stream recycling collection. These collection services are delivered by Council. Both EnviroWaste Services Ltd and Waste Management NZ Ltd provide kerbside waste collections and gantry bin services to residential and commercial customers and front- loader bin services, primarily to industrial, commercial, and institutional customers. The inventory of facilities and services has been generally categorised with reference to the (as defined by the WMA). 3.2 Disposal Facilities In April 2016, the Waste Management Institute of New Zealand (WasteMINZ) released the final version of the Technical Guidelines for Disposal to Land.10 These guidelines set out new standards for disposal of waste to land and, if the Regional Council implements the new guidelines, then there will be significant changes to the operation of cleanfill sites in the region, including tighter controls. The definitions of the four classes of landfills provided in the Guidelines are summarised in below. Class 1 - Municipal Landfill A Class 1 landfill is a site that accepts . A Class 1 landfill generally also accepts C&D waste, some industrial wastes, and contaminated soils. Class 1 landfills often use managed fill and clean fill materials they accept as . A Class 1 landfill is the equivalent of a “disposal facility” as defined in the WMA. Class 2 - C&D/Industrial Landfill A Class 2 landfill is a site that accepts non-putrescible wastes including construction and demolition wastes, inert industrial wastes, managed fill, and clean fill. C&D waste and industrial wastes from some activities may generate leachates with chemical characteristics that are not necessarily organic. Hence, there is usually a need for an increased level of environmental protection at Class 2 sites. Class 3 – Managed Fill A Class 3 landfill accepts managed fill materials. These comprise predominantly clean fill materials, but may also include other inert materials and soils with chemical contaminants at concentrations greater than local natural background concentrations. Class 4 - Cleanfill

10 Technical Guidelines for the Disposal to Land. WasteMINZ , April 2016

16 November 2018 A cleanfill is a landfill that accepts only cleanfill materials. The principal control on contaminant discharges to the environment from clean fills is the waste acceptance criteria. The actual wording used in the guidelines is provided in Appendix A.2.1 3.2.1 Class 1 Landfills There are two Class 1 landfill disposal facilities (as defined above) near Palmerston North, with none within the city boundaries. These landfills are Bonny Glen, near Marton, and Levin Landfill. The table below provides a detailed description of each landfill. Table 4: Class 1 landfills accessible from Palmerston North

Name & Capacity and Description Location Owner/Operator Consent

Municipal landfill accepting non- Bonny Glen Landfill hazardous (Manawatu Waste residential, – joint venture of commercial and Consent extended in EnviroNZ and West of Marton 2013. Anticipated Waste primarily from the life 50-80 years. Management NZ surrounding region. Ltd) Gas capture in place, largely flared off

Municipal landfill Currently landfilling accepting non- approximately 30,000 Levin Landfill hazardous residential, tpa - resource (Horowhenua commercial and consents expire in District Council, industrial solid waste 2037. At its present Levin operated by Approx 39% of waste rate of volume usage MidWest Disposals comes from inside it is projected that the Ltd) Horowhenua, consented area will remainder from Kapiti last for approximately DC 20 years.

The recent extension of the consent at Bonny Glen landfill ensures that Palmerston North has access to a Class 1 facility including a gas capture system for many decades to come. Anecdotal evidence suggests that pricing at Bonny Glen is competitive with other large landfills in the North Island, such as Hampton Downs in north Waikato and Silverstream landfill in Wellington.

Palmerston North Waste Assessment 3.2.2 Transfer Stations and Drop-off Centres RTS and drop-off centres provide for those that can’t access a landfill directly. General public access is not usually possible at Bonny Glen landfill, for example. Waste can be dropped off at these sites by the public and commercial collectors after paying a , and the waste is subsequently compacted before transport to a Class 1 landfill. There is a smaller RTS operated by Council at Ashhurst, in addition to the large Matthews Ave RTS operated by EnviroNZ. Table 5: Transfer Stations in Palmerston North

Facility Description Operation Hours Materials accepted

Ashhurst Transfer Tuesday 1 – 3pm Recycling, green Station (Mulgrave Operated by Council Saturday 10am – waste, and residual Street) 4pm waste

Mon – Fri 7am – Recycling, residual Matthews Ave 5pm waste, cleanfill, Transfer Station (31 EnviroNZ wood, whiteware, Matthews Ave) Sat and Sun 9am – 4.30pm LPG bottles

Mon – Fri 7.30am – Operated on behalf 4.30pm Ferguson Street Recycling, motor oil, of Council by City Recycling Centre Sat 8am – 4.30pm e-waste Enterprises Sun 10am – 3pm

Operated on behalf Mon – Sat 7.30am – Awapuni Resource Recycling, green of Council by City 4.30pm Recovery Centre waste Enterprises Sun midday – 4pm

Once general waste is deposited at the Matthews Ave RTS, the waste is then compacted and bulked for transport to Bonny Glen landfill. Waste from Ashhurst is transported to Matthews Ave before disposal at Bonny Glen.

3.2.2.1 Assessment of Transfer Stations and Recycling Drop-off Centres Palmerston North is relatively well catered for in terms of transfer station and drop-off facilities. Although the privately-owned transfer station in the main urban area is located in the north of the city, it is within 10-15 minutes drive of most parts of Palmerston North. The Matthews Ave Transfer Station separates out a range of materials for recycling and recovery.

16 November 2018 The Ferguson St recycling centre accepts a wide range of items including e-waste and engine oil. 3.2.3 Closed Landfills There are two closed landfills for which the Council has ongoing management and monitoring responsibility. These closed landfills are Awapuni and Ashhurst. Council carries out regular monitoring and inspection of closed landfills to ensure that they are remediated and managed according to the requirements of their resource consents. The Awapuni landfill operated from 1950 until 31 January 2007. An estimated 2.5 million tonnes of rubbish was deposited in the landfill over its lifetime. Resource Consents relating to stormwater, leachate and landfill gas remain operative until 2029. Separate resource consents are held for the green and organic waste composting and the landfill gas activities. Landfill gas is extracted from the site, through a network of 30 wells. Landfill gas is piped to the nearby waste water treatment plant (WWTP) and, along with the gas from the anerobic digestors at the WTTP, drives the gas engine to create electricity. The Ashhurst closed landfill is a small unlined landfill that was used between approximately 1950 and 1995 by the Ashhurst township and surrounding small communities for the disposal of municipal solid waste. In 1989 Council inherited the landfill from the Oroua County Council. It is estimated that approximately 15,000 m3 of rubbish was disposed of at the Ashhurst closed landfill. There are no leachate controls or gas collection systems in operation, but groundwater is from the site is monitored in accordance with the consent conditions. There is also a closed landfill in the City under private ownership – a Massey University facility at the Turitea campus. 3.2.4 Class 2-4 Landfills Research estimates that waste disposed of to land other than in Class 1 landfills accounts for approximately 70% of all waste disposed of, and these operators are not required currently to pay the waste levy to central government.11 Other disposal sites include Class 2-4 landfills and farm dumps. The Horizons ‘One Plan’ states that waste reduction activities, which are perceived as including cleanfills, will be encouraged. Cleanfill is defined as landfills only accepting: “materials such as clay, soil and rock, and other inert materials such as concrete or brick that are free of: a) Combustible, putrescible (except that cleanfill material can contain up to 5% by weight putrescible matter), degradable or leachable components b) Hazardous substances

11 Ministry for the Environment (2014) Review of the Effectiveness of the Waste Disposal Levy. The report estimates 56% of material disposed to land goes to non-levied facilities, 15% to farm dumps and 29% to levied facilities.

Palmerston North Waste Assessment c) Products or materials derived from hazardous waste treatment, hazardous waste stabilisation or hazardous waste disposal practices d) Materials that may present a risk to human health e) Liquid waste. This definition departs from the waste acceptance criteria set out in the 2016 Technical Guidelines for Disposal of Waste to Land12 in two key respects – firstly the criteria allow no more than 2% of biodegrable material by volume per load; and manufactured materials such as concrete and brick are permitted to make up no more than 5% by volume per load. Horizons states that cleanfills are a permitted activity if they accept less than 2,500m3/year and must be sited appropriately with regard to landscape type and slope stability. For this reason, and because few of these cleanfills are open to the public and many are temporary or short term associated with roading projects, it is very difficult to list these individually. Class 2 landfills can be an issue for effective and efficient waste management as, for some materials, Class 2 landfills are competing directly with other options such as composting sites and Class 1 landfills. However, Class 2 landfills are much less costly than Class 1 landfills to establish and require much lower levels of engineering investment to prevent discharges into the environment. Class 2 landfills also have much lower compliance costs than Class 1 landfills and are not required to pay the waste levy. Because of these differing cost structures, Class 2 landfills charge markedly less for disposal than Class 1 landfills. 3.2.5 Assessment of Residual Waste Management Infrastructure Bonny Glen landfill is the most significant disposal asset in the region and Palmerston North is effectively dependent on this for residual waste disposal. Dependence on disposal facilities outside of the city means that there is a lack of control in respect of critical infrastructure which presents a certain level of vulnerability. This can be mitigated to an extent through engagement in regional planning and collaboration between Council and Rangitikei District Council. A recent significant extension to the landfill’s consent has enabled it to become a genuinely regional facility with capacity for at least 50 years. Cleanfills over a certain size are able to be identified as they require resource consents to operate. Facilities under this size (2,500 m3 per annum) are permitted activities and as such are not readily identifiable. Based on the definition of cleanfill given by both MfE, it is questionable whether cleanfills are an appropriate method of disposal for some construction and demolition materials, and for tyres. For example, the MfE website states ”the disposal and storage of old and unwanted (end-of-life) tyres has a number of potential adverse environmental and health impacts”.

12 Available on www.wasteminz.org.nz

16 November 2018 Identifying alternative management options for construction and , and end-of-life tyres, is an issue for the city. The acceptance of wastes at Class 2 landfills that could potentially be more appropriately disposed of in a Class 1 landfill, or put to beneficial use such as composting, is an issue. The relatively low cost of disposal to sites other than a Class 1 landfill will drive residents’ and commercial operators’ behaviour in determining where to dispose of material, and this may limit the Councils’ options in using disposal prices as a mechanism to drive more preferable waste management practices. Increasing disposal prices could have the result of simply driving more waste to Class 2-4 disposal sites rather than incentivising recovery. 3.3 Hazardous Waste Facilities and Services The hazardous waste market comprises both liquid and solid wastes that, in general, require further treatment before conventional disposal methods can be used. The most common types of hazardous waste include: • Organic liquids, such as those removed from septic tanks and industrial cesspits • Solvents and oils, particularly those containing volatile organic compounds • Hydrocarbon-containing wastes, such as inks, glues and greases • Contaminated soils (lightly contaminated soils may not require treatment prior to landfill disposal) • Chemical wastes, such as pesticides and agricultural chemicals • Medical and quarantine wastes • Wastes containing heavy metals, such as timber preservatives • Contaminated packaging associated with these wastes.

A range of treatment processes are used before hazardous wastes can be safely disposed. Most disposal is either to Class 1 landfills or through the trade waste system. Some of these treatments result in trans-media effects, with liquid wastes being disposed of as solids after treatment. A very small proportion of hazardous wastes are ‘intractable’, and require exporting for treatment. These include polychlorinated biphenyls, pesticides, and persistent organic pollutants. There are three participants in the Palmerston North hazardous waste market; EnviroNZ (through their subsidiary, ChemWaste), Waste Management NZ Ltd, and Disbin which specialises in sanitary waste. Council held a hazardous waste collection event for households during a weekend in June 2018, in partnership with 3R. This was the first such event held by Council, and around 800kgs of waste were safely processed as a result. 3.4 Recycling and Reprocessing Facilities There are a number of processing and recycling facilities in Palmerston North that handle waste material from the city. Some of these facilities also process waste materials from outside the city. These are listed below.

Palmerston North Waste Assessment Table 6: Details of Facilities in Palmerston North

Capacity & Key services/waste Estimated Name/Operator Type Location streams Operational life

Processes Awapuni Resource Material Awapuni Kerbside recyclables from 9,000 tonnes Recovery Park / recovery Closed Palmerston North City pa Council facility landfill ongoing

Greenwaste, Awapuni Resource pallets/untreated timber, Awapuni Processes Recovery Park / Composting plasterboard, foodwaste, Closed 18,000 tonnes Council agricultural/food landfill pa ongoing processing residues

Accept metal for Awapuni recycling at a yard on the Ongoing Macauley Metals Scrap metal Closed access road to Awapuni operation Landfill RRP

Awapuni Processes Bulking and baling of OJI FullCircle Bulking Closed 14,000 tonnes paper & card landfill pa Ongoing

Valour Drive, Processes Budget Plastics Reprocessing Plastic Palmerston 4,500 tonnes North pa, ongoing

3.4.1 Recycling and Reprocessing Facilities Outside Palmerston North There are a wide range of recycling and reprocessing facilities outside the city. The key facilities are listed below. Table 7: Other Recycling and Reprocessing Facilities

Key Capacity & Estimated Name/Operator Type services/waste Location Operational life streams

Paranui Organic waste Paranui Composting N/A Composting from the region Road Foxton

Processes 10,000 Hawk Group Reprocessing Fibre (paper/card) Hawkes Bay tonnes pa, ongoing

Colour-sorted Penrose, Processes 130,000 O-I NZ Ltd Reprocessing glass Auckland tonnes pa, ongoing

16 November 2018 Otahuhu, Processes 5,500 SIMS Pacific Reprocessing Ferrous metals Auckland tonnes pa, ongoing

OJI Fibre Fibre – paper and Auckland, Processes 160,000 Reprocessing Solutions some card Kinleith tonnes pa, ongoing

Kinleith, MyNoke Vermicomposting Organic wastes Currently expanding Tokoroa

10,000 capacity however limited at Flight Plastics Reprocessing Plastic Wellington present by end markets

3.4.2 Assessment of Recycling and Reprocessing Facilities Palmerston North, with its lower north island location, has a number of potential processing options within reach in Wellington, Hawkes Bay, and Auckland for a wide range of materials. The closure of the Cairns Group facility with its capacity to accept construction and demolition waste was a significant loss to the city. Within the context of current legislative and policy arrangements there is reasonable provision for e-waste collection and recovery within the region – although there is still scope for greater levels of recovery. The cost of separate disposal of e-waste compared to landfilling is a disincentive for greater recovery.

Palmerston North Waste Assessment 4 Waste Services

4.1 Council-provided Waste Services A range of collection, drop-off, and resource recovery services are provided to Palmerston North households and businesses by Council. 4.1.1 Collection Services The tables below outline the key refuse and recycling collection services provided by Council. Table 8: Council Kerbside Collections

Kerbside Refuse collection Contract review Charges/funding collection service contractor dates

User pays charges for approximately 31,500 Weekly collection households: $2.50 Council in-house NA of residual waste per bag (can be service from 60L bags used by anyone, including businesses)

Fortnightly Targeted rates for collection of dry approximately recyclables from a 31,500 Council in-house NA 240L wheeled bin, households; user service glass from a crate, pays service for alternate weeks businesses

4.1.2 Other Council Services In addition to the services described above, there are other waste-related programmes and services provided by the Council e.g. removal of illegal dumping, and provision of litter bins. Palmerston North supports the ‘Love NZ’ recycling programme and provides recycling bins for events. 4.1.3 Waste Education and Minimisation Programmes PNCC provides a range of communication and education initiatives to inform ratepayers, schools and services users of the available waste services and to promote waste minimisation. Key communication and education initiatives that Council supports include:

16 November 2018 • Employ a Water and Waste Sustainability Coordinator, to engage with interested groups in the community with respect to waste minimisation; • Recycling and waste minimisation information for households including recycling calendars, guides, bin labels, new resident packs and no junk mail stickers; • Home composting promotion including online information and workshops; • Waste minimisation guidance for tertiary students; • Signage and posters at recycling drop-off points advising how to recycle and how materials are recycled into new products; and • Waste minimisation support for businesses. 4.1.4 Solid Waste Bylaws In addition to key strategic waste infrastructure assets, the Council also has responsibilities and powers as regulators through the statutory obligations placed upon them by the WMA. The Council operates in the role of regulator with respect to: • management of litter and illegal dumping under the Litter Act 1979 • trade waste requirements • nuisance related bylaws.

Council adopted their Waste Management and Minimisation bylaw in 2016. This is a comprehensive, wide ranging regulatory tool. 4.1.5 Hazardous Waste Council has just recently carried out their first household hazardous waste drop off event. This event collected over 800kg of household hazardous waste including DDT and Lindane. The event was held in conjunction with 3R, and trialed a pre-booking system. While the event was successful, Council currently does not have allowance in budgets for this to be held regularly. 4.1.6 Service Delivery Models At present kerbside recycling and council refuse collection services are delivered in-house, as is operation of the Awapuni RRP, and Council RTS and recycling centres. As required by the Local Government Act, Council has recently assessed their service delivery for waste management and has concluded that the in-house delivery model is providing cost-effective high-quality services. With the likely increasing complexity of waste and resource recovery arrangements needed to deliver effective and efficient waste management and minimisation, there will be a growing need for a diverse range of expertise. The abilities of the private and community sectors provide one option to meet this requirement. Service delivery models can also encompass partnership and mixed ownership arrangements and working collaboratively.

Palmerston North Waste Assessment 4.2 Assessment and Funding of Council-provided Solid Waste Collection Services Council provides a weekly residual waste collection service from user-pays bags which offers flexibility to households while also encouraging use of waste diversion options. All other services, such as the comprehensive kerbside recycling service that is available to households, are funded through general or targeted rates. This approach is likely to encourage the preferred behaviours such as recycling and other waste diversion. The risk with a user-pays bag collection service is that Council can lose market share to private sector wheeled bin-based services. Businesses can also access the kerbside recycling collection on a user-pays basis, which is likely to make recycling more feasible for those businesses that have household-type recycling streams (mixed and in smaller quantities). There are no council services for organic waste collection, and the recent hazardous waste collection was a one-off trial. There is little need for the collection and management of rural-type wastes such as agricultural chemicals and wrap. Council has a recently-adopted, comprehensive bylaw and employs a specialist waste minimisation advisor to work with householders and businesses. 4.3 Non-Council Services There are a number of non-Council waste and recycling service providers operating in the city; in particular residual waste collection from wheeled bins, and garden waste collection. The table below describes the kerbside collection services provided by the private sector. Table 9: Non-Council Kerbside Collections

Kerbside collection Refuse collection Charges/funding service provider

Waste Management, Weekly collection of User pays charges varying EnviroNZ (Budget Waste), household residual waste depending on size – 80L Lucy’s bins, Humpty from wheeled bins to 240L bins available Dumpty Bins (240L bins only)

User pays charges varying EnviroNZ (Budget Waste), Weekly or fortnightly depending on size – 80L Greensaway, Jims collection garden waste to 240L bins available; Mowing, Crewcut, from wheeled bins also large 1m3 bags from Humpty Dumpty Bins some providers (240L bins only)

16 November 2018 Regular collection of User pays charges commercial residual Waste Management, depending on type, size, waste and recycling in EnviroNZ and frequency various containers

User pays charges Regular collection of depending on type, size hazardous and medical Medi Chem and frequency of waste collection

Jims Mowing, Rubbish User pays charges and Junk Removals, Flexi Ad hoc removal of waste depending on type and Bin, Trades Mate, Budget quantity of waste Bins

4.3.1 Assessment of Non-Council Services The commercial collection market is reasonably competitive with two large private sector operators offering services, along with a number of smaller businesses offering both regular and ad hoc removal, and access to council services. The commercial market for recyclables materials also seems to be relatively well catered for with a range of collection and drop-off options. There does appear to be scope for greater diversion of organic waste from the waste stream whether this is through council or non-council services. 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. There is however a notable lack of readily available data on commercial medical and hazardous waste flows, and with better data it would be possible to better identify potential opportunities for improved waste minimisation.

Palmerston North Waste Assessment 5 Situation Review

5.1 Waste to Class 1-4 Landfills

5.1.1 Definitions Used in this Section The terminology that is used in this section to distinguish sites where waste is disposed of to land are taken from the National Waste Data Framework which, in turn, are based on those in the WasteMINZ Technical Guidelines for Disposal to Land (summarised in section 3.2). 5.2 Overview of Waste to Class 1-4 Landfills Virtually all waste from Palmerston North that is landfilled goes to Bonny Glen landfill, near Marton. There may be a very small insignificant portion that goes to the Levin landfill in Horowhenua. Some waste travels directly from the source to Bonny Glen (mainly special wastes); but the majority passes through the Matthews Ave RTS first. 5.3 Waste Quantities

5.3.1 Waste to Class 1 Landfills From the analysis of the Matthews Avenue RTS weighbridge records for 18 June - 15 July 2017, an average residual waste flow to Bonny Glen landfill of 794 tonnes per week has been calculated. As annual tonnages of waste to landfill from Matthews Avenue RTS have not been made available for this project, an annual tonnage has been estimated based on the seasonal variability of waste flows at other landfills for which annual data has been provided. Waste tonnages are generally lowest in the June-August period. Analysis of other landfills indicates that weekly waste tonnages at this time of year are generally 10% below the annual average weekly waste flow. On that basis, the 794 tonnes per week figure for the period 18 June - 15 July 2017 indicates a seasonally-adjusted total of 45,540 tonnes per annum to Bonny Glen landfill from Matthews Avenue RTS, as shown in Table 10. What is understood to be minor amounts of waste from Manawatu District are included in this total. Table 10: Annual Tonnage of Waste to Bonny Glen Landfill from Matthews Ave RTS

Weekly waste to Bonny Glen landfill: 18 June to 15 July 2017 784 tonnes per week

41,400 tonnes per Extrapolated total of waste to landfill annum

4,140 tonnes per Seasonal adjustment (+10%) annum

45,540 tonnes per Seasonally adjusted, extrapolated annual total to landfill annum

16 November 2018 5.3.2 Waste to Class 2-4 Landfills As discussed earlier in this report, there is very little information available regarding most cleanfilled waste as Horizons do not require these facilities to be consented unless they take very large quantities (over 3,500 tonnes per year). A 2011 MfE report on non-levied disposal facilities stated:13 No information about cleanfill quantities was compiled for this report because the few sites with available data are unlikely to be indicative of what is happening around the country. Several other studies have attempted to quantify the disposal of waste to Class 2-4 landfills, often on a per capita basis, with widely-varying results. In practical terms, the lack of precise data about disposal of waste to Class 2-4 landfills makes it impossible to reliably monitor any changes over time in the disposal of major waste streams, such as construction and demolition waste. Based on estimates prepared for similar councils, such as and Hamilton, there may be around 115,425 tonnes per annum going to cleanfill from Palmerston North at present. 5.3.3 Summary of Waste Disposed of to Land The previous sections have quantified the disposal of solid waste to land through two separate mechanisms: waste to Class 1 landfills and waste to Class 2-4 landfills. The disposal of solid waste to land from Palmerston North is summarised in Table 11. Table 11: Waste Disposed of to Land – 2017.

Tonnes/capita/ Waste disposed of to land Tonnes % of total annum

Levied waste to Class 1 landfills 45,540 28.1 0.532

Special 1,000 0.6 0.012

Subtotal 46,540 28.7 0.544

Waste to Class 2-4 landfills 115,425 71.2 1.350

TOTAL 161,965 1.894

13 Ministry for the Environment (2011) Consented Non-levied Cleanfills and Landfills in New Zealand: Project Report. Wellington: Ministry for the Environment

Palmerston North Waste Assessment It has been estimated that a total of 161,965 tonnes of solid waste were disposed of to land from Palmerston North in 2017. Waste disposed of at Class 2-4 landfills comprised over 71% of the total, and was equivalent to more than 1.35 tonnes per person in 2017. It should be noted that the reliability of the estimates for the different types of waste disposal varies. The data on waste to Class 1 landfills is fairly reliable, being based on weighbridge records with an adjustment for seasonality. On the other hand, the accuracy of the estimates of waste to Class 2-4 landfills cannot be determined, as the estimates are based on information provided by site operators. 5.4 Waste to Class 1 Landfills

5.4.1 Composition The composition of the overall waste stream being disposed of at Bonny Glen landfill from Matthews Avenue RTS is calculated by combining three separate waste streams: 1. Combined kerbside waste - Composition as analysed in the kerbside SWAP survey 2. General waste - Composition as analysed at the Matthews Ave RTS SWAP survey of general waste 3. Rural transfer station waste - In the absence of other data, the estimated composition is based on rural transfer station waste being composed of 60% kerbside waste and 40% general waste, as measured at Matthews Avenue RTS. The table below shows the activity source of the waste streams received at Matthews Avenue RTS. Table 12: Overall Waste Activity Sources (18 June - 15 July 2017) Number of Percentage Percentage Activity sources of waste loads at Matthews Tonnes per loads of loads of total Avenue RTS – 18 June to 15 July 2017 week surveyed surveyed weight Construction and demolition 92 21% 14% 112 T/week Industrial/commercial/institutional 108 25% 40% 321 T/week Landscaping and earthworks 16 4% 2% 19 T/week Residential 150 35% 6% 45 T/week Subtotal – general waste 366 85% 63% 496 T/week Council kerbside waste collections 8% 64 T/week 66 15% Private kerbside waste collections 29% 229 T/week Rural transfer stations 0 0% 1% 5 T/week TOTAL 432 100% 100% 794 T/week

Table 13 on the next page includes an extrapolation of the composition from the visual surveys applied to the seasonally-adjusted annual tonnage of 45,540 tonnes per annum to Bonny Glen landfill. The reliability of this extrapolation is uncertain, however, as it does not take seasonal variations of waste composition into account. The extrapolated composition results should be considered to be of an indicative nature only.

16 November 2018 Table 13: Composition of Levied Waste to Class 1 Landfills

Tonnes per Matthews Avenue RTS – overall Proportion of Tonnes per annum waste composition (18 June – 15 total week (indicative July 2017) only)

Paper 9.2% 73 T/week 4,189 T/annum Plastics 13.4% 106 T/week 6,099 T/annum Organics 31.1% 247 T/week 14,171 T/annum Ferrous metals 3.3% 27 T/week 1,524 T/annum Non-ferrous metals 0.7% 6 T/week 328 T/annum Glass 3.1% 25 T/week 1,425 T/annum Textiles 7.2% 57 T/week 3,283 T/annum Sanitary paper 5.0% 39 T/week 2,262 T/annum Rubble 9.0% 72 T/week 4,101 T/annum Timber 15.5% 123 T/week 7,076 T/annum Rubber 1.3% 11 T/week 605 T/annum Potentially hazardous 1.0% 8 T/week 475 T/annum TOTAL 100.0% 794 T/week 45,540 T/annum

5.4.2 Activity Source of Waste An analysis of the activity sources of the waste loads included in the visual survey is given in Table 14 below. The analysis includes both the four waste types that make up the general waste stream (C&D, ICI, landscaping, and residential) and the two waste types that are not classified as general waste - kerbside waste and rural transfer station waste. For this analysis, kerbside waste has been split into Council and private kerbside waste. The final column in the table shows the average weight per week of each waste type. The tonnages for kerbside waste and rural transfer station have been taken directly from the analysis of the weighbridge records. The tonnage for the remainder of the categories was based on the percentages of the general waste stream as determined from the survey. The tonnage for the general waste stream was calculated by deducting the weight of kerbside collections and rural transfer station waste from the total tonnage disposed of to Bonny Glen landfill from Matthews Avenue RTS. Table 14: Overall Waste Activity Sources (18 June - 15 July 2017)

Activity sources of waste Number of Percentage Percentage Tonnes per loads at Matthews Ave RTS loads of loads of total week (18 June – 15 July 2017) surveyed surveyed weight

Construction and demolition 92 21% 14% 112 T/week Industrial/commercial/institutional 108 25% 40% 321 T/week

Palmerston North Waste Assessment Landscaping & earthworks 16 4% 2% 19 T/week Residential 150 35% 6% 45 T/week Subtotal - general waste 366 85% 63% 496 T/week Council kerbside waste collections 66 15% 8% 64 T/week Private kerbside waste collections 29% 229 T/week Rural transfer stations 0 0% 1% 5 T/week TOTAL 432 100% 100% 794 T/week During the survey period, C&D waste comprised 14% of all waste to landfill, by weight; ICI waste 40%, and landscaping and earthworks waste 2%. Residential loads comprised 35% of all loads, but only represented 6% of the total weight. Kerbside waste collections comprised 15% of vehicle loads, but represented 37% of all waste, by weight. Kerbside waste collection vehicles were not identified as Council or private collection vehicles during the survey. The tonnage split has been calculated from the transfer station weighbridge records. 5.4.3 Diversion Potential Various materials are diverted from landfill in Palmerston North through recycling, reuse, and recovery. Services available include Council’s kerbside recycling collection, private recycling collections, recycling drop-off points, the Awapuni Resource Recovery Park, and the Matthews Ave RTS. Used clothing, reusable wood, and scrap metals can also be diverted. As well as the various drop-off options, greenwaste can also be composted at home, or collected in a private green waste collection service. Table 17 shows the proportion of the general waste currently disposed of to landfill that could potentially be diverted using existing systems and available options. The table also shows the tonnes per week of each material that could have been diverted. The data on the individual materials has been taken from the Waste Not Consulting SWAP surveys. Table 15: Diversion Potential of Palmerston North General Waste Stream – 2017

Palmerston North general waste diversion Percentage of potential 2017 – excludes kerbside waste and Tonnes per week total rural transfer stations

General waste recyclable materials

Paper - Recyclable 3.5% 18 T/week

Paper – cardboard 5.8% 29 T/week

Plastic – recyclable 0.8% 4 T/week

Ferrous metals 4.6% 23 T/week

16 November 2018 Non-ferrous metals 0.8% 4 T/week

Glass – recyclable 1.3% 6 T/week

Textiles – clothing 2.8% 14 T/week

Rubble – Cleanfill 2.9% 14 T/week

Timber – Reusable 1.2% 6 T/week

Subtotal 23.7% 118 T/week

Compostable materials

Organics - food waste 6.1% 30 T/week

Organics - greenwaste 5.3% 26 T/week

New plasterboard 2.1% 11 T/week

Subtotal 13.5% 67 T/week

TOTAL – Potentially divertable 37.3% 185 T/week

It may be possible to include new plasterboard in to the composting process at Awapuni Resource Recovery Park. Recyclable and recoverable materials make up 23.7% of general waste, or about 118 T/week. Recyclable paper, cardboard and ferrous metals were the three largest recyclable components of general waste. Compostable materials made up 13.5% of the general waste. Kitchen waste was the largest compostable component, at 6.1% of general waste. Compostable greenwaste made up 5.3% of the general waste stream, although it should be remembered that the survey was carried out in July, normally a time of year where green waste is lower than at other times. Overall, approximately 37.3% of the general waste, or 185 tonnes per week, could have been diverted from landfill disposal via various methods14. 5.5 Composition of Kerbside Refuse Kerbside refuse in Palmerston North was surveyed by SWAP on two occasions; July 2017 and November 2017. This ensures that seasonal differences (such as an increase in green waste in spring) are captured, and a reasonable annual average can be calculated.

14 Note that this is a theoretical figure, as no recovery or diversion system is capable of diverting 100% of any material from landfill disposal. Figures and breakdown taken from Waste Not Consulting’s Palmerston North City Council SWAP report, July 2017.

Palmerston North Waste Assessment The SWAP survey calculated the composition of kerbside refuse for the total waste stream, but also for individual components e.g. Council refuse bags, 120/140L wheeled bins, and 240L wheeled bins. This section presents the primary composition of the entire kerbside refuse stream first, and then explores the differences between the three components. Detailed composition data is presented in the Waste Not Consulting SWAP report. 5.5.1 Composition of the Full Kerbside Stream The composition from the kerbside SWAP survey is used to estimate the composition of the combined kerbside waste stream, including kerbside rubbish bags collected by Council and wheeled bins collected by three private operators (at the time; there are now four). The following assumptions have been made: 1. The composition of waste in 80L wheeled bins is the same as the composition of Council kerbside rubbish bags; 2. A minor amount of kerbside waste from Manawatu may be included at Matthews Ave; the quantity is not significant and the composition is assumed to be the same as Palmerston North kerbside waste; 3. Approximately 5-10% of kerbside waste originates from non-household properties, but this is assumed to have the same composition as domestic kerbside waste. The primary composition of the combined kerbside waste stream is shown below. The estimated composition of the combined waste stream has been converted into an average weekly tonnage using the tonnage figure for kerbside waste shown in Table 14. Table 16: Primary composition of Palmerston North kerbside waste (weighted average 2017)

Composition of kerbside waste (weighted average from July and Proportion of total Tonnes per week November 2017)

Paper 7.1% 20.86

Plastics 11.2% 32.73

Organics 59.3% 173.75

Ferrous metal 1.3% 3.93

Non-ferrous metal 0.8% 2.25

Glass 2.7% 7.95

Textiles 3.7% 10.97

Sanitary paper 8.9% 26.21

Rubble 2.9% 8.36

Timber 1.2% 3.63

Rubber 0.4% 1.08

Potentially hazardous 1.5% 4.31

16 November 2018

Figure 6: Primary composition of Palmerston North kerbside waste (weighted average 2017)

Rubber, 0.4% Potentially Timber, 1.2% Rubble, 2.9% hazardous, 1.5% Sanitary paper, Paper, 8.9% 7.1% Textiles, 3.7% Plastics, Glass, 2.7% 11.2% Non-ferrous metal, 0.8%

Ferrous metal, 1.3%

Organics, 59.3%

Organic material, 42% of which was greenwaste, was the largest primary component of the combined kerbside waste stream, comprising 59.3% of the total. Plastics was the second largest component, 11.2%, and sanitary paper, which includes nappies, tissues, and paper towels, 8.9%, was the third largest component. 5.5.2 Diversion Potential of Palmerston North kerbside waste Common means used by local authorities to divert domestic waste materials from landfill disposal are by providing systems for the collection or diversion of recyclable and compostable materials. Palmerston North City Council provides a kerbside recycling service to households and recyclable materials can also be dropped off at the Awapuni Resource Recovery Park, Ferguson Street recycling centre, and Ashhurst rural transfer station. For the diversion of organic materials, green waste can be disposed of separately at Matthews Avenue RTS, Ashhurst rural transfer station, or Awapuni Resource Recovery Park. Private green waste collections are also available. Both kitchen waste and green waste can be composted at home by residents. Table 17 shows the proportion of the Palmerston North combined kerbside waste stream that could have been diverted using these methods. This waste stream includes both Council kerbside rubbish bags and privately-collected wheelie bins. The table also shows the tonnes per week of each material that could have been diverted. The data on the individual materials has been taken from the Waste Not Consulting SWAP surveys.

Palmerston North Waste Assessment Table 17: Diversion Potential of Palmerston North Kerbside Waste Stream – 2017

Palmerston North kerbside waste diversion Percentage of Tonnes per week potential 2017 total

Kerbside recyclable materials

Paper - Recyclable 5.2% 15 T/week

Plastics - #1-2 2.0% 6 T/week

Ferrous metals - Steel cans 0.8% 2 T/week

Non-ferrous metals - Aluminium cans 0.1% 0 T/week

Glass - Bottles/jars 2.1% 6 T/week

Subtotal 10.2% 30 T/week

Compostable materials

Organics - food waste 30.7% 90 T/week

Organics - greenwaste 25.7% 75 T/week

Subtotal 56.4% 165 T/week

TOTAL – Potentially divertable 66.7% 195 T/week

Approximately 10.2% of the combined kerbside waste stream (or 30 T/week) could have been recycled through the kerbside recycling collection or at a drop-off facility. Paper comprised 51% of the recyclable materials. A further 56.4% could have been composted. Food waste comprised 54% of compostable materials. In total, 66.7% of kerbside waste from Palmerston North (or 195 T/week) could have been diverted from landfill disposal by either recycling or composting. Other materials, such as clothing and other metals, are also recoverable, but have not been included in these calculations. 5.5.3 Comparative Composition of Kerbside Refuse Components The data presented above is for the entire kerbside waste stream. The table below presents the primary composition data for each separate kerbside waste stream – Council bags, 120/140L wheeled bins, and 240L wheeled bins.

16 November 2018 Table 18: Primary Composition Data for each Kerbside Rubbish Collection Method

% of % of Primary % of Kg per Kg per 120/140L Kg per 240L Kg per Composition Council bag set out wheeled bin wheeled bin Category bags bins bins

Paper 7.0% 0.44 kg 0.52 kg 7.59% 1.06 kg 6.95% 1.60 kg

Plastics 14.2% 0.90 kg 1.05 kg 10.01% 1.40 kg 9.90% 2.28 kg

Organics 54.4% 3.44 kg 4.04 kg 59.37% 8.28 kg 60.53% 13.97 kg

Ferrous metals 1.0% 0.06 kg 0.08 kg 1.71% 0.24 kg 1.37% 0.32 kg Non-ferrous metals 0.9% 0.06 kg 0.07 kg 0.63% 0.09 kg 0.72% 0.17 kg

Glass 1.8% 0.11 kg 0.13 kg 2.66% 0.37 kg 3.10% 0.72 kg

Textiles 3.9% 0.25 kg 0.29 kg 4.60% 0.64 kg 3.38% 0.78 kg

Sanitary paper 13.0% 0.82 kg 0.96 kg 7.11% 0.99 kg 7.42% 1.71 kg

Rubble 1.4% 0.09 kg 0.10 kg 3.61% 0.50 kg 3.28% 0.76 kg

Timber 0.3% 0.02 kg 0.03 kg 0.75% 0.10 kg 1.76% 0.41 kg

Rubber 0.6% 0.04 kg 0.04 kg 0.22% 0.03 kg 0.30% 0.07 kg TOTAL 6.32 kg 7.43 kg 13.95kg 23.08kg

The data shows clearly that households using wheeled bins place out more waste for the kerbside refuse collection than households using Council bags. 5.5.4 Comparative Diversion Potential of Kerbside Refuse Components In addition to placing out larger quantities of waste in general, households that use wheeled bins also divert less material than households using Council bags. The table below compares the potentially divertable waste for each container type. Table 19: Potentially Divertable Materials for each Kerbside Rubbish Collection Method

% of % of Potentially % of Kg per Kg per 120/140L Kg per 240L Kg per divertable Council bag set out wheeled bin wheeled bin material bags bins bins

Kerbside recyclable materials Paper – 5.2% 0.33 kg 0.40 kg 5.6% 0.76 kg 5.1% 1.03 kg recyclable Plastics #1 - #7 2.0% 0.13 kg 0.16 kg 1.9% 0.26 kg 2.0% 0.40 kg containers

Palmerston North Waste Assessment Ferrous metals 0.7% 0.04 kg 0.05 kg 0.9% 0.12 kg 0.8% 0.17 kg – steel cans Non-ferrous metals – 0.1% 0.01 kg 0.01 kg 0.2% 0.02 kg 0.1% 0.02 kg aluminium cans Glass – bottles 1.0% 0.06 kg 0.08 kg 2.7% 0.36 kg 2.5% 0.51 kg and jars Subtotal 9.0% 0.57 kg 0.69 kg 11.3% 1.52 kg 10.6% 2.14 kg

Compostable materials Organics – 45.3% 2.86 kg 3.50 kg 27.8% 3.76 kg 24.9% 5.03 kg food waste Organics – 1.6% 0.10 kg 0.13 kg 25.3% 3.41 kg 36.7% 7.42 kg green waste Subtotal 46.9% 2.97 kg 3.63 kg 53.1% 7.17 kg 61.6% 12.45 kg TOTAL – potentially 55.8% 3.53 kg 4.32 kg 64.4% 8.70 kg 72.1% 14.59 kg divertable

Comparison of the shaded columns demonstrates that households using wheeled bins have between 1.52kg (120/140L) to 2.14 kg (240L) of potentially recyclable material in their kerbside refuse, compared to households using the Council bags at 0.69kg. Similarly, households using wheeled bins for refuse collections put out between 8.70kg (120/140L) to 14.59kg (240L) of compostable material, compared to 4.32kg for households using Council bags. The difference is particularly dramatic when looking specifically at green waste, with households using Council bags including almost no green waste at 0.13kg, compared to households using wheeled bins with between 3.41kg (120/140L wheeled bins) to 7.42kg (240L wheeled bins). This suggests that households using Council bags for refuse collection manage their green waste through other methods, such as home composting or transporting it to one of the green waste drop off or RTS points. 5.6 Diverted Materials

5.6.1 Overview of Diverted Materials Diverted materials in Palmerston North include green waste, other organic material, and recyclables such as paper, card, glass, metals and plastic. A large proportion of diverted organic waste is composted within Palmerston North at the Awapuni resource recovery park. Other materials generally leave the city for further processing, with much of the fibre (paper/card) being transported to Hawk Packaging in the Hawkes Bay or to an OJI Fibre

16 November 2018 Solutions site. Glass and metals are generally transported to Auckland, with some metals and most plastic being sold to varying markets depending on price. 5.6.2 Material Diverted Through Kerbside Recycling and Drop-Off Facilities Council holds data for their kerbside recycling collection and drop-off facilities. Table 20: Kerbside Recycling and Drop-Off Facilities

2015/16 financial 2016/17 financial 2017/18 financial Tonnes/annum year year year

Kerbside comingled 4,157 4,025 3,930 recycling

Kerbside glass 836 1,770 1,793

Drop-off comingled 341 444 476 recycling

Drop-off glass 688 790 724

Greenwaste 4,258 5,589 6,300

Other organic material composted 2,507 2,785 2,483 at Awapuni

TOTAL 12,786 15,404 15,706

This data appears to show that the amount of material diverted through kerbside collections and drop-off points has increased over the last three years, with a significant increase between the 2015/16 and 2016/17 financial years largely made up of kerbside glass, and green waste increases. 5.6.3 Composition of Kerbside Recycling Council holds composition data for their comingled kerbside recycling collection based on material recovery sales and audits. In addition, they hold data for kerbside glass collections based on material sales. Table 21: Composition of Comingled Kerbside Recycling in Palmerston North

Composition of Tonnes/ kerbside recycling – % of total annum to June 2018

Mixed paper 66.5 3,806

Palmerston North Waste Assessment Plastic containers 12.0 687

Aluminium cans 0.9 52

Steel cans 3.9 223

Contamination 16.7 956

TOTAL 100 5,723

In addition, Council diverts around 1,800 tonnes of glass per annum. 5.6.4 Commercially-Diverted Materials All available data for commercially-collected diverted materials has been provided by operators. No data has been available for some waste streams, and no attempt has been made to quantify: • Scrap metal • Concrete • Textiles • Construction and demolition wastes • Tyres • Second-hand goods Table 22: Commercially-Collected Diverted Materials

Diverted materials, excluding council and Tonnes/annum 2017 private domestic kerbside recycling collections

Cardboard/paper/containers 11,500

Plastics 450

Organics 500

TOTAL 12,450

Apart from a small amount of greenwaste that is removed from the city by a private operator, the vast majority of greenwaste from Palmerston North is processed at Awapuni Resource Recovery Park by Council. However there is a significant quantity of fibre, and a small quantity of plastics, that is collected and processed by the private sector.

16 November 2018 6 Performance Measurement

6.1 Current Performance Measurement This section provides comparisons of several waste metrics between Palmerston North and other territorial authorities. The data from the other districts has been taken from a variety of research projects undertaken by Eunomia Research & Consulting and Waste Not Consulting. 6.1.1 Per Capita Waste to Class 1 Landfills The total quantity of waste disposed of at Class 1 landfills in a given area is related to a number of factors, including: • the size and levels of affluence of the population • the extent and nature of waste collection and disposal activities and services • the extent and nature of resource recovery activities and services • the level and types of economic activity • the relationship between the costs of landfill disposal and the value of recovered materials • the availability and cost of disposal alternatives, such as Class 2-4 landfills • seasonal fluctuations in population (including tourism).

By combining Statistics NZ population estimates and the Class 1 landfill waste data in section 5.3.1 , the per capita per annum waste to landfill in 2017 from Palmerston North can be calculated as in Table 23 below. The estimate includes special wastes but excludes non- levied cleanfill materials. Table 23: Waste Disposal per Capita – Waikato/BoP Region

Calculation of per capita waste to Class 1 landfills

Population (Council 2015 estimate) 85,500

Total waste to Class 1 landfill (tonnes 2017) 45,540

Tonnes/capita/annum of waste to Class 1 0.533 landfills

Table 24: Per Capita Waste to Class 1 Landfills Compared to Other Districts

Overall waste to landfill (excluding cleanfill Tonnes per capita and cover materials) per annum

Gisborne District 2010 0.305

Palmerston North Waste Assessment Waimakariri District 2012 0.311

Westland District 2011 0.331

Carterton/Masterton/South Wairarapa 0.352 Districts 2015

Ashburton District 2014-15 0.366

Tauranga and WBoP District 2010 0.452

Napier/Hastings 2012 0.483

Southland region 2011 0.500

Wellington City & Porirua City 2015 0.507

Christchurch City 2012 0.524

Taupo District 2013 0.528

Palmerston North 2017 0.533

Kāpiti Coast District 2015 0.584

Wellington region 2015 0.608

New Plymouth District 2010 0.664

Hamilton City 0.668

Queenstown Lakes District 2012 0.735

Rotorua District 2009 0.736

Auckland region 2012 0.800

Upper Hutt City & Hutt City 2015 0.874

The districts with the lowest per capita waste generation tend to be rural areas or urban areas with relatively low levels of manufacturing activity. The areas with the highest per capita waste generation are those with significant primary manufacturing activity or with large numbers of tourists.

16 November 2018 Palmerston North is slightly higher than some other similar areas such as Wellington/Porirua cities and , but lower than others such as , Hamilton, and Rotorua15. 6.1.2 Per Capita Domestic Kerbside Refuse to Class 1 Landfills The quantity of domestic kerbside refuse disposed of per capita per annum has been found to vary considerably between different areas. There are several reasons for this variation. Kerbside refuse services are used primarily by residential properties, with small-scale commercial businesses comprising a relatively small proportion of collections (typically on the order of 5-10%). In districts where more businesses use kerbside wheelie bin collection services - which can be related to the scale of commercial enterprises and the services offered by private waste collectors - the per capita quantity of kerbside refuse can be higher. There is relatively little data in most areas on the proportion of businesses that use kerbside collection services, so it is not usually possible to provide data solely on residential use of kerbside services. Evidence indicates that the most important factor determining the per capita quantity of kerbside refuse is the proportion of households that use private wheelie bin collection services. Households that use private wheelie bins, particularly larger, 240-litre wheelie bins, tend to set out greater quantities of refuse than households that use refuse bags. As a result, in general terms the higher the proportion of households that use private wheelie bins in a given area, the greater the per capita quantity of kerbside refuse generated. The disposal rate of domestic kerbside refuse for Palmerston North has been calculated to be 180kg per capita per annum in 2017. Table 25 compares the per capita rate of disposal of kerbside refuse in Palmerston North with other urban areas in New Zealand. Data for the other districts has been taken from SWAP surveys conducted by Waste Not Consulting. Table 25: Per Capita Disposal of Kerbside Refuse – Comparison with Other Areas

District and year of survey Kg/capita/annum Comment

Fortnightly 140-litre refuse Christchurch City 2011 110 wheelie bin. Weekly organic collection

Range of legacy council Auckland Council 2012 160 services.

Palmerston North 180

15 Note that this was prior to Lakes Council introducing improved kerbside services.

Palmerston North Waste Assessment Rates-funded refuse bags, Hamilton City 2013 182 max. 2 per week

Tauranga City and Western User-pays bags in Tauranga. 183 Bay of Plenty District 2010 No council service in WBoP.

Estimate based on SWAP Wellington region 2014/15 206 surveys at Silverstream landfill and Kāpiti Coast

Taupo District 2013 212 User-pays refuse bags

User-pays refuse bags Hastings District/Napier (Hastings) & rates-funded 214 City 2012 bags max. 2 bags/week(Napier)

Council rates-funded Rotorua District 2009 216 Kleensaks. No kerbside recycling service

Of the urban areas that have been assessed, Christchurch City has the lowest per capita disposal rate of kerbside refuse. This is associated with the diversion of organic waste through the council's kerbside organic collection and the council's high market share. Rotorua had the highest disposal rate of the urban areas shown in the table in 2009. This is associated with the high proportion of households in Rotorua that used private collector wheelie bin services and the absence of kerbside recycling services (at the time of this data). 6.1.3 Per Capita Kerbside Recycling Per capita recycling rates for district/city are calculated in Table 26. Table 26: Per Capita Kerbside Recycling

Kerbside 2017/18 recycling financial (tonnes) year

Glass 1,793

Other material 3,930

Total kerbside 5,723 recycling

Population 85,500

Kg/capita/annum 67

16 November 2018 Table 27: Per Capita Kerbside Recycling – Kg/Capita/Annum

District Kg/capita/annum System Type

Napier City Council 52 kg Fortnightly bags or crates

Wellington region 53 kg Various systems

Weekly bags or crates Ashburton District 62 kg depending on area

Private wheelie bin collection (note that this Tauranga City Council 65 kg was before glass was excluded)

Fortnightly glass crate, Palmerston North City 67 kg fortnightly comingled 240L Council wheeled bin

Fortnightly 240-litre City Council 69 kg wheeled bin, commingled

Weekly/Fortnightly 55-litre Waipa District 73 kg crate, separate paper collection

Weekly 55-litre crate, Waikato District 74 kg separate paper collection

Fortnightly 240-litre City 77 kg wheeled bin, fortnightly crate for glass

Horowhenua District 81 kg Weekly crate

Fortnightly 240-litre commingled wheelie bins or Auckland Council 84 kg 140-litre wheelie bin with separate paper collection

Waimakariri District Fortnightly 240-litre 85 kg Council wheeled bin, commingled

Weekly 45-litre crate, Hamilton City Council 86 kg separate paper collection

Fortnightly 240-litre Christchurch 109 kg wheeled bin

Palmerston North Waste Assessment While data on kerbside recycling collections is readily available, accurate and reliable data relating to the total quantity of diverted materials, which includes commercial recycling, is not available for most districts. 6.1.4 Council Bag Share of Domestic Kerbside Refuse Market To determine the relative numbers of the different bin sizes in use, the two major private waste operators were asked to provide the relevant data. This data was provided by one of the private waste operators. Based on this, it is assumed that 12% of bins in service are 80- litre bins, 24% are 120/140-litre bins, and 64% are 240-litre bins. It has been further assumed that data provided by the single private waste operator is representative of all kerbside waste wheelie bins. The share of the kerbside refuse collection market is summarised below. Table 28: Estimated Usage of Different Waste Receptacles

Council 80L 120/140L 240L Estimated usage rubbish wheeled wheeled wheeled TOTAL bags bins bins bins

Assumed percentage NA 12% 24% 64% 100% of bins in service

Percentage of total weight in kerbside 22% 5% 15% 59% 100% waste

Tonnes/week 64 14 43 172 293

The key risk for Council is that any attempt to divert material from landfill through kerbside recycling or any new services will be hampered by lack of control over the refuse collection market. This applies particularly to those customers using 240L wheeled bins, as data shows that these containers are far more likely to include recyclables and organic waste.

16 November 2018 7 Future Demand and Gap Analysis

7.1 Future Demand There are a wide range of factors that are likely to affect future demand for waste minimisation and management. The extent to which these influence demand could vary over time and in different localities. This means that predicting future demand has inherent uncertainties. Key factors are likely to include the following: • Overall population growth • Economic activity • Changes in lifestyle and consumption • Changes in waste management approaches

In general, the factors that have the greatest influence on potential demand for waste and resource recovery services are population and household growth, construction and demolition activity, economic growth, and changes in the collection service or recovery of materials. 7.1.1 Population Population projections are shown in the following table: Table 29: Population Projections to 2043

Change Change 2013 – 2013 – 2043: Projection 2013 2018 2023 2028 2033 2038 2043 2043: average number annual percent

High 88,500 93,200 98,100 102,800 107,400 111,800 28,400 1.0

Medium 83,500 86,800 89,600 92,300 94,700 96,900 98,800 15,300 0.6

Low 85,000 85,900 86,400 86,700 86,500 86,000 2,500 0.1

7.1.2 Economic Activity Employment growth over the next ten years is expected to be in the vicinity of 1.3%, or around 700 additional people employed. Key sectors predicted to contribute much of Palmerston North’s growth over the next 30 years are health care and social assistance, construction, logistics, and public administration and safety. Other factors that could result in additional growth in the city over the next 20 years include: • Major capital investment projects – for Massey University, the district health board, Linton military camp, and Ohakea airforce base. These projects will have an impact particularly in the construction sector.

Palmerston North Waste Assessment • Immigration to Australia has declined markedly during the period 2015 – 2018. If this trend continues, Palmerston North’s population growth could exceed forecasts. • Housing prices nationally, but in particular in Auckland, appears to be encouraging movement from urban centres to rural cities like Palmerston North. For reference, Figure 7 below shows the growth in municipal waste in the OECD plotted against GDP and population. Figure 7: Municipal Waste Generation, GDP and Population in OECD 1980 - 2020

Research from the UK16 and USA17 suggests that underlying the longer-term pattern of household waste growth is an increase in the quantity of materials consumed by the average household and that this in turn is driven by rising levels of household expenditure. The relationship between population, GDP, and waste seems intuitively sound, as an increased number of people will generate increased quantities of waste and greater economic activity is linked to the production and consumption of goods which, in turn, generates waste. Total GDP is also a useful measure as it takes account of the effects of population growth as well as changes in economic activity. The chart suggests that municipal solid waste growth tracks above population growth but below GDP. The exact relationship between GDP, population, and waste growth will vary according to local economic, demographic, and social factors. As Palmerston North’s population is anticipated to experience a steady but small growth, with this growth decreasing over time, it is likely that Palmerston North will experience an approximately similar increase in waste generated assuming no change to waste behaviour or resource recovery rates.

16 Eunomia (2007), Household Waste Prevention Policy Side Research Programme, Final Report for Defra, London, England 17 EPA, 1999. National Source Reduction Characterisation Report For Municipal Solid Waste in the United States

16 November 2018 7.1.3 Changes in Lifestyle and Consumption Community expectations relating to recycling and waste minimisation are anticipated to lead to increased demand for recycling services. Consumption habits will affect the waste and recyclables generation rates. For example, there has been a national trend related to the decline in newsprint. In New Zealand, the production of newsprint has been in decline since 2005, when it hit a peak of 377,000 tonnes, falling to 276,000 tonnes in 2011.18 Further indication of the decline in paper consumption comes from the Ministry for Primary Industry statistics shown in Figure 8. Figure 8: Apparent Paper Consumption per Capita

Apparent consumption per capita (kg) 250

200

150

100

50

0 2007 2008 2009 2010 2011 2012 2013 2014

Anecdotally, this has been accompanied by an increase in the use of printed direct mail (‘junk mail’) both in real terms and proportionally. This presents challenges for fibre recycling as this is a less desirable recycling commodity. The ongoing growth in electronic devices will ensure that e-waste continues to be a growing waste stream, with (for example) data showing that households now tend to access the internet through multiple devices within the home and out, rather than a single home computer19. 7.1.4 Changes in Waste Management Approaches There are a range of drivers that mean methods and priorities for waste management are likely to continue to evolve, with an increasing emphasis on diversion of waste from landfill and recovery of material value. These drivers include: • Statutory requirement in the Waste Minimisation Act 2008 to encourage waste minimisation and decrease waste disposal – with a specific duty for TAs to promote effective and efficient waste management and minimisation and to consider the waste hierarchy in formulating their WMMPs. • Requirement in the New Zealand Waste Strategy 2010 to reduce harm from waste and increase the efficiency of resource use.

18 http://www.nzherald.co.nz/business/news/article.cfm?c_id=3&objectid=10833117 19 Data from www.stats.govt.nz ‘Household Use of Information and Communication Technology’ accessed September 2018

Palmerston North Waste Assessment • Increased cost of landfill. Landfill costs have risen in the past due to higher environmental standards under the RMA, introduction of the Waste Disposal Levy (currently $10 per tonne) and the New Zealand Emissions Trading Scheme. While these have not been strong drivers to date, there remains the potential for their values to be increased and to incentivise diversion from landfill • Collection systems. In brief, more convenient systems encourage more material. An increase in the numbers of large wheeled bins used for refuse collection, for example, drives an increase in the quantities of material disposed of through them. Conversely, more convenient recycling systems with more capacity help drive an increase in the amount of recycling recovered. • Waste industry capabilities. As the nature of the waste sector continues to evolve, the waste industry is changing to reflect a greater emphasis on recovery and is developing models and ways of working that will help enable effective waste minimisation in cost-effective ways. • Local policy drivers, including actions and targets in the WMMP, bylaws, and licensing. • Recycling and recovered materials markets. Recovery of materials from the waste stream for recycling and reuse is heavily dependent on the recovered materials having an economic value. This particularly holds true for recovery of materials by the private sector. Markets for recycled commodities are influenced by prevailing economic conditions, by commodity prices for the equivalent virgin materials, and by market controls in key destinations such as China. The risk is linked to the wider global economy through international markets, and the recent impact of the China National Sword policies has demonstrated this. 7.1.5 Summary of Demand Factors The analysis of factors driving demand for waste services in the future suggests that changes in demand will occur over time but that no dramatic shifts are expected, with a possible exception of increasing construction activity. If new waste management approaches are introduced, this could shift material between disposal and recovery management routes. Population and economic growth will drive moderate increases in the waste generated. The biggest change in demand is likely to come about through changes within the industry, with economic and policy drivers leading to increased waste diversion and waste minimisation. 7.2 Future Demand – Gap Analysis The aim of waste planning at a territorial authority level is to achieve effective and efficient waste management and minimisation. The following ‘gaps’ have been identified: • Significant proportions of organic waste going to landfill, with food waste present across all kerbside refuse collection systems. • A significantly higher proportion of divertable material in refuse placed out for private wheeled bin collections, including the presence of green waste which is very insignificant in the Council refuse bag collection • Low Council market share in the domestic kerbside refuse collection market • Lack of facilities to recycle or otherwise divert construction and demolition waste, in particular with a predicted increase in construction activity

16 November 2018 • Licensing provisions in the Council waste bylaw not yet implemented, and so little data available on private operator activities and non-Council waste streams in general • Lack of regular ongoing facilities to manage household hazardous waste. 7.2.1 Waste Streams Composition data discussed earlier in section 5.4 showed that there is significant scope to divert more from the domestic residual waste stream, and also scope to divert from the commercial waste stream (although less certain in quantities). Priority waste streams that could be targeted to further reduce waste to landfill would include: (e.g.) • More kerbside recyclables both from domestic and commercial properties • Organic waste, particularly food waste both from domestic and commercial properties; and garden waste from households that use private wheeled bin refuse collection services • Construction and demolition waste is a significant part of the waste stream which may be able to be recovered • E-waste collection and processing capacity in the district, while better than many areas, has room for improvement • Industrial and commercial waste generally presents scope for increased diversion, with paper/card the main material type currently diverted • Waste tyres may not be a large proportion of the waste stream, however the effectiveness of the management of this waste stream is unknown. Issues with management of this waste stream have recently been highlighted nationally Infrastructure to manage the increased quantities and new waste streams will be required. 7.2.2 Hazardous Wastes Council recently carried out a one-off household hazardous waste collection event, which collected a significant quantity of waste and some potentially quite dangerous material types. There is a general lack of facilities in the city for hazardous waste generally, but particularly for household quantities of hazardous waste.

7.2.2.1 Medical Waste Medical waste can be an issue at home and in medical facilities. Generally it is comprised of: • Hazardous waste (which can be sharps, such as needles, or non-sharps such as infectious waste or radioactive); • (such as potentially infectious bodily fluids); and • Non-hazardous waste (which is general waste or recyclables). At home, non-hazardous waste can generally be managed through usual general refuse and recycling services (although there are some exceptions through either the size of the item, or the sheer quantity). However, the management of hazardous and controlled wastes at home can be difficult, and with the increasing prevalence of in-home medical care, this is becoming a more significant problem.

Palmerston North Waste Assessment Anecdotally, a significant proportion of in-home medical waste is disposed of through general waste and recycling systems20. This could result in significant health and safety concerns for the collection and processing staff. Ideally, in-home medical care would include provision for appropriate handling and disposal of medical wastes. However, for various reasons such as lack of awareness or cost, this is not always the case. For healthcare in medical facilities, The Pharmacy Practice Handbook states:21 4.1.16 Disposal of Unused, Returned or Expired Medicines Members of the public should be encouraged to return unused and expired medicines to their local pharmacy for disposal. Medicines, and devices such as diabetic needles and syringes, should not be disposed of as part of normal household refuse because of the potential for misuse and because municipal waste disposal in landfills is not the disposal method of choice for many pharmaceutical types. Handling and disposal should comply with the guidelines in NZ Standard 4304:2002 – Management of Healthcare Waste. While Council is not responsible for the provision of medical waste management services for either home-based care or medical facilities, it would be beneficial for Council to work proactively with DHBs and other medical service providers to ensure that appropriate services are being offered and put in place.

7.2.2.2 E-waste Without a national scheme, the e-waste treatment and collection system will continue to be somewhat precarious. Currently, companies tend to cherry-pick the more valuable items, such as computers and mobile phones. As a result, the more difficult or expensive items to treat, such as CRT TVs and domestic batteries, will often still be sent to landfill. Householders in Palmerston North can currently dispose of e-waste (including battieres) at the Ferguson Street recycling centre.

20 Of 7,145 patients cared for at home by Capital & Coast DHB staff in 2016, only 200 had a specific medical waste collection service in place. https://www.stuff.co.nz/dominion-post/news/93705822/needles-sanitary- waste-and-pharmaceuticals-putting-waste-workers-at-risk 21 https://nzpharmacy.wordpress.com/2009/06/09/disposal-of-unwanted-medicines/

16 November 2018 8 Initial Review of the 2012 Waste Management and Minimisation Plan As required by the WMA, Council has carried out a review of their last WMMP, which was adopted in December 2012. 8.1 Data As the kerbside services, drop-off centres and MRF are provided in-house, Council has access to very detailed data regarding these areas. However, there has been some difficulty accessing data prior to the 2015/16 financial year due to changes in the way that data is recorded, staff, and IT systems generally. Data on privately-provided and controlled services remains difficult to access in a consistent way. However, the recent adoption of a solid waste management bylaw should improve this situation, as licensing and data collection systems are introduced. 8.2 Key Issues The key issues identified in the process of preparing the last WMMP were: • Data and monitoring, with lack of data on the overall waste flows and monitoring of the various organisations involved; • Regulation and in particular the use of this tool to address the first issue, and to reduce illegal management practices; • The need for increased communication and education; • Priority waste streams requiring focus such as non-household waste (especially small to medium businesses), organic waste (in particular food waste), construction and demolition waste, and potentially reusable items; • Economic development opportunities; • Better management of liquid and hazardous wastes; and • The need to regularly evaluate different service delivery models.

These issues were all addressed in the 2012 WMMP action plan, with the exception of the service delivery model review which was captured under the LGA section 17A service review provisions. 8.3 New Guidance New guidance from MfE on Waste Management and Minimisation Planning was released during 2015. The 2012 WA and WMMP, while consistent with the guidance at the time they were written, do not fully align with the new (2015) MfE Guidance. The new guidance places more emphasis on funding of plans, inclusion of targets and how actions are monitored and reported. The 2012 documents did not provide data in accordance with the National Waste Data Framework, as suggested by the new guidance.

Palmerston North Waste Assessment 8.4 Actions The table below shows the actions from the previous WMMP, and a brief comment on the extent to which each has been achieved. Table 30: Review of the Previous WMMP Action Plan

Objective Specific Action Implementation

Diversion of waste to beneficial use

Investigate feasibility of food Completed waste collection

Investigate feasibility of green Completed waste collection Increase organic waste Investigate feasibility of Trial undertaken, no further action utilisation composting of nappies taken based on results

Investigate feasibility of Completed; sludge now diverted from beneficial reuse of landfill and composted sludge

Increase Investigate feasibility of commercial improving/coordinated Completed waste collection of commercial sector recycling recycling

Increase Investigate demand for recycling extending recycling collection Completed collection service areas

Improve Implement recycling at major Some progress made accessibility events of recycling in public places Implement recycling bins in Some ‘Love NZ’ public place recycling public places bins introduced

Improvements/provision of additional recycling drop-off Achieved and ongoing points – increase range of products accepted for recycling

Regulation of provision and use of collection services

16 November 2018 Regulate waste collection to help ensure Develop bylaws to regulate waste waste collection services and Completed collected is the use of those services put to beneficial use where feasible

Monitor and collect data to Analyse information provided help direct as result of implementation of In progress future bylaw services

Protect the Officers began investigations with a environment Provision of clean-fill disposal local provider; however these by regulation areas discussions halted when the company of waste changed hands disposal Provision of hazardous Trial hazardous waste collection event waste/battery collection in 2018

Develop plans for management No specific plan; part of general waste and minimisation of hazardous activity plan wastes

Review efficiency of operations Completed Reduce to reduce costs operational Review glass collection costs to methods to reduce wastage Completed minimise the volumes cost of the activity to Review contamination of ratepayers recycled materials to increase Completed sales

Review process for managing illegal dumping and subsequent Completed prosecution

Palmerston North Waste Assessment Ensure funding for waste management activities Review Council’s Revenue and promotes re- Funding Policy for waste Completed use and management activity recycling and penalises disposal to landfill

Find alternate funding sources to Develop additional lease sites help subsidise for waste minimisation Partially completed; ongoing waste activities minimisation activities

Develop business cases for cost Several business cases completed (for neutrality (user pays) for new e.g. e-waste, battery recycling, oil recycling products recycling)

Advocate product stewardship Progressed and ongoing and lobby central government

Establish partnership for ‘User- See above pays’ recycling i.e. e-waste

Allocate funds for community groups to carry out waste Funds allocated until introduction of Increase minimisation education or internal water and waste sustainability overall waste minimisation events (e.g. coordinator diversity and Super Grans volume of workshops) recycling in Palmerston Progressed; now replaced by the Continue ‘ academy’ North employment of the waste and waste with Massey University (R&D) sustainability coordinator.

Work with transfer station owners to enhance hazardous Progressed and ongoing waste collection facilities

16 November 2018 Redevelop council website to include up to date information Progressed and ongoing and links to other websites promoting waste minimisation

Produce a series of factsheets explaining and promoting re- Achieved – online guide to recycling Increase use and recycling activities in public Palmerston North awareness and Investigate re-use/recycling participation promotion at events in Achieved – recycling trailers in waste Palmerston North (Expos at minimisation Arena etc) activities Continue school education Completed programmes

Investigate introduction of additional public education Completed programmes and media advertising

Increase Improve public information public about the correct procedures awareness of Completed for managing hazardous wastes hazardous including medical wastes wastes

Many of the actions from the previous WMMP referred to ‘investigations’ of various issues. While these investigations have been undertaken, in many cases no changes to services have been made. These issues, such as food waste and garden waste collections, will be ongoing areas of work for Council. Significant progress has been made on other actions, such as public education and engagement, and these will continue to be a core part of solid waste activities for Council.

Palmerston North Waste Assessment 9 Statement of Options This section sets out the range of options available to the Council to address the key issues that have been identified in this Waste Assessment. Options presented in this section would need to be fully researched, and the cost implications understood before being implemented. 9.1 Key Issues to Be Addressed by WMMP The key issues identified in this Waste Assessment are listed below. Addressing these issues will ensure that Council is meeting their statutory obligations, and improving waste management and minimisation in Palmerston North. • A significant proportion of waste going to landfill is organic waste, with food waste present across all kerbside refuse collection systems. • There is a significantly higher proportion of divertable material in refuse placed out for private wheeled bins collections, including the presence of green waste which is insignificant in the Council refuse bag collection • Council has low market share in the domestic kerbside refuse collection market • Lack of facilities to recycle or otherwise divert construction and demolition waste, in particular with a predicted increase in construction activity • Licensing provisions in the Council waste bylaw are not yet implemented, and so there is little data available on private operator activities and non-Council waste streams in general • Data on Council-managed waste streams is variable and in some cases difficult to access • There are no regular ongoing facilities to manage household hazardous waste • Community engagement, understanding and awareness of waste issues could be improved further • More recyclables could be diverted from both domestic and commercial properties rather than going to landfill • E-waste collection and processing capacity in the district, while better than many areas, has room for improvement • Industrial and commercial waste generally presents scope for increased diversion, with paper/card the main material type currently diverted The table below sets out the options for Council to address these key issues.

16 November 2018 9.2 Regulation Impact on Ref Option Issues Addressed Current/Future Councils’ Role Demand

Encourages better Data collection and Implement the solid management of maintenance of R1 waste bylaw waste streams and Regulator performance provisions gives access to better standards data

Gives access to better Lobbying for a Ensures consistency data and enables regional or national in data quality and R2 wider benchmarking Lobbying data collection availability on a larger and performance system scale assessment

Gives access to better data and ensures that Data collection and waste is not disposed Introduce a cleanfill assurance that R3 of to cleanfill that Regulator bylaw correct materials are would be better going to cleanfill managed through other pathways

Encourages diversion Amend the existing Higher proportions of of waste through bylaw conditions to recyclables and R4 existing methods and Regulator exclude the use of garden waste in 240L services (home 240L wheeled bins wheeled bins composting, Council

Palmerston North Waste Assessment for household refuse provided for refuse recycling, private collections collections sector garden waste)

9.3 Measuring and Monitoring Impact on Ref Option Issues Addressed Current/Future Councils’ Role Demand

Status quo – occasional SWAP audits, recycling No impact – status Maintain existing M1 audits, and quo arrangements monitoring through service delivery

Addresses current Increase monitoring Improve data gaps in to provide more collection and understanding on information on analysis in-house, and Better quality data on certain waste commercial and make use of M2 wider range of waste streams. Better data industrial waste regulatory tools to types could enable Council streams, and changes collect data on non- to improve and target in Council data over council waste services more time streams appropriately

16 November 2018 9.4 Education and Engagement Impact on Ref Option Issues Addressed Current/Future Councils’ Role Demand

Status quo – engagement with the community and industry via the No impact – status Maintain existing EE1 waste minimisation No change quo arrangements advisor, continue schools education, website improvements etc.

Opportunity for Improved community and understanding of Initiate wider industry to improve needs in the city and Initiate group and engagement with their engagement, service gaps, and who facilitate, possibly industry, community, understanding, and is best to address EE2 with low-level and other agencies awareness of waste them. Increased funding for project through a community issues, and build responsibility for work. waste action group closer relationships waste management with other agencies within the such as DHB community.

Palmerston North Waste Assessment 9.5 Collection & Services Impact on Ref Option Issues Addressed Current/Future Councils’ Role Demand

Continue to provide No impact – status kerbside recycling CS1 Status quo No issues quo and user-pays bag collection for rubbish.

Could divert up to Would reduce waste 70% of food waste quantities to landfill from the residual and environmental Introduce a city-wide waste stream or impact of waste CS2 weekly food waste around 3,000 tonnes disposal. A food Service provision collection per annum. The waste collection current diversion rate might cost around for food waste is $40 per household 5.4%. per annum.

Could divert up to Would reduce waste 60% of garden waste quantities to landfill and environmental Introduce a city-wide from the residual impact of waste garden waste waste stream or CS3 disposal. A green Service provision collection (weekly or around 2,500 tonnes waste collection fortnightly) per annum. The current diversion rate might cost around for garden waste is at $80 per household least 54.5% (excludes per annum.

16 November 2018 home composting etc).

Encourages increased use of existing diversion options Increased market such as kerbside Partly fund bagged share; collection cost recycling, home refuse collection component rates composting and Amending funding CS4 through general rates funded and disposal garden waste policy or targeted rates (variable) component collections due to user-pays funded reduced use of wheeled bins for kerbside refuse collections

Encourages increased use of existing diversion options such as kerbside Change the Council Increases Council recycling, home user-pays refuse market share through composting and Service provision CS5 collection to a provision of a more garden waste change wheeled bin competitive refuse collections due to collection collection service reduced use of large wheeled bins for refuse collections; more data and understanding of

Palmerston North Waste Assessment kerbside waste streams

Identify potential new service areas, Increased access Provides additional and extend/add Provide additional through diversion options to service provision. CS6 services to the services such as commercial This could involve commercial sector recycling and customers new waste streams, organics collection containers, or service frequencies

Implement the Withdraw from provisions of the solid Customers have collection services This option is unlikely waste management CS7 options through the altogether and take a to increase diversion bylaw fully and private sector market regulatory role only regulate the industry using these tools

9.6 Infrastructure Impact on Ref Option Issues Addressed Current/Future Councils’ Role Demand

Maintain operation of No impact – status IN1 Status quo No change existing RDOPs and quo Awapuni RRC

16 November 2018 Accommodate some Fund development Relocate and improve Extend provision for future demand and IN2 and maintain Ashhurst drop-off and recovery allow additional operations diversion

Provide diversion Enable additional Incorporate C&D Fund development methodology for diversion of a IN3 recovery at Awapuni and maintain additional waste growing waste RRC operations stream stream

Provide diversion Enable additional Incorporate ICI Fund development methodology for diversion of a IN4 recovery at Awapuni and maintain additional waste growing waste RRC operations stream stream

9.7 Leadership and Management Impact on Ref Option Issues Addressed Current/Future Councils’ Role Demand

Using the provisions in the WMA will help Advocate to central Advocate to central government for Addresses problem to ensure that the government for stronger regulation LM1 waste streams at the true cost of waste extended producer and extended source management of a responsibility product is reflected in producer its price. Product responsibility. stewardship schemes

Palmerston North Waste Assessment for difficult waste Work with other streams such as e- councils and agencies waste and tyres will to support similar help Council provide lobbying efforts. management options for these waste streams.

Work closely with mana whenua, Encourage the community groups, Successful community be more and the private implementation will involved in waste Coordinate and LM2 sector to progress enable increased management, and support initiatives. opportunities for waste diversion potentially increase increased waste waste diversion. diversion

9.8 Summary Table of Potential Scenarios The above options can form an almost infinite number of combinations. To simplify consideration of the options, high level scenarios with logical combinations of the above options are laid out in the table below. The scenarios are for illustration and can be amended.

Monitoring & Leadership & Scenario Name Collections Infrastructure Regulation Education Measuring Management

Weekly kerbside Existing Existing Awapuni RRC, user-pays rubbish Solid Waste Occasional SWAP education involvement in Status Quo RDOPs at bag collection; Bylaw surveys initiatives and local government Ferguson St, weekly kerbside staffing lobbying to

16 November 2018 recycling Bunnythorpe, central collection with Ashhurst government glass one week, comingled recycling the other (targeted rate) Food waste collection to businesses.

Increased As above, with Education lobbying to the addition of a Bylaw schedules Increased data increased to central Scenario 1: rates-funded No change amended as collection include new government and weekly food necessary through licensing services closer working waste collection with community

As per status quo, Increased with the addition Education lobbying to Bylaw schedules Increased data of a rates-funded increased to central Scenario 2: No change amended as collection fortnightly food include new government and necessary through licensing and garden waste services closer working collection with community

Education Bylaw schedules Increased data Increased Relocate and increased to Scenario 3: As per scenario 1 amended as collection lobbying to extend Ashhurst include new necessary through licensing central services government and

Palmerston North Waste Assessment closer working with community

As per scenario 1, Increased with user-pays Education lobbying to rubbish bags Bylaw schedules Increased data increased to central Scenario 4: partly subsidised As per scenario 3 amended as collection include new government and through necessary through licensing services closer working general/targeted with community rate

As per scenario 1, with the user- Increased As per scenario 3, pays rubbish Education lobbying to with the addition Bylaw schedules Increased data collection increased to central Scenario 5 of C&D and ICI amended as collection changed to a include new government and material recovery necessary through licensing fortnightly rates- services closer working at Awapuni RRC funded wheeled with community bin (120/140L)

As per scenario 2, with the user- Increased pays rubbish Education lobbying to Bylaw schedules Increased data collection increased to central Scenario 6 As per scenario 5 amended as collection changed to a include new government and necessary through licensing fortnightly rates- services closer working funded wheeled with community bin (120/140L)

16 November 2018 Council makes use of provisions to regulate Increased industry, e.g.240L Education focus lobbying to Council withdraws Increased wheeled bin ban changed to central Scenario 7 from kerbside No change monitoring via for rubbish, reflect change in government and services licensing systems compulsory service provision closer working recycling with community provision, licensing

Palmerston North Waste Assessment

10 Statement of Council’s Intended Role

10.1 Statutory Obligations and Powers Councils have a number of statutory obligations and powers in respect of the planning and provision of waste services. These include the following: • Under the WMA each Council “must promote effective and efficient waste management and minimisation within its district” (s 42). The WMA requires TAs to develop and adopt a Waste Management and Minimisation Plan (WMMP).22 • The WMA also requires TAs to have regard to the New Zealand Waste Strategy 2010. The Strategy has two high levels goals: ‘Reducing the harmful effects of waste’ and ‘Improving the efficiency of resource use’. These goals must be taken into consideration in the development of the Council’s waste strategy. • Under Section 17A of the Local Government Act 2002 (LGA) local authorities must review the provision of services and must consider options for the governance, funding and delivery of infrastructure, local public services and local regulation. There is substantial cross over between the section 17A requirements and those of the WMMP process in particular in relation to local authority service provision. • Under the Local Government Act 2002 (LGA) Councils must consult the public about their plans for managing waste. • Under the Resource Management Act 1991 (RMA), TA responsibility includes controlling the effects of land-use activities that have the potential to create adverse effects on the natural and physical resources of their district. Facilities involved in the disposal, treatment or use of waste or recoverable materials may carry this potential. Permitted, controlled, discretionary, non-complying and prohibited activities and their controls are specified within district planning documents, thereby defining further land-use-related resource consent requirements for waste-related facilities. • Under the Litter Act 1979 TAs have powers to make bylaws, issue infringement notices, and require the clean-up of litter from land. • The Health Act 1956. Health Act provisions for the removal of refuse by local authorities have been repealed by local government legislation. The Public Health Bill is currently progressing through Parliament. It is a major legislative reform

22 The development of a WMMP in the WMA is a requirement modified from Part 31 of the LGA 1974, but with even greater emphasis on waste minimisation.

16 November 2018 reviewing and updating the Health Act 1956, but it contains similar provisions for sanitary services to those currently contained in the Health Act 1956. • The Hazardous Substances and New Organisms Act 1996 (the HSNO Act). The HSNO Act provides minimum national standards that may apply to the disposal of a hazardous substance. However, under the RMA a regional council or TA may set more stringent controls relating to the use of land for storing, using, disposing of or transporting hazardous substances. • Under current legislation and the new Health and Safety at Work Act the Council has a duty to ensure that its contractors are operating in a safe manner.

Council, in determining their role, needs to ensure that their statutory obligations, including those noted above, are met. 10.2 Overall Strategic Direction and Role The overall strategic direction and role is presented in the Waste Management and Minimisation Plan.

Palmerston North Waste Assessment

11 Statement of Proposals Based on the options identified in this Waste Assessment and the Council’s intended role in meeting forecast demand a range of proposals are put forward. Actions and timeframes for delivery of these proposals are identified in the Draft Waste Management and Minimisation Plan. It is expected that the implementation of these proposals will meet forecast demand for services as well as support the Council’s goals and objectives for waste management and minimisation. These goals and objectives will be confirmed as part of the development and adoption of the Waste Management and Minimisation Plan. 11.1 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. 11.1.1 Protection of Public Health The Health Act 1956 requires the Council to ensure the provision of waste services adequately protects public health. 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 local bylaws. Uncontrolled disposal of waste, for example in rural areas and in cleanfills, will be regulated through local and regional bylaws. It is considered that, subject to any further issues identified by the Medical Officer of Health, the proposals would adequately protect public health. 11.1.2 Effective and Efficient Waste Management and Minimisation The Waste Assessment has investigated current and future quantities of waste and diverted material, and outlines the Council’s role in meeting the forecast demand for services. It is considered that the process of forecasting 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.

16 November 2018 Therefore, it is considered that the proposals would promote effective and efficient waste management and minimisation.

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Appendices

A.1.0 Medical Officer of Health Statement

Seek commentary from the medical officer of health in the later stages of the Waste Assessment. Insert here when received based on a final, or nearly final, draft.

16 November 2018 A.2.0 Glossary of Terms

Class 1-4 Landfills Classification system for facilities where disposal to land takes place. The classification system is provided in A.2.1 below for reference.

Cleanfill A cleanfill (properly referred to as a Class 4 landfill) is any disposal facility that accepts only cleanfill material. This is defined as material that, when buried, will have no adverse environmental effect on people or the environment.

C&D Waste Waste generated from the construction or demolition of a building including the preparation and/or clearance of the property or site. This excludes materials such as clay, soil and rock when those materials are associated with infrastructure such as road construction and maintenance, but includes building-related infrastructure.

Diverted Material Anything that is no longer required for its original purpose and, but for commercial or other waste minimisation activities, would be disposed of or discarded.

Domestic Waste Waste from domestic activity in households.

ETS Emissions Trading Scheme

ICI Industrial, Commercial, Institutional

Landfill A disposal facility as defined in S.7 of the Waste Minimisation Act 2008, excluding . Includes, by definition in the WMA, only those facilities that accept ‘household waste’. Properly referred to as a Class 1 landfill.

LGA Local Government Act 2002

Managed Fill A disposal site requiring a resource consent to accept well-defined types of non-household waste, e.g. low- level contaminated soils or industrial by-products, such as sewage by-products. Properly referred to as a Class 3 landfill.

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MfE Ministry for the Environment

MRF Materials Recovery Facility

MSW Municipal Solid Waste

NZ New Zealand

NZWS New Zealand Waste Strategy

Putrescible, garden, Plant based material and other bio-degradable material greenwaste that can be recovered through composting, digestion or other similar processes.

RRP Resource Recovery Park

RTS Refuse Transfer Station

Service Delivery Review As defined by s17A of the LGA 2002. Councils are required to review the cost-effectiveness of current arrangements for meeting the needs of communities within its district or region for good-quality local infrastructure, local public services, and performance of regulatory functions. A review under subsection (1) must consider options for the governance, funding, and delivery of infrastructure, services, and regulatory functions.

TA Territorial Authority (a city or district council)

Waste Means, according to the WMA: a) Anything disposed of or discarded, and b) Includes a type of waste that is defined by its composition or source (for example, organic waste, , or construction and demolition waste); and c) To avoid doubt, includes any component or element of diverted material, if the component or element is disposed or or discarded.

WA Waste Assessment as defined by s51 of the Waste Minimisation Act 2008. A Waste Assessment must be completed whenever a WMMP is reviewed

16 November 2018 WMA Waste Minimisation Act 2008

WMMP A Waste Management and Minimisation Plan as defined by s43 of the Waste Minimisation Act 2008

WWTP Wastewater treatment plant

A.2.1 Classifications for Disposal to Land

In the ‘Technical Guidelines for Disposal to Land’ (2016) the following definitions are given: Class 1 - Landfill A Class 1 landfill is a site that accepts municipal solid waste as defined in this Guideline. A Class 1 landfill generally also accepts C&D waste, some industrial wastes and contaminated soils. Class 1 landfills often use managed fill and clean fill materials they accept, as daily cover. Class 1 landfills require: • a rigorous assessment of siting constraints, considering all factors, but with achieving a high level of containment as a key aim; • engineered environmental protection by way of a liner and leachate collection system, and an appropriate cap, all with appropriate redundancy; and • landfill gas management.

A rigorous monitoring and reporting regime is required, along with stringent operational controls. Monitoring of accepted waste materials is required, as is monitoring of sediment runoff, surface water and groundwater quality, leachate quality and quantity, and landfill gas. Waste acceptance criteria (WAC) comprises: • municipal solid waste; and • for potentially hazardous leachable contaminants, maximum chemical contaminant leachability limits (TCLP) from Module 2 Hazardous Waste Guidelines – Class A4.

WAC for potentially hazardous wastes and treated hazardous wastes are based on leachability criteria to ensure that leachate does not differ from that expected from nonhazardous municipal solid waste. For Class 1 landfills, leachability testing should be completed to provide assurance that waste materials meet the WAC. Class 2 Landfill

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A Class 2 landfill is a site that accepts non-putrescible wastes including C&D wastes, inert industrial wastes, managed fill material and clean fill material as defined in these Guidelines. C&D waste can contain biodegradable and leachable components which can result in the production of leachate – thereby necessitating an increased level of environmental protection. Although not as strong as Class 1 landfill leachate, Class 2 landfill leachate is typically characterised by mildly acidic pH, and the presence of ammoniacal nitrogen and soluble metals, including heavy metals. Similarly, industrial wastes from some activities may generate leachates with chemical characteristics that are not necessarily organic. Class 2 landfills should be sited in areas of appropriate geology, hydrogeology and surface hydrology. A site environmental assessment is required, as are an engineered liner, a leachate collection system, and groundwater and surface water monitoring. Additional engineered features such as leachate treatment may also be required. Depending on the types and proportions of C&D wastes accepted, Class 2 landfills may generate minor to significant volumes of landfill gas and/or hydrogen sulphide. The necessity for a landfill gas collection system should be assessed. Operational controls are required, as are monitoring of accepted waste materials, monitoring of sediment runoff, surface water and groundwater quality, and monitoring of leachate quality and quantity. Waste acceptance criteria comprises: Waste acceptance criteria comprise: • a list of acceptable materials; and • maximum ancillary biodegradeable materials (e.g. vegetation) to be no more than 5% by volume per load; and • maximum chemical contaminant leachability limits (TCLP) for potentially hazardous leachable contaminants. • For Class 2 landfills, leachability testing should be completed to provide assurance that waste materials meet the WAC.

Class 3 Landfill – Managed/Controlled Fill A Class 3 landfill accepts managed fill materials as defined in these Guidelines. These comprise predominantly clean fill materials, but may also include other inert materials and soils with chemical contaminants at concentrations greater than local natural background concentrations, but with specified maximum total concentrations. Site ownership, location and transport distance are likely to be the predominant siting criteria. However, as contaminated materials (in accordance with specified limits) may be accepted, an environmental site assessment is required in respect of geology, stability, surface hydrology and topography. Monitoring of accepted material is required, as are operational controls, and monitoring of sediment runoff and groundwater.

16 November 2018 Waste acceptance criteria comprises: • a list of acceptable solid materials; and • maximum incidental or attached biodegradable materials (e.g. vegetation) to be no more than 2% by volume per load; and • maximum chemical contaminant limits.

A Class 3 landfill does not include any form of engineered containment. Due to the nature of material received it has the potential to receive wastes that are above soil background levels. The WAC criteria for a Class 3 landfill are therefore the main means of controlling potential adverse effects. For Class 3 landfills, total analyte concentrations should be determined to provide assurance that waste materials meet the WAC. Class 4 Landfill - Cleanfill Class 4 landfill accepts only clean fill material as defined in these Guidelines. The principal control on contaminant discharges to the environment from Class 4 landfills is the waste acceptance criteria. Stringent siting requirements to protect groundwater and surface water receptors are not required. Practical and commercial considerations such as site ownership, location and transport distance are likely to be the predominant siting criteria, rather than technical criteria. Clean filling can generally take place on the existing natural or altered land without engineered environmental protection or the development of significant site infrastructure. However, surface water controls may be required to manage sediment runoff. Extensive characterisation of local geology and hydrogeology is not usually required. Monitoring of both accepted material and sediment runoff is required, along with operational controls. Waste acceptance criteria comprises: • virgin excavated natural materials (VENM), including soil, clay, gravel and rock; and • maximum incidental inert manufactured materials (e.g. concrete, brick, tiles) to be no more than 5% by volume per load; and • maximum incidental or attached biodegradable materials (e.g. vegetation) to be no more than 2% by volume per load; and • maximum chemical contaminant limits are local natural background soil concentrations.

Materials disposed to a Class 4 landfill should pose no significant immediate or future risk to human health or the environment.

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The WAC for a Class 4 landfill should render the site suitable for unencumbered potential future land use, i.e. future residential development or agricultural land use. The WAC for a Class 4 landfill are based on the local background concentrations for inorganic elements, and provide for trace concentrations of a limited range of organic compounds. Note: The Guidelines should be referred to directly for the full criteria and definitions.

16 November 2018 A.3.0 National Legislative and Policy Context

A.3.1 The New Zealand Waste Strategy 2010

The New Zealand Waste Strategy 2010 provides the Government’s strategic direction for waste management and minimisation in New Zealand. This strategy was released in 2010 and replaced the 2002 Waste Strategy. The New Zealand Waste Strategy has two goals. These are to: • reduce the harmful effects of waste • improve the efficiency of resource use.

The strategy’s goals provide direction to central and local government, businesses (including the waste industry), and communities on where to focus their efforts to manage waste. The strategy’s flexible approach ensures waste management and minimisation activities are appropriate for local situations. Under section 44 of the Waste Management Act 2008, in preparing their waste management and minimisation plan (WMMP) councils must have regard to the New Zealand Waste Strategy, or any government policy on waste management and minimisation that replaces the strategy. Guidance on how councils may achieve this is provided in section 4.4.3. A copy of the New Zealand Waste Strategy is available on the Ministry’s website at www.mfe.govt.nz/publications/waste/new‐zealand‐waste‐strategy‐reducing‐harm‐ improving-efficiency. A.3.2 Waste Minimisation Act 2008

The purpose of the Waste Minimisation Act 2008 (WMA) is to encourage waste minimisation and a decrease in waste disposal to protect the environment from harm and obtain environmental, economic, social and cultural benefits. The WMA introduced tools, including: • waste management and minimisation plan obligations for territorial authorities • a waste disposal levy to fund waste minimisation initiatives at local and central government levels • product stewardship provisions.

Part 4 of the WMA is dedicated to the responsibilities of a council. Councils “must promote effective and efficient waste management and minimisation within its district” (section 42).

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Part 4 requires councils to develop and adopt a WMMP. The development of a WMMP in the WMA is a requirement modified from Part 31 of the Local Government Act 1974, but with even greater emphasis on waste minimisation. To support the implementation of a WMMP, section 56 of the WMA also provides councils the ability to: • develop bylaws • regulate the deposit, collection and transportation of wastes • prescribe charges for waste facilities • control access to waste facilities • prohibit the removal of waste intended for recycling.

A number of specific clauses in Part 4 relate to the WMMP process. It is essential that those involved in developing a WMMP read and are familiar with the WMA and Part 4 in particular. The Waste Minimisation Act 2008 (WMA) provides a regulatory framework for waste minimisation that had previously been based on largely voluntary initiatives and the involvement of territorial authorities under previous legislation, including Local Government Act 1974, Local Government Amendment Act (No 4) 1996, and Local Government Act 2002. The purpose of the WMA is to encourage a reduction in the amount of waste disposed of in New Zealand. In summary, the WMA: • Clarifies the roles and responsibilities of territorial authorities with respect to waste minimisation e.g. updating Waste Management and Minimisation Plans (WMMPs) and collecting/administering levy funding for waste minimisation projects. • Requires that a Territorial Authority promote effective and efficient waste management and minimisation within its district (Section 42). • Requires that when preparing a WMMP a Territorial Authority must consider the following methods of waste management and minimisation in the following order of importance: o Reduction o Reuse o Recycling o Recovery o Treatment o Disposal o Put a levy on all waste disposed of in a landfill. o Allows for mandatory and accredited voluntary product stewardship schemes.

16 November 2018 o Allows for regulations to be made making it mandatory for certain groups (for example, landfill operators) to report on waste to improve information on waste minimisation. o Establishes the Waste Advisory Board to give independent advice to the Minister for the Environment on waste minimisation issues.

Various aspects of the Waste Minimisation Act are discussed in more detail below. A.3.3 Waste Levy

From 1st July 2009 the Waste Levy came in to effect, adding $10 per tonne to the cost of landfill disposal at sites which accept household solid waste. The levy has two purposes, which are set out in the Act: • to raise revenue for promoting and achieving waste minimisation • to increase the cost of waste disposal to recognise that disposal imposes costs on the environment, society and the economy.

This levy is collected and managed by the Ministry for the Environment (MfE) who distribute half of the revenue collected to territorial authorities (TA) on a population basis to be spent on promoting or achieving waste minimisation as set out in their WMMPs. The other half is retained by the MfE and managed by them as a central contestable fund for waste minimisation initiatives. Currently the levy is set at $10/tonne and applies to wastes deposited in landfills accepting household waste. The MfE published a waste disposal levy review in 2014.23 The review indicates that the levy may be extended in the future: “The levy was never intended to apply exclusively to household waste, but was applied to landfills that accept household waste as a starting point. Information gathered through the review supports consideration being given to extending levy obligations to additional waste disposal sites, to reduce opportunities for levy avoidance and provide greater incentives for waste minimisation.” A.3.4 Product Stewardship

Under the Waste Minimisation Act 2008, if the Minister for the Environment declares a product to be a priority product, a product stewardship scheme must be developed and accredited to ensure effective reduction, reuse, recycling or recovery of the product and to manage any environmental harm arising from the product when it becomes waste.24 No Priority Products have been declared as of October 2017.

23 Ministry for the Environment. 2014. Review of the effectiveness of the waste disposal levy, 2014 in accordance with section 39 of the Waste Minimisation Act 2008. Wellington: Ministry for the Environment 24 Waste Management Act 2008 2(8)

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The following voluntary product stewardship schemes have been accredited by the Minister for the Environment:25 • Agrecovery rural recycling programme • Envirocon product stewardship • Fonterra Milk for Schools Recycling Programme • Fuji Xerox Zero Landfill Scheme • Holcim Geocycle Used Oil Recovery Programme (no longer operating) • Interface ReEntry Programme • Kimberly Clark NZ’s Envirocomp Product Stewardship Scheme for Sanitary Hygiene Products • Plasback • Public Place Recycling Scheme • Recovering of Oil Saves the Environment (R.O.S.E. NZ) • Refrigerant recovery scheme • RE:MOBILE • Resene PaintWise • The Glass Packaging Forum

Further details on each of the above schemes are available on: http://www.mfe.govt.nz/waste/product-stewardship/accredited-voluntary-schemes A.3.5 Waste Minimisation Fund

The Waste Minimisation Fund has been set up by the Ministry for the Environment to help fund waste minimisation projects and to improve New Zealand’s waste minimisation performance through: • Investment in infrastructure; • Investment in waste minimisation systems and • Increasing educational and promotional capacity.

Criteria for the Waste Minimisation Fund have been published: 1. Only waste minimisation projects are eligible for funding. Projects must promote or achieve waste minimisation. Waste minimisation covers the reduction of waste and the reuse, recycling and recovery of waste and diverted material. The scope of the fund includes educational projects that promote waste minimisation activity.

25 http://www.mfe.govt.nz/waste/product-stewardship/accredited-voluntary-schemes

16 November 2018 2. Projects must result in new waste minimisation activity, either by implementing new initiatives or a significant expansion in the scope or coverage of existing activities. 3. Funding is not for the ongoing financial support of existing activities, nor is it for the running costs of the existing activities of organisations, individuals, councils or firms. 4. Projects should be for a discrete timeframe of up to three years, after which the project objectives will have been achieved and, where appropriate, the initiative will become self-funding. 5. Funding can be for operational or capital expenditure required to undertake a project. 6. For projects where alternative, more suitable, Government funding streams are available (such as the Sustainable Management Fund, the Contaminated Sites Remediation Fund, or research funding from the Foundation for Research, Science and Technology), applicants should apply to these funding sources before applying to the Waste Minimisation Fund. 7. The applicant must be a legal entity. 8. The fund will not cover the entire cost of the project. Applicants will need part funding from other sources. 9. The minimum grant for feasibility studies will be $10,000.00. The minimum grant for other projects will be $50,000.00. Application assessment criteria have also been published by the Ministry. A.3.6 Local Government Act 2002

The Local Government Act 2002 (LGA) provides the general framework and powers under which New Zealand’s democratically elected and accountable local authorities operate. The LGA contains various provisions that may apply to councils when preparing their WMMPs, including consultation and bylaw provisions. For example, Part 6 of the LGA refers to planning and decision‐making requirements to promote accountability between local authorities and their communities, and a long‐term focus for the decisions and activities of the local authority. This part includes requirements for information to be included in the long‐term plan (LTP), including summary information about the WMMP. More information on the LGA can be found at ww.dia.govt.nz/better‐local‐government. A.3.6.1 Section 17 A Review

Local authorities are now under an obligation to review the cost-effectiveness of current arrangements for meeting community needs for good quality infrastructure, local public services and local regulation. Where a review is undertaken local authorities must consider options for the governance, funding and delivery of infrastructure, local public services and local regulation that include, but are not limited to: a) in-house delivery

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b) delivery by a CCO, whether wholly owned by the local authority, or a CCO where the local authority is a part owner c) another local authority d) another person or agency (for example central government, a private sector organisation or a community group).

Local Authorities have three years from 8 August 2014 to complete the first review of each service i.e. they must have completed a first review of all their services by 7 August 2017 (unless something happens to trigger a review before then). Other than completion by the above deadline, there are two statutory triggers for a section 17A review: • The first occurs when a local authority is considering a significant change to a level of service • The second occurs where a contract or other binding agreement is within two years of expiration.

Once conducted, a section 17A review has a statutory life of up to six years. Each service must be reviewed at least once every six years unless one of the other events that trigger a review comes into effect. While the WMMP process is wider in scope – considering all waste service provision in the local authority area – and generally taking a longer term, more strategic approach, there is substantial crossover between the section 17A requirements and those of the WMMP process, in particular in relation to local authority service provision. The S17A review may however take a deeper approach go into more detail in consideration of how services are to be delivered, looking particularly at financial aspects to a level that are not required under the WMMP process. Because of the level of crossover however it makes sense to undertake the S17A review and the WMMP process in an iterative manner. The WMMP process should set the strategic direction and gather detailed information that can inform both processes. Conversely the consideration of options under the s17A process can inform the content of the WMMP – in particular what is contained in the action plans. A.3.7 Resource Management Act 1991

The Resource Management Act 1991 (RMA) promotes sustainable management of natural and physical resources. Although it does not specifically define ‘waste’, the RMA addresses waste management and minimisation activity through controls on the environmental effects of waste management and minimisation activities and facilities through national, regional and local policy, standards, plans and consent procedures. In this role, the RMA exercises considerable influence over facilities for waste disposal and recycling, recovery, treatment and others in terms of the potential impacts of these facilities on the environment.

16 November 2018 Under section 30 of the RMA, regional councils are responsible for controlling the discharge of contaminants into or on to land, air or water. These responsibilities are addressed through regional planning and discharge consent requirements. Other regional council responsibilities that may be relevant to waste and recoverable materials facilities include: • managing the adverse effects of storing, using, disposing of and transporting hazardous wastes • the dumping of wastes from ships, aircraft and offshore installations into the coastal marine area • the allocation and use of water.

Under section 31 of the RMA, council responsibility includes controlling the effects of land‐use activities that have the potential to create adverse effects on the natural and physical resources of their district. Facilities involved in the disposal, treatment or use of waste or recoverable materials may carry this potential. Permitted, controlled, discretionary, noncomplying and prohibited activities, and their controls, are specified in district planning documents, thereby defining further land‐use‐related resource consent requirements for waste‐related facilities. In addition, the RMA provides for the development of national policy statements and for the setting of national environmental standards (NES). There is currently one enacted NES that directly influences the management of waste in New Zealand – the Resource Management (National Environmental Standards for Air Quality) Regulations 2004. This NES requires certain landfills (e.g., those with a capacity of more than 1 million tonnes of waste) to collect landfill gases and either flare them or use them as fuel for generating electricity. Unless exemption criteria are met, the NES for Air Quality also prohibits the lighting of fires and burning of wastes at landfills, the burning of tyres, bitumen burning for road maintenance, burning coated wire or oil, and operating high‐temperature hazardous waste incinerators. These prohibitions aim to protect air quality. A.3.8 New Zealand Emissions Trading Scheme

The Climate Change Response Act 2002 and associated regulations is the Government’s principal response to manage climate change. A key mechanism for this is the New Zealand Emissions Trading Scheme (NZ ETS) The NZ ETS puts a price on greenhouse gas emissions, providing an incentive for people to reduce emissions and plant forests to absorb carbon dioxide. Certain sectors are required to acquire and surrender emission units to account for their direct greenhouse gas emissions or the emissions associated with their products. Landfills that are subject to the waste disposal levy are required to surrender emission units to cover methane emissions generated from landfill. These disposal facilities are required to report the tonnages landfilled annually to calculate emissions.

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The NZ ETS was introduced in 2010 and, from 2013, landfills have been required to surrender New Zealand Emissions Units for each tonne of CO2 (equivalent) that they produce. Until recently however the impact of the NZETS on disposal prices has been limited. There are a number of reasons for this: • The global price of carbon crashed during the GFC in 2007-8 and has been slow to recover. Prior to the crash it was trading at around $20 per tonne. The price has been as low as $2, although since, in June 2015, the Government moved to no longer accept international units in NZETS the NZU price has increased markedly (currently sitting at around $19 per tonne26) . • The transitional provisions of the Climate Change Response Act, which were extended in 2013 (but have now been reviewed), mean that landfills have only had to surrender half the number of units they would be required to otherwise. These transitional provisions were removed in January 2017 which will effectively double the price per tonne impact of the ETS. • Landfills are allowed to apply for ‘a methane capture and destruction Unique Emissions Factor (UEF). This means that if landfills have a gas collection system in

place and flare or otherwise use the gas (and turn it from Methane into CO2) they can reduce their liabilities in proportion to how much gas they capture. Up to 90% capture and destruction is allowed to be claimed under the regulations, with large facilities applying for UEF’s at the upper end of the range.

Taken together (a low price of carbon, two for one surrender only required, and methane destruction of 80-90%) these mean that the actual cost of compliance with the NZETS has been small for most landfills – particularly those that are able to claim high rates of gas capture. Disposal facilities have typically imposed charges (in the order of $5 per tonne) to their customers, but these charges have mostly reflected the costs of scheme administration, compliance, and hedging against risk rather than the actual cost of carbon. The way the scheme has been structured has also resulted in some inconsistencies in the way it is applied – for example class 2-4 landfills and closed landfills do not have any liabilities under the scheme. Further, the default waste composition (rather than a SWAP) can be used to calculate the theoretical gas production, which means landfill owners have an incentive to import , which then increases gas production and which can then be captured and offset against ETS liabilities. Recently, however the scheme has had a greater impact on the cost of landfilling, and this is expected to continue in the medium term. Reasons for this include:

26 https://carbonmatch.co.nz/ accessed 25 October 2016

16 November 2018 • In June 2015, the Government moved to no longer accept international units in NZETS. This has had a significant impact, as cheap international units which drove the price down cannot be used. Many of these were also of dubious merit as GHG offsets27. This has resulted in a significant rise in the NZU price. • The transitional provisions relating to two-for-one surrender of NZUs were removed from 1 January 2017, meaning that landfills will need to surrender twice the number of NZUs they do currently – effectively doubling the cost of compliance. • The United Nations Climate Change Conference, (COP21) held in Paris France in November – December of 2015, established universal (but non-binding) emissions reduction targets for all the nations of the world. The outcomes could result in growing demand for carbon offsets and hence drive up the price of carbon. Balanced against this however is the degree to which the United States, under the new Republican administration, will ratify its commitments.

These changes to the scheme mean that many small landfills which do not capture and destroy methane are now beginning to pay a more substantial cost of compliance. The ability of landfills with high rates of gas capture and destruction to buffer the impact of the ETS will mean a widening cost advantage for them relative to those without such ability. This could put further pressure on small (predominantly Council owned) facilities and drive further tonnage towards the large regional facilities (predominantly privately owned). If for example, the price of carbon were to rise to $50 per tonne, the liability for a landfill without gas capture will be $65.50 (based on a default emissions factor of 1.31 tonnes of CO2e per tonne of waste), whereas for a landfill claiming 90% gas capture (the maximum allowed under the scheme), the liability will be only $6.55. This type of price differential will mean it will become increasingly cost competitive to transport waste larger distances to the large regional landfills. More information is available at www.climatechange.govt.nz/emissions‐trading‐scheme. A.3.9 Litter Act 1979

Under the Litter Act it is an offence for any person or body corporate to deposit or leave litter: • In or on any public place; or • In or on any private land without the consent of its occupier.

27 http://morganfoundation.org.nz/wp-content/uploads/2016/04/ClimateCheat_Report9.pdf

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The Act enables Council to appoint Litter Officers with powers to enforce the provisions of the legislation. The legislative definition of the term "Litter" is wide and includes refuse, rubbish, animal remains, glass, metal, garbage, debris, dirt, filth, rubble, ballast, stones, earth, waste matter or other thing of a like nature. Any person who commits an offence under the Act is liable to: • An instant fine of $400 imposed by the issue of an infringement notice; or a fine not exceeding $5,000 in the case of an individual or $20,000 for a body corporate upon conviction in a District Court. • A term of imprisonment where the litter is of a nature that it may endanger, cause physical injury, disease or infection to any person coming into contact with it.

Under the Litter Act 1979 it is an offence for any person to deposit litter of any kind in a public place, or onto private land without the approval of the owner. The Litter Act is enforced by territorial authorities, who have the responsibility to monitor litter dumping, act on complaints, and deal with those responsible for litter dumping. Councils reserve the right to prosecute offenders via fines and infringement notices administered by a litter control warden or officer. The maximum fines for littering are $5,000 for a person and $20,000 for a corporation. Council powers under the Litter Act could be used to address illegal dumping issues that may be included in the scope of a council’s waste management and minimisation plan. A.3.10 Health Act 1956

The Health Act 1956 places obligations on TAs (if required by the Minister of Health) to provide sanitary works for the collection and disposal of refuse, for the purpose of public health protection (Part 2 – Powers and duties of local authorities, section 25). It specifically identifies certain waste management practices as nuisances (S 29) and offensive trades (Third Schedule). Section 54 places restrictions on carrying out an offensive trade and requires that the local authority and medical officer of health must give written consent and can impose conditions on the operation. Section 54 only applies where resource consent has not been granted under the RMA. The Health Act enables TAs to raise loans for certain sanitary works and/or to receive government grants and subsidies, where available.28 Health Act provisions to remove refuse by local authorities have been repealed.

28 From: MfE 2009: Waste Management and Minimisation Planning, Guidance for Territorial Authorities.

16 November 2018 A.3.11 Hazardous Substances and New Organisms Act 1996 (HSNO Act)

The HSNO Act addresses the management of substances (including their disposal) that pose a significant risk to the environment and/or human health. The Act relates to waste management primarily through controls on the import or manufacture of new hazardous materials and the handling and disposal of hazardous substances. Depending on the amount of a hazardous substance on site, the HSNO Act sets out requirements for material storage, staff training and certification. These requirements would need to be addressed within operational and health and safety plans for waste facilities. Hazardous substances commonly managed by TAs include used oil, household chemicals, asbestos, agrichemicals, LPG and batteries. The HSNO Act provides minimum national standards that may apply to the disposal of a hazardous substance. However, under the RMA a regional council or TA may set more stringent controls relating to the use of land for storing, using, disposing of or transporting hazardous substances.29 A.3.12 Health and Safety at Work Act 201530

The new Health and Safety at Work Act, passed in September 2015 replaces the Health and Safety in Employment Act 1992. The bulk of the Act came into force from 4 April 2016. The Health and Safety at Work Act introduces the concept of a Person Conducting a Business or Undertaking, known as a PCBU. The Council will have a role to play as a PCBU for waste services and facilities. The primary duty of care requires all PCBUs to ensure, so far as is reasonably practicable: 1. the health and safety of workers employed or engaged or caused to be employed or engaged, by the PCBU or those workers who are influenced or directed by the PCBU (for example workers and contractors) 2. that the health and safety of other people is not put at risk from work carried out as part of the conduct of the business or undertaking (for example visitors and customers). The PCBU’s specific obligations, so far as is reasonably practicable: • providing and maintaining a work environment, plant and systems of work that are without risks to health and safety • ensuring the safe use, handling and storage of plant, structures and substances

29 From: MfE 2009: Waste Management and Minimisation Planning, Guidance for Territorial Authorities. 30 http://www.legislation.govt.nz/act/public/2015/0070/latest/DLM5976660.html#DLM6564701

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• providing adequate facilities at work for the welfare of workers, including ensuring access to those facilities • providing information, training, instruction or supervision necessary to protect workers and others from risks to their health and safety • monitoring the health of workers and the conditions at the workplace for the purpose of preventing illness or injury.

A key feature of the new legislation is that cost should no longer be a major consideration in determining the safest course of action that must be taken. WorkSafe NZ is New Zealand’s workplace health and safety regulator. WorkSafe NZ will provide further guidance on the new Act after it is passed. A.3.13 Other legislation

Other legislation that relates to waste management and/or reduction of harm, or improved resource efficiency from waste products includes: • Hazardous Substances and New Organisms Act 1996 • Biosecurity Act 1993 • Radiation Protection Act 1965 • Ozone Layer Protection Act 1996 • Agricultural Chemicals and Veterinary Medicines Act 1997.

For full text copies of the legislation listed above see www.legislation.govt.nz. A.3.14 International commitments

New Zealand is party to international agreements that have an influence on the requirements of our domestic legislation for waste minimisation and disposal. Some key agreements are the: • Montreal Protocol • Basel Convention • Stockholm Convention • Waigani Convention • Minamata Convention.

More information on these international agreements can be found on the Ministry’s website at www.mfe.govt.nz/more/international‐environmental‐agreements.

16 November 2018