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National targets for priority waste areas
Introduction and Background
This note contains some explanatory information about the targets in the 2002 New Zealand Waste Strategy (the Strategy). It provides a brief interpretation of each target, indicates what action has been taken or is expected.
The targets in the strategy draw on recommendations made by the Working Group on Waste Minimisation and Management, established to advise the Ministry and Local Government New Zealand (LGNZ) on the development of the Strategy. The recommendations of the working group were further considered by the Ministry and reviewed by a group of experienced local body officers before being incorporated into the strategy.
The Strategy acknowledges the limits of the information on which the targets are based. It indicates that the targets should be considered as "goal statements rather than mandatory requirements".
Councils are encouraged to set their own targets in line with those in the Strategy. This request recognises that it may be impractical for local targets to be the exact equivalent of the provisional national targets.
The targets were reviewed in December 2003. They were reviewed again in 2006.
1. Targets for waste minimisation
1.1 Local authorities will report their progress on waste minimisation and management for their annual report in 2001-2 and quantitatively on an annual basis from then onwards
Interpretation
This target recognises the importance of local authorities providing for and reporting on the local implementation of the NZ Waste Strategy in their annual plans and annual reports. The target assumes a start on this reporting in the annual reports for 2001-2001. While reporting should be quantitative (to ensure any progress towards local targets can be measured), the national target recognises that some local authorities may not possess quantitative information in the first instance, and reporting may only be able to be undertaken qualitatively. It also signals that council budgets need to provide for the gathering of information necessary for quantitative reports in subsequent years.
Action taken
The Ministry reviewed council's draft annual plans for 2002-3 and made submissions to some councils encouraging them to make reference in these plans to waste minimisation and management. The inclusion of this information provides a basis for commenting on this subject in the annual report relating to that period. The measures for councils reporting progress on local implementation of the strategy will be further developed in the waste management planning project being developed jointly with local government.
1.2 by December 2005, all regional councils will ensure that new or renewed industrial resource consents include a recognised waste minimisation and management programme and will report on the percentage of all consents under their jurisdiction that have such a clause
1.3 by December 2010, all regional councils will ensure that at least 25 percent of all existing industrial resource consent holders have in place a recognised waste minimisation and management programme
Interpretation
The general intent of these targets is clear. Programmes that minimise waste and manage it effectively can avoid or mitigate environmental effects. There is however, a question whether such programmes can be required where the waste minimisation and management programme is not directly linked to the mitigation of the discharge being consented. The Resource Management Act (under which resource consents are granted) is concerned with the effects of contaminants on the environment. Provided the industrial facility was economically efficient, and adequately avoided, remedied or mitigated any environmental effects from its discharge, any opportunities to minimise or better manage wastes are not legally relevant. Regional councils need to ensure that any action they undertake to implement these targets is not ultra vires. We note however, that Environment Waikato, in its draft regional waste strategy, has adopted a regional target that implements the intent of the targets above but without directly linking waste minimisation programmes to resource consents.
Action
The Ministry will be considering these targets in the context of its review of waste legislation and institutions. There is a general question about the extent to which the RMA can influence the efficient use of material resources and provide an adequate legislative foundation for waste minimisation policy tools. This question will also be considered in the review.
2. Targets for organic wastes
2.1 By December 2003 all territorial local authorities will have instituted a measurement programme to identify existing organic waste quantities and set local targets for diversion and disposal
2.2 By December 2005, 60 percent of garden wastes will be diverted from landfill and beneficially used and by December 2010 the diversion of garden wastes from landfill to beneficial use will have exceeded 95%
2.3 By December 2007, a clear quantitative understanding of other organic waste streams (such as kitchen waste) will have been achieved through the measurement programme established by December 2003
2.4 By December 2007, more than 95 percent of sewage sludge currently disposed to landfill will be composted, beneficially used or appropriately treated to minimise the production of methane and leachate
2.5 By December 2010, the diversion of commercial organic wastes from landfill to beneficial use will have exceeded 95 percent
Interpretation
Measurement programmes are likely to involve measuring quantity (through weighbridge and/or charging records) and composition (using SWAP) of waste disposed to landfill.
The percentage diversion rates should be measured in terms of the total disposal and recycling quantities. For example if 25,000 tonnes of garden waste are composted and 5,000 tonnes disposed of to landfill (as measured through SWAP and weigh bridge records) 83% diversion of garden waste has been achieved. This measure should apply to the total waste stream rather than refer to a specific baseline year.
Beneficial re-use could include (subject to appropriate regulatory approval) composting or mulching for sale, use of composted or mulched organic waste as a partial top soil replacement in landfill final capping/rehabilitation. Commercial organic waste may include food waste from commercial kitchens and food retailing business and waste wood from construction and demolition activities.
Some concern has been expressed by waste operators that there is no market for composted product in some areas, and this is given as a reason for not complying with the target. It should be noted that composting, as a method for achievement, is not referred to in the targets, except as one of the suggested methods for dealing with sewage sludge.
Action
The Ministry is working with a local government and industry pilot group on developing an integrated tool kit for collecting, analysing and reporting waste data. The tools developed through this process will assist territorial local authorities to meet target 2.1.
The Ministry is developing an organics recovery programme with a focus on developing resources for good practice in composting.
3. Targets for special wastes
3.1 By December 2005, businesses in at least eight different sectors will have introduced extended producer responsibility pilot programmes for the collection and reuse, recycling or appropriate treatment and disposal of eight categories of special wastes
Interpretation
Extended producer responsibility (EPR) puts the onus on businesses to look for and capitalise on opportunities for resource conservation and pollution prevention throughout a product's life including disposal. It is particularly applicable to special "problem" wastes. EPR is a tool for waste minimisation increasingly adopted in many OECD countries. There are examples already in New Zealand (for example, Telecom's and Vodaphone/Nokia's takeback scheme for cell phones).
Action
The Ministry is developing a policy framework within which to address special waste issues. Initial attention is being given to the recovery of used oil. Used tyres and end of life vehicles are likely to be the next "special" wastes for which specific policies are subsequently developed. The Ministry is looking for the cooperation of the business sector in developing the use of EPR.
4. Targets for construction and demolition wastes
4.1 By December 2005 all territorial authorities will have instituted a measurement programme to identify existing construction and demolition waste quantities and set local targets for diversion from landfills
Interpretation
There is presently little or no information on the volume and category of waste arising in the area of Construction and Demolition. It is generally recognised that there are big gains to be achieved by diverting this sort of refuse from landfills and that there are significant recycling initiatives possible within this sector. Without knowledge of the quantity being disposed of, it is difficult to reconcile the gains that are available.
Action required
This target is one of the secondary stream of targets in the Strategy, in that reduction is not expected to be achievable immediately. The Ministry has initiated a Waste Management Planning project that will provide a base for this work to proceed in the near future. It is recognised that there are likely to be a number of sites that are not even recognised as disposal sites in some areas, due to the designations under which they were established. It is felt likely, that a waste-licensing scheme might be a suitable vehicle for establishing quantities in this sector, and this may require a national approach.
4.2 By December 2008, there will have been a reduction of construction and demolition water to landfill of 50 percent of December 2005 levels measured by weight
Interpretation
This target recognises that once waste volumes are recognised and quantified in this sector, it will be fairly easy to follow the models for waste reduction that have been established by this time in the (for example) organics area.
Action taken
No action has yet been taken in this area of work.
5. Targets for hazardous wastes
5.1 By December 2005, an integrated and comprehensive national hazardous waste management policy will be in place that covers reduction, transport, treatment and disposal of hazardous wastes to effectively manage risks to people and the environment
Interpretation
The hazardous waste management policy, currently being developed, will provide formal guidance and direction to hazardous waste operators in best-practice management of hazardous waste. The policy will contain a mix of regulatory tools (e.g. National Environmental Standards) and non-regulatory tools (for example, economic instruments, industry partnerships). There is no clear indication of the best method to implement the policy, but this may be determined through the review of institutions and legislation mentioned above.
Action
The 'core' of the policy has largely been developed and trialled in practice - the Working Definition of Hazardous Waste. The Definition, along with the New Zealand Waste List, provides a consistent method to identify hazardous waste. The classification system of the NZ Waste List will form the basis for an important hazardous waste management control - record-keeping and tracking. Landfill Waste Acceptance Criteria (LWAC) are also being developed to ensure environmentally-sound and consistent criteria for acceptance of hazardous waste at landfills. Further work over the next two years will determine the other management controls that need to be applied to hazardous waste.
5.2 By December 2004, hazardous wastes will be appropriately treated before disposal at licensed facilities and current recovery and recycling rates will be established for a list of priority hazardous wastes
5.3 Recovery and recycling rates for priority hazardous wastes will increase 20 percent by 2012
Interpretation
'Appropriate treatment' will be defined in the development of the national hazardous waste management policy. 'Licensed facilities' will be hazardous waste operators that comply with the policy and local requirements (e.g. resource consents). A possible licensing mechanism is accreditation through industry associations.
Recovery and recycling rates will be determined once record-keeping systems have been adopted and are commonly used by hazardous waste operators (including generators of hazardous waste). Partnerships with industry (e.g. EPR and cleaner production initiatives) will contribute to increased recycling and recovery rates. There are currently no established criteria for determining 'priority hazardous wastes'. However, there could be designated by agree factors (e.g. degree of hazard, volume, availability of management options) at either a national, regional or local level.
Action
Development and bedding-in of the aforementioned hazardous waste management policy will ensure these targets are achieved. In the short term, work on appropriate treatment and disposal is progressing (e.g. Landfill Waste Acceptance Criteria), record-keeping trials are establishing benchmark data on hazardous waste management (including recycling and recovery), and criteria for determining priority hazardous wastes are being developed. As part of the Sustainable Industry Group, there may be increased scope for developing partnerships with industry to achieve recovery and recycling targets.
6. Targets for contaminated sites
6.1 By December 2008, all sites on the Hazardous Activities and Industry List will have been identified and subject to a rapid screening system in accordance with the Ministry's guidelines
6.2 By December 2010, all sites on the Hazardous Activities and Industry List will have been subject to a rapid screening system, in accordance with Ministry guidelines and a remediation programme will have been developed for those that qualify as high-risk
6.3 By December 2015, all high-risk contaminated sites will have been managed or remediated. A timeframe will have been developed to address the management or remediation of remaining sites
Interpretation
These targets reflect the importance of improving contaminated sites management and reporting at the local level, to provide a "level playing field" for site owners and national consistency across all regions and local authorities. Currently the national account of site contamination is limited, both in terms of site numbers and the level of risk these sites pose. The targets will be an important component for developing a national register of site contamination. They will also assist those councils, for which contaminated sites are not seen are core business, to improve their level of effort to meet national obligations.
The targets do not set out how site remediation should be undertaken. This will depend on the nature of the contamination and other site-specific considerations. In the first instance, the focus will be on addressing those sites that pose the greatest risk to the environment and human health.
Action
We will shortly be publishing the final Hazardous Activities and Industries List and the rapid screening system, which have been developed in partnership with regional councils. Drafts of these systems are already being used by councils. There was further dissemination to territorial local authorities and other agencies involved in contaminated sites management at WasteMINZ 2002.
Progress on achieving the targets is presently hindered by local authority uncertainty over roles and responsibilities for contaminated sites (and therefore the extent to which councils prioritise such work relative to other core council functions), and by a lack of legal duty for a site owner to report on site contamination. The Ministry is continuing to develop a contaminated sites policy framework that will address these issues.
7. Targets for organochlorines
7.1 By December 2010, New Zealand will have met international obligations under the Stockholm Convention to collect and destroy PCBs and organochlorines pesticide wastes
7.2 By December 2020, the average body burdens of dioxins will have been reduced to 10 percent of current levels
Interpretation
Targets for organochlorines reflect the concern held internationally over the toxicity of this group of chemicals. They demonstrate the government's intention that New Zealand will meet its obligations under the Stockholm Convention on persistent organic pollutants including a reduction of emissions to protect human health and ecosystems.
Action
Legislative amendments have been introduced into Parliament to enable New Zealand to ratify the Stockholm Convention.
The Ministry has proposed a national environmental standard to control dioxin emissions to air from combustion sources; is collecting data to assess the significance of dioxin discharges from other sources; and is developing soil acceptance criteria for dioxin involving land contamination and the application of materials containing dioxin (e.g. biosolids) to land. Meeting the dioxin target will depend on implementing measures to reduce dioxin emissions below current (estimated) levels.
The Ministry continues to work on a whole of Government approach to organochlorines, including dioxin issues in New Plymouth and Whakatane.
8. Targets for trade wastes
8.1 By December 2005, all territorial local authorities will have implemented and will be monitoring Model General Trade waste By-laws based on the New Zealand Standard Model General By-laws or Part 23 - Trade wastes or its equivalent
8.2 By December 2005, all territorial local authorities will ensure that all holders of new or renewed trade waste permits will have in place a recognised waste minimisation and management programme
Interpretation
The increasing emphasis on the beneficial reuse of biosolids is placing more importance on ensuring trade waste inputs are effectively controlled. Yet it is known that approximately 20 % of territorial authorities have not implemented a Trade Waste Bylaw.
The target allows for the adoption of the New Zealand Standard Model General By-law, or an equivalent. This is to allow for variations in local trade inputs.
The requirement to implement a recognised waste minimisation and management programme is restricted to liquid wastes, as it is ultra vires to control solid waste via a trade waste bylaw. New Plymouth and Wellington City Council are requiring waste minimisation plans through trade waste permits.
Action
The New Zealand Water and Waste Association is to undertake a review of the New Zealand Standard Model Trade Waste By-law, although this review awaits finalisation of the new local government legislation. The Ministry for the Environment will be involved in the proposed review.
9. Targets for waste disposal
9.1 By December 2003, local authorities will have addressed their funding policy to ensure that full costs recovery can be achieved for all waste treatment and disposal processes
9.2 By December 2005, operators of all landfills, cleanfills and wastewater treatment plants will have calculated user charges based on the full costs of providing and operating the facilities and established a programme to phase these charges in over a time frame acceptable to the local community
9.3 By December 2005, all cleanfills will comply with the cleanfill disposal guidelines
9.4 By December 2010, all substandard landfills will be upgraded or closed
Interpretation
Full cost recovery means charging for disposal in a way that recovers all easily identifiable costs for development, operation and aftercare. For landfills, the Landfill Full Cost Accounting Guide for New Zealand provides clear guidance on how to identify and quantify these costs.
Cleanfills are disposal sites that accept only clean fill material as defined in the Guide to the Management of Cleanfills.
A substandard landfill is a landfill site that is clearly inconsistent with the intent of the CAE Landfill Guidelines.
Action
The Ministry has published a series of guidelines relating to aspects of good practice in landfill siting, design and operation. The Ministry has completed, in September 2002, a review and audit of landfills in New Zealand which indicates the current prospects of the landfill targets being met.
9.5 By December 2020 all substandard waste water treatment facilities will be upgraded, closed or replaced with systems that comply with all relevant regional and coastal plans, standards and guidelines
Interpretation and Action
In June 2002, the Ministry and the New Zealand Water Environment Research Foundation (NZWERF) hosted a workshop to define the scope of work required to meet the key wastewater actions defined in the New Zealand Waste Strategy. The work programme proposed will include the development of a discussion paper to help clarify what constitutes a "substandard facility". The report on the findings of this workshop are available through the Ministry or NZWERF.
This information about targets was last updated on 1 May 2007.
Last updated: 2 April 2008
