Article VII. 6 Proposed Monitoring and Evaluation System

Section 7.01 6.1 Introduction

As noted in the previous section, no comprehensive monitoring and evaluation system has yet been put in place for assessing progress towards meeting the targets in the New Zealand Waste Strategy. Work has, however, been done on some activities that could form the foundations of a monitoring system. This section outlines a proposed monitoring system that will:

consistently measure and report waste data
collect data only where required for assessing progress toward meeting targets
be as simple as possible.

The proposed monitoring and evaluation system will be based on several key information sources, including (information provider in brackets):

the Solid Waste Analysis Protocol Baseline Programme (Ministry for the Environment and local authorities)
waste disposal data (landfill operators)
a biennial review of local authority reporting (Ministry for the Environment and local authorities).

A key to the implementation of the New Zealand Waste Strategy, and by implication the monitoring and evaluation of the strategy, is a collaborative approach involving the Ministry for the Environment, local government and industry. The remainder of this section outlines aspects of the proposed monitoring and evaluation system and identifies the agencies that would be responsible for providing information. An outline of the proposed reporting format is included in the annexes to this report.

Section 7.02 6.2 SWAP Baseline Programme

The Ministry for the Environment has instituted a Solid Waste Analysis Protocol (SWAP) Baseline Programme to provide solid waste composition information at four indicator sites in New Zealand. The objective of the programme is to establish generic waste composition data for New Zealand and to provide a basis for designing and interpreting SWAP surveys throughout New Zealand. The data is available through the Ministry website (http://www.mfe.govt.nz/issues/waste/waste-data/index.html).

A number of local authorities and landfill operators around New Zealand are also undertaking periodic SWAP surveys, either as required by consent conditions (Auckland and Taranaki) and/or to obtain information for their waste management planning process (Gisborne, Westland, Marlborough and Christchurch).

SWAP results include a breakdown of waste composition into 12 primary categories [Paper, plastic, putrescible, glass, ferrous metal, non-ferrous metal, textile, rubber, nappies/sanitary, rubble/ concrete, timber, potentially hazardous.] for all surveys, and in some cases selected secondary categories. [For example, putrescible into garden/non-garden, plastics into resin codes.] SWAP results are also often reported by source (commercial versus residential and/or various commercial activities).

Section 7.03 6.3 Waste disposal data

With the progressive introduction of charging at landfills in New Zealand there are now records of waste quantities for most of the waste being disposed to landfill. While many small sites charge for and record waste quantities based on volume, all major landfills (where the majority of waste in New Zealand is disposed) charge for and record waste disposal on a tonnage basis. Where landfills are local authority controlled, this information is in the public domain and therefore available for reporting against New Zealand Waste Strategy targets.

Where landfills are privately owned, the information about specific clients may be considered commercially sensitive. Total disposal quantities are, however, likely to be reported to the consenting authority. Landfill operators should be able to estimate the source of waste (by territorial local authority area) without compromising commercial sensitive data. However, some operators may prefer to make this information available on a regional basis only to protect their commercial interests.

The Ministry has been working with local authorities in the Waikato and Bay of Plenty regions on a waste data pilot project. This project aims to identify and remove barriers to sharing both disposal and diversion data. Preliminary results from the project (including waste disposal, composting and estimates of recycling quantities) are available from the Ministry website (http://www.mfe.govt.nz/issues/waste/waste-data/pilot.html). In this model, waste data (including disposal and organics diversion) is collated and reported on a regional basis.

Section 7.04 6.4 Ministry for the Environment survey

The Ministry for the Environment maintains a watching brief [In many cases it is also involved through funding (Sustainable Management Fund) or as a participant/ stakeholder.] on issues and initiatives relating to waste management around New Zealand. There are several targets that can be monitored using this approach with no further survey or measurement required. In this context we have information about kerbside recycling, adoption of the New Zealand Waste Strategy and adoption of local targets for organic and other waste streams.

In some cases, however, for the Ministry to report progress toward national targets we will be dependent on information specifically collected by territorial local authorities or regional councils. Where local authorities are reporting as recommended in Annex II, this information should be readily available and easy to translate into the Ministry's reporting format by reviewing existing publications, such as territorial local authority and regional council annual reports, regional council compliance/ monitoring reports and regional council state of the environment reporting. Where information is not available through these reports, the Ministry proposes to biannually survey local authorities (with questions answered, where possible, through review of annual plans/reports).

Section 7.05 6.5 Proposed cleanfill surveys

Data about the composition and quantity of waste disposed of at cleanfills is generally unavailable. The Ministry proposes to work with several local authority groups to undertake surveys of cleanfills to provide a basis for estimating cleanfill disposal. This material may be supplemented by information from local surveys and will be used to assist in assessing progress towards meeting the construction and demolition waste targets and waste disposal targets.

Section 7.06 6.6 Local authority reporting

For many of the non-quantitative targets in the New Zealand Waste Strategy there is an implicit assumption that local authorities will report on implementation/progress at a local and/or regional level. In many cases commitment to the targets has been articulated in waste management plans, and aspects of implementation are to be reported through the annual planning and reporting process. While Target 1.1 [Local authorities will report their progress on waste minimisation and management generally for their annual report in 2001/02 and quantitatively on an annual basis from then onwards.] addresses the reporting issue, there needs to be guidance on the form of the reporting to enable comparisons between local authorities and to simplify national aggregation of progress reports. The Ministry will work with councils in providing this guidance.

Annex II includes suggested reporting formats for territorial local authorities and regional councils. Any reporting format adopted should clearly outline the source of the information presented and ensure that local and regional comparisons can be easily made.

Section 7.07 6.7 Resource implications

There will be costs associated with collecting and reporting waste. We have estimated resource requirements (staff time and operational expenditure) for the Ministry for the Environment, territorial local authorities and regional councils below.

(a) The Ministry for the Environment

The Ministry has committed resources to the SWAP Baseline Programme [SWAP baseline funding has been committed for eight surveys at each baseline site over a two-year period only.] and waste data pilot project currently operating in the Waikato and Bay of Plenty. The proposed review of annual reports and follow-up survey will also be undertaken by the Ministry.

(b) Territorial local authorities

Several territorial local authorities are partnering the Ministry on the SWAP Baseline Programme. [SWAP baseline funding has been committed for eight surveys at each baseline site over a two-year period only.] Many other local authorities undertake periodic SWAP surveys for waste management planning and state of the environment reporting purposes. Where territorial local authorities provide waste management services they already have waste data, and we consider that few additional resources would be required to use this information to report, as proposed, against targets.

Several of the New Zealand Waste Strategy targets relate to the planning and regulatory functions of territorial local authorities. In this case reporting against targets involves providing brief comment on progress towards implementing initiatives, such as a district plan rule requiring provision for recycling in multi-unit buildings.

(c) Regional councils

The regional councils involved with the Waikato / Bay of Plenty waste data pilot project are currently putting resources into gaining a picture of waste management in their respective regions through working collaboratively with territorial local authorities and the waste management industry. In addition to collating waste disposal and composting data, local authorities involved with the pilot project are jointly funding SWAP surveys. There will be some ongoing costs. The resource implications of the proposed monitoring and evaluation system will be discussed with councils in the further development of the system.

Section 7.08 6.8 Other issues

There are a number of other issues that will need to be worked through with local authorities in putting in place a monitoring and evaluation system. Some of theses are mentioned briefly below and discussed in more detail in Annex II.

(a) Measuring qualitative targets

As noted elsewhere in this report, there is a need to clarify the basis for measuring progress towards some targets, especially the qualitative targets covering organic and construction and development wastes. There are different options for reporting against these wastes and the Ministry will provide advice on the use of these options.

(b) Volume conversion

The Ministry is proposing that waste be consistently measured by weight. Some authorities still measure waste by volume, so there needs to be a formula for converting volume to weight measurements in a consistent way. Proposed conversions are detailed in Annex II.

(c) Reporting progress

Standard reporting formats are desirable to maintain a consistent approach among councils. Suggested formats for reporting by territorial authorities and regional councils are provided in Annex II. These will be further developed in consultation with councils. A suggested format for reporting by the Ministry for the Environment is also provided as a point for discussion.

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