SUMMARY
Introduction
In 2006-07 some 43.7 million tonnes of waste was generated in Australia. The
management of waste has been on the national and State environmental agenda for
at least the last 20 years.
This paper is divided into two parts. The first part looks at the waste data of
the mainland States: Queensland; NSW; Victoria; South Australia; and Western
Australia. The comparative performances of these jurisdictions are briefly
commented upon. Part two of the paper looks at the institutional arrangements
and waste management policies of these States.
Limitations of Waste data
National information on waste and resource recovery is limited and there are
differences from jurisdiction to jurisdiction in how data is collected and
reported. This makes comparison of figures, such as disposal and recovery rates
across States and Territories, problematic.
Comparative Waste Data
In 2002-03 the mainland States of Australia had a total generated waste of some
31.7 million tonnes. By 2006-07, total generated waste had increased by some
33% to a total of 42.3 million tonnes. In raw tonnage terms NSW contributed the
most (15.3 million tonnes). Perhaps of more interest are the raw tonnage
statistics reported on a per capita basis. Analysis of the data shows that:
In 2002-03 South Australia had the highest per capita waste, but by 2006-07
Western Australia had the highest;
South Australia was the only State to reduce its per capita total generated
waste over the time period 2002-03 to 2006-07;
The greatest percentage increase in total generated waste between 2002-03 and
2006-07 was by Queensland – up 83%. However, Queensland had the lowest
per capita tonnage;
The per capita total generated waste for NSW was up 22% over the time period
(at 2.23 tonnes per person in 2006-07).
The diversion rate is the proportion of total generated waste that is recycled
rather than disposed. It is often expressed as a percentage of the total waste
generated. Currently South Australia has the highest diversion rate –
66%, with Victoria (62%) and NSW (52%) following.
There are three main components to the waste stream. These are:
Municipal waste;
Commercial and Industrial waste; and
Construction and Demolition waste.
In 2006-07 South Australia had the highest municipal diversion rate (54%),
compared to NSW at 38%. The lowest was Western Australia at 29%.
In 2006-07 Victoria had the highest Commercial and Industrial diversion rate
(69%). In contrast, NSW had the lowest Commercial and Industrial diversion rate
(44%).
The Construction and Demolition waste diversion rate for NSW for 2006-07 was
67%. The highest diversion rate was South Australia (79%), whilst the lowest
was Western Australia (17%).
The Institutional Waste Framework
New South Wales
The
Protection of the Environment Operations Act 1997 provides for
setting environmental standards, goals, protocols and guidelines. The
Waste
Avoidance and Resource Recovery Act 2001 requires the development of a NSW
waste avoidance and resource recovery strategy. The Act also established a
framework for extended producer responsibility schemes for industry.
In October 2007 the Department of Environment and Climate Change published the
NSW Waste Avoidance and Resource Recovery Strategy 2007. The Strategy aims to
maximise the conservation of natural resources by avoiding waste and minimising
environmental harm from waste management and disposal of solid waste.
The
Protection of the Environment Operations Act 1997 requires licensed
waste facilities in NSW to pay a contribution in respect of each tonne of waste
received for disposal at the facility. The levy rate for 2010-11 for the Sydney
metropolitan area is $70.30 per tonne.
In March 2010 the NSW Government introduced the
Waste Processing and
Recycling Corporation (Authorised Transaction) Bill 2010 (No 2). With the
assent of the Act on the 23 March 2010, the legislation permits the Government
to privatise the publicly owned Waste Processing and Recycling Corporation,
which trades as WSN Environmental Solutions. It has been reported that the sale
of WSN is on track to be completed by the end of 2010.
Victoria
The Victorian Environment Protection Authority (EPA) is responsible for the
development and implementation of Victoria's statutory framework for waste. The
Environment Protection Act 1970 is the principal piece of legislation
regulating the waste industry in Victoria. Amendments to the Act in 1985
introduced industrial waste management policies. In 2002 the
Environment
Protection (Resource Efficiency) Act permitted the Environment Protection
Authority to develop waste management policies. This change meant that policies
that deal with municipal waste could also be developed.
The Victorian Zero Waste Strategy was launched in 2005. The strategy
established four Statewide targets for waste reduction, resource recovery and
littering by 2014. The strategy contains 28 key actions made up of industry
incentives, education, and advisory support. Strategies focus on the
improvement of waste management systems and infrastructure, the establishment
of product stewardship agreements, the development of both new and existing
markets for recycled products, and raising the awareness and
capacity of communities and business.
A new statutory authority,
Sustainability
Victoria, was established to support and coordinate the implementation of
Towards Zero Waste. Sustainability Victoria
develops Statewide strategies
for municipal, commercial and industrial wastes. It provides information and
advice to business, government and the community on various issues including:
recycling; energy efficient buildings; and green power.
Levies apply to municipal, commercial and industrial and prescribed industrial
wastes deposited onto land at licensed facilities in Victoria. The current levy
for metropolitan and provincial Melbourne is $30 per tonne, rising to $40 per
tonne in 2011-12.
Queensland
Waste in Queensland is currently regulated by the
Environmental Protection
Act 1994, the Environmental Protection Regulation 2008 and the
Environmental Protection (Waste Management) Policy 2000.
The policy establishes a preferred waste management hierarchy and principles
for achieving good waste management. The Waste regulations give legislative
support to various national guidelines, plans and Australian Standards, while
the Environmental Protection Regulation provides the ability to licence and
apply conditions of operation to certain activities, including waste transfer
stations, regulated waste treatment facilities and waste disposal facilities.
Waste legislation in Queensland is administered by the Department of
Environment and Resource Management in Queensland.
The Queensland Waste Management Strategy 1996 aims to minimise or avoid impacts
on the environment due to waste whilst allowing for economic growth. In October
2007 the discussion paper
Let’s Not Waste Our Future was released
to seek public input into the development of a new waste strategy and waste
reform for Queensland. However, the document has not progressed past the
discussion paper stage.
Queensland does not have a landfill levy or legislated landfill bans. However,
in May 2010 the Queensland Minister for the Environment was reported as saying
that the Government was considering the introduction of a waste levy, amid
concerns that the State would become a dumping ground for waste from other
States.
Western Australia
The
Environmental Protection Act 1986 and its associated regulations
established a licensing framework which covers a variety of waste facilities.
The
Waste Avoidance and Resource Recovery Act 2007 and its associated
regulations established the Waste Authority on 1 July 2008. The key
responsibilities of the Authority are:
the development of a long-term waste management strategy for Western
Australia;
to improve waste services;
to avoid generating waste;
to set targets for resource recovery.
The Waste Authority is fully funded through the Waste Avoidance and Resource
Recovery Account. The second draft of the State Waste Strategy created under
the
Waste Avoidance and Resource Recovery Act 2007 was released for
public comment in March 2010.
The
Waste Avoidance and Resource Recovery Levy Act 2007 established the
power to prescribe a landfill levy. The levies have risen substantially for
2010. For instance, landfill levies for putrescibles increased from $8 per
tonne in 2009 to $28 per tonne for 2010. Similarly, for inert materials the
levy increased from $3 per tonne in 2009 to $12 per tonne for 2010.
South Australia
The Environment Protection Authority is South Australia's primary environmental
regulator, responsible for the protection of air and water quality, and the
control of pollution, waste, noise and radiation. The Authority developed the
Environment Protection (Waste to Resources) Policy, which is due to
commence on 1 September 2010. The Policy will require waste from metropolitan
Adelaide to be taken to resource recovery facilities prior to disposal at
landfill, and bans a variety of wastes from landfill.
Zero Waste SA was established by the
Zero Waste SA Act 2004. Zero Waste
SA is the primary agency responsible for the target ‘reduce waste to
landfill by 25% by 2014’ in
South Australia’s Strategic
Plan. Zero Waste SA developed a
Waste Strategy 2005–2010. A
Consultation Draft for the next phase (2010-2015) was released in August 2010.
The first Waste Strategy (2005-2010) focused on introducing kerbside recycling
systems in Adelaide and engaging communities in recycling practices. The new
Draft Strategy redirects the main waste focus from recycling to reducing and
avoiding waste.
The
Zero Waste Act 2004 also established the Waste to Resources Fund. As
of July 2010, a landfill levy in South Australia was payable at a rate of $26
per tonne in metropolitan areas and $13 per tonne in non-metropolitan areas.
It should also be noted that South Australia has a container deposit refund
scheme. This was introduced in 1977, and allows South Australians to collect a
ten cent refund deposit for each beverage container they return to a recycling
depot. South Australia has also banned lightweight plastic bags.
Conclusion
Whilst the limitations of the data discussed in section one of this paper must
be considered, it could be argued that the most successful State in terms of
waste minimization and recovery is South Australia. If this conclusion holds,
the obvious question is why? Is it solely due to the work of ZeroWaste SA? Or
is the awareness of waste issues heightened in South Australia by their
container deposit legislation and, more recently, the ban on lightweight
plastic bags?