Population income level and consumption, and the composition of industries are the strongest factors determining the environmental impacts of a society. However, a prosperous and well-educated society has opportunities for managing environmental impacts and restoring the environment.
The ACT Government response to the drivers of environmental change, pressures on the environment and their impacts is implemented in a framework that seeks environmental, social and economic sustainability.
For 2011–2015, The Canberra Plan: Towards Our Second Century (2008) provided the strategic vision and themes for maintaining and improving the livability and sustainability of the ACT. Seven strategic priorities were articulated in the plan:
- quality health care
- a fair and safe community
- excellent education, quality teaching and skills development
- a strong, dynamic economy
- a vibrant city and great neighbourhoods
- a sustainable future
- high-quality services.
Other documents provide more details and outline the roles of government agencies, community organisations, businesses and residents in pursuing the vision. The highest-level plans are:
- Canberra Social Plan 2011
- Capital Development: Towards Our Second Century
- ACT Planning Strategy: Planning for a sustainable city
- Weathering the Change, the 2007 ACT climate change policy, which was succeeded in 2012 by AP2: A new climate change strategy and action plan for the Australian Capital Territory
- People, place, prosperity: the ACT’s sustainability policy 2009
- ACT Government infrastructure plan 2011–2021.
The key environmental challenge of enabling sustainable urban development to accommodate an expanding population was addressed through the ACT Planning Strategy, published in 2012. This strategy seeks to achieve six interrelated outcomes:
- Outcome A: In 2030, Canberra will be a city that makes it easy for people to make more sustainable living choices, and has the resourcefulness and capacity to manage change.
- Outcome B: In 2030, Canberra will be a city where everyone can take advantage of its network of centres, open spaces and modes of travel to enjoy a sense of wellbeing and participate in a vibrant civic cultural life.
- Outcome C: In 2030, Canberra will be at the centre of an innovative, prosperous region that has established a diverse ‘clean’ economy, and has a wide choice in jobs and lifestyles.
- Outcome D: In 2030, Canberra will be the ‘capital in the bush’, recognised for the quality of its public places and buildings that reflect its unique climate, character and identity.
- Outcome E: In 2030, Canberra will be at the centre of a region that demonstrates the benefits of good stewardship of the land and its resources, and the beauty of the rivers, mountains and plains.
Chapter 9 contains additional information about the indicators and measures under each of the outcomes.
3.4.1 Waste management strategy
In 1996, the ACT Government set a goal of achieving no waste going to landfill, through the adoption of the No Waste by 2010 waste management strategy for Canberra. Achievements under this strategy were considerable, as exemplified by the great increase in the resource recovery rate from 50% to 70–75%. However, increasing waste generation and unexploited opportunities for resource recovery necessitated a new waste strategy to build on these achievements. At the time of completion of the 2011 State of the Environment Report, the draft of the new strategy was open for public comment. The resulting ACT Waste Management Strategy 2011–2025: Towards a sustainable Canberra was published in December 2011.
The 2011–2025 strategy was adopted by the ACT Government with the goal of ensuring that the ACT leads innovation to achieve full resource recovery and a carbon-neutral waste sector (Table 3.6).30
Much of Canberra’s solid waste (70–75%) is recycled. The photo shows bales of sorted material awaiting transport to recycling facilities in Australia or overseas.Photo: ACT NoWaste/TAMS
Table 3.6 Outcomes, targets and strategies of the ACT Waste Management Strategy 2011–2025
| Outcomes | Less waste generated | Full resource recovery | A clean environment | Carbon-neutral waste sector |
|---|---|---|---|---|
|
Target |
|
|
|
|
|
Strategies |
1.1 Awareness, education and action 1.2 Support for community gardens and home composting 1.3 Ban single-use plastic shopping bags 1.4 Reduce packaging waste 1.5 Promote reuse through ACT businesses and charities 1.6 Promote reuse through bulky waste collection service 1.7 Encourage onsite reuse for construction and demolition waste |
2.1 Boost commercial waste recycling 2.2 Recover organic and residual waste resources 2.3 Develop markets for organic and residual waste resources 2.4 Provide free drop-off facilities for electronic waste 2.5 Promote education and active recycling 2.6 Government procurement 2.7 Public place recycling 2.8 Public event recycling 2.9 Develop markets for recyclable materials and strengthen regional connections 2.10 Disincentives to use landfill, including appropriate pricing and regulation |
3.1 Reduce litter and dumping through laws and raising awareness 3.2 National approaches to litter management 3.3 Develop the Hume Resource Recovery Estate 3.4 Maintain a safe and environmentally responsible landfill to meet the ACT’s future needs 3.5 Manage hazardous waste 3.6 Increase soil reuse and rehabilitation 3.7 Review waste operations and urban planning requirements for multi-unit dwellings |
4.1 Methane capture from landfill 4.2 Minimise organic waste to landfill 4.3 Expand bioenergy generation and investigate new energy-from-waste technologies to generate energy 4.4 Increase recycling to avoid greenhouse gas emissions 4.5 Ensure energy-efficient waste collection and transport solutions |
Source: Economic and Sustainable Development Directorate30
There are also other strategies that complement the 2011–2025 strategy. For example, in line with recommendations made in the 2008 State of the Environment Report, the ACT Government provided funding for public place recycling. A 12-month trial was initiated by Actsmart Public Events in 2011, and is now an ongoing program. Manuka Oval and Canberra Stadium (both members of the Actsmart Business Recycling program – see Case study 3.1) have implemented recycling for all sporting events held at these grounds.38
Progress against the strategy
The 2011–2025 strategy has improved rates of recycling and waste recovery for residents, businesses, workplaces, schools, public places and public events participating in these programs. Educational programs have been rolled out for businesses and schools (see Case study 3.1).
A ban on single-use shopping bags was implemented in November 2011. The main focus of the ban is nonbiodegradable bags, wholly or partly made of polyethylene, with a thickness of less than 35 microns (typically those used for packing groceries and takeaway food). Education and awareness programs were conducted to raise awareness of the new ban.39 The ban was reviewed in 2014 and has been reported to be successful in reducing waste to landfill.40
However, the ACT Government has proceeded very cautiously, if at all, with a number of key actions that have the potential to reduce waste to landfill, and to produce waste from energy and reduce greenhouse gas emissions from the waste sector. These actions are:
- developing markets for recyclable materials and strengthening regional connections (Strategy 2.9)
- minimising organic waste to landfill (Strategy 4.2), which was identified in the previous State of the Environment Report as an important focus for future waste reduction efforts
- investigating new energy-from-waste technologies for wastes that do not have another market (Strategy 4.3). Further actions to enable the development of energy-from-waste facilities to produce renewable bioenergy by converting wood waste, dirty paper, fabrics and other materials to energy have not been announced. However, on 7 March 2014, the Minister for the Environment and Sustainable Development announced a policy that allows for up to 23 megawatts of feed-in tariff entitlement for an advanced thermal waste-processing facility.
In the 2015–16 Budget, the ACT Government committed more than $2.8 million for a feasibility study to determine how the ACT can facilitate the delivery of expanded resource recovery services and the generation of electricity from waste, including any required investment in infrastructure. TAMS is managing the feasibility study, and is approaching it from a technology-neutral and outcomes-focused perspective. A systematic audit of the accuracy of ACT waste data will be carried out as part of the study.
Data for the reporting period indicate that the historical tendency for the ACT to generate increased levels of waste overall has continued. It is not evident that implementation of the strategy has yet been effective in creating progress towards full resource recovery. As noted earlier, the resource recovery rate has stabilised at around 70–75% since 2005–06, which is short of the target of the waste management strategy for resource recovery of more than 80% by 2015. Meeting this target will be difficult, because commencement of operations of any expanded infrastructure for resource recovery services and the generation of electricity from waste will require some years and significant resources. Nevertheless, the target of more than 90% recovery by 2025 can feasibly be met.
Progress towards a carbon-neutral waste sector will be highly dependent on the development of waste from energy. This is also likely to be slow, given the unavoidable lags in building the necessary infrastructure.
The ACT Government has taken initial steps towards a review of the Waste Minimisation Act 2001, which was designed to produce a more effective and efficient regulatory framework. Consultation with waste industry stakeholders took place from December 2014 to April 2015.
An OCSE assessment of progress against the waste management strategy based on publicly available information is shown in Table 3.7.
Table 3.7 Implementation status for the ACT Waste Management Strategy 2011–2025
| Strategy | Implementation status | Comments from the OCSE |
|---|---|---|
|
1.1 Awareness, education and action |
Implemented ongoing activity |
There are numerous ACT NOWaste and Actsmart activities, including the Actsmart Business and Public Event recycling programs, and Actsmart Schools program. During 2011–2014, there were presentations and facility tours for more than 40 000 people.41–43 The NOWaste website provides an A–Z guide to recycling opportunities19,44 |
|
1.2 Support for community gardens and home composting |
Progressed in part |
Canberra has approximately 20 community gardens (not including those on school grounds). Many of these operate under licence on Territory Land. Government financial support for community gardens will commence with a $25 000 grant program in 2015–16.45 Educational material on composting is available from the Actsmart website (www.actsmart.act.gov.au) |
|
1.3 Ban single-use plastic shopping bags |
Implemented |
The Plastic Shopping Bags Ban Act 2010 came into force in November 2011. A 2014 review found the ban had been successful in reducing plastic bag material going to landfill and reducing the incidence of plastic bags in litter40 |
|
1.4 Reduce packaging waste |
Progressing but not quantifiable |
The Actsmart Business Recycling program contains a smart purchasing component that requires participants to look at producing less packaging. The EPD notes that the Government supports the Australian Packaging Covenant. Packaging made of some plastics, paper and cardboard is recycled in the ACT, but there are no references to policy measures aimed at reducing packaging waste in TAMS annual reports or websites32 |
|
1.5 Promote reuse through ACT businesses and charities |
Implemented ongoing activity |
Numerous businesses participate in recycling and carry out functions in the recycling streams, including the Green Shed at both Mitchell and Mugga Lane resource management centres. Charities are involved in recycling, particularly for used clothing (eg St Vincent de Paul, the Smith Family and the Salvation Army) and books (eg Lifeline Canberra)44,46,47 |
|
1.6 Promote reuse through bulky waste collection service |
Implemented ongoing activity |
A bulky waste collection trial started in April 2011 on a fee-for-service basis, with one free collection for concession-card holders. Implementation continued through subsequent years, and ended in 2013–1448,49 |
|
1.7 Encourage onsite reuse for construction and demolition waste |
Progress unknown |
The extent of onsite reuse is not known, but construction and demolition waste to landfill is very low compared with historical levels, and recycling is high (NOWaste data provided by TAMS) |
|
2.1 Boost commercial waste recycling |
Progress unknown |
Data on recycling streams provided by TAMS do not enable any trend in commercial waste recycling to be ascertained. The Actsmart Business Recycling program boosts recycling among participating businesses. The commercial waste MRF has not been implemented |
|
2.2 Recover organic and residual waste resources |
Some progress |
An expressions-of-interest process in 2013 identified requisite technologies and markets for recovery of organic waste. The 2015–16 Budget allocated $2.8 million to progress a business case for new infrastructure. This will enable the Government to go to market in 2017 to procure the infrastructure if it chooses to The Actsmart programs are improving the level of recovery among schools, public events and businesses. The recovery of organic wastes is carried out by private contractors (ACT EPD, pers comm, 1 October 2015) |
|
2.3 Develop markets for organic and residual waste resources |
Limited progress |
There are a number of viable organics recycling businesses in and around the ACT. The Actsmart Business Recycling program has boosted the expansion of this market |
|
2.4 Provide free drop-off facilities for electronic waste |
Implemented for computers and televisions |
Canberra residents are able to dispose of their old or unwanted television and computer products for free under the National Television and Computer Recycling Scheme at several locations in the ACT50 |
|
2.5 Promote education and active recycling |
Implemented ongoing activity |
NOWaste and Actsmart educational resources and activities have been successfully implemented |
|
2.6 Government procurement |
Implemented ongoing activity but not quantifiable |
In ACT Government procurement, environmental impacts may be taken into account, including volume and type of waste generated, level of toxic and hazardous substances involved, and reuse and recycling options and disposal51 |
|
2.7 Public place recycling |
Implemented ongoing activity in some locations |
In December 2011, 37 recycling bins became operational in Civic, and an unknown number subsequently became operational in other locations following success in Civic19 |
|
2.8 Public event recycling |
Implemented ongoing activity |
The Actsmart Public Event program was implemented on a trial basis in 2011–12 and has continued successfully through subsequent years52–56 |
|
2.9 Develop markets for recyclable materials and strengthen regional connections |
Progress unknown |
The ACT Government provides waste and recycling services to Queanbeyan City Council. The strategy commits the Government to continue working with the South East Regional Organisation of Councils and look at opportunities to expand the ACT regional role by increasing access to ACT resource recovery facilities30 |
|
2.10 Disincentives to use landfill, including appropriate pricing and regulation |
Some progress |
The strategy states that the aim of future charging will be to encourage resource recovery and discourage waste being dumped or going to landfill, and that regulation can complement price signals – for example, by banning recyclable wastes from landfill.57 Landfill charges are increased annually. |
|
3.1 Reduce litter and dumping through laws and raising awareness |
Implemented without success |
The Keep Australia Beautiful National Litter Index shows that, for the reporting period, litter is on average not decreasing in the ACT compared with 2007–201058 |
|
3.2 National approaches to litter management |
Progress unknown |
There are no relevant references on the TAMS or EPD websites, or in their annual reports. The Keep Australia Beautiful National Litter Index shows that, on average, litter is not decreasing in the ACT, but it is decreasing in Australia overall.58 The ACT participates in national approaches to littering, including the Australian Packaging Covenant |
|
3.3 Develop the Hume Resource Recovery Estate |
Ongoing activity |
In June 2012, the ACT Auditor General recommended that a long-term estate management plan be developed, which TAMS agreed to.59 This was not funded. In the 2015–16 Budget, the ACT Government committed more than $2.8 million for a feasibility study to determine how the ACT can facilitate the delivery of expanded resource recovery services, including any required investment in infrastructure |
|
3.4 Maintain a safe and environmentally responsible landfill to meet the ACT’s future needs |
Ongoing activity, implementation not fully successful |
Activities in 2013–14 included extending the Mugga Lane landfill and improving the stormwater system. Mugga Lane is intended to be the ACT’s only operating landfill, but media reports from September 2014 and February 2015 state that the closed Belconnen landfill was reopened because the Mugga Lane landfill was closed between October and November 2015 as a result of insufficient capacity. This was due to poor forecasting of needs and failure to communicate with the contracted operator. These issues were addressed by TAMS following a review commissioned from PriceWaterhouseCoopers, so that, by mid-2015, two new landfill cells that had been delayed would be opened, ensuring that capacity would be sufficient until 2018.60,61 The Government allocated $21 million for the expansion of the landfill cells at the Mugga Lane Resource Management Centre in the 2015–16 Budget. |
|
3.5 Manage hazardous waste |
Ongoing activity |
Management activities are not described in detail in TAMS annual reports. However, the NOWaste website informs households about disposal points (Mitchell, Mugga Lane, Belconnen) and that disposal via businesses that specialise in hazardous waste disposal is possible. The ACT Property Group is undertaking activities to ensure safe management of asbestos in nonresidential government buildings42,43,62 |
|
3.6 Increase soil reuse and rehabilitation |
Some progress |
There has been successful rehabilitation at a number of contaminated sites, including closed petrol stations and the Kingston Foreshore. Large amounts of virgin excavated natural material (soil) have been used in the ongoing construction of Majura Parkway. The 2015–16 Budget provided funds for Mugga 2 quarry to open up to accept virgin excavated natural material, and this rehabilitated the site (EPD, pers comm, 1 October 2015) |
|
3.7 Review waste operations and urban planning requirements for multi-unit dwellings |
Progressing but not quantifiable |
The scope of this strategy is not clear. However, one relevant action – review and revision of the Development control code for best practice waste management in the ACT – was completed in 201463 |
|
4.1 Methane capture from landfill |
Ongoing activity since 2010 |
Methane captured at Belconnen and Mugga Lane landfills is converted to 29 000 MW of electricity each year19-21,49 |
|
4.2 Minimise organic waste to landfill |
Ongoing activity |
Annual garden waste recovery and composting has increased substantially (by 43%) in 2011–2015. The ACT Government decided against household organic waste collection on the basis of the Hyder report.64 Organics recycling in workplaces is undertaken by contractors to participating organisations, and is encouraged by Actsmart Business and Actsmart Schools programs. The EPD and Actsmart websites provide guidance on home composting and commercial composting.65 OzHarvest Canberra collects excess food from restaurants and redistributes it to vulnerable people in need (NOWaste data provided by TAMS) |
|
4.3 Expand bioenergy generation and investigate new energy-from-waste technologies to generate energy |
Some progress |
On 7 March 2014, the Minister for the Environment and Sustainable Development announced a policy that allows for up to 23 MW of feed-in tariff entitlement for an advanced thermal waste-processing facility. In the 2015–16 Budget, the ACT Government committed more than $2.8 million for a feasibility study to determine how the ACT can facilitate the delivery of expanded resource recovery services and the generation of electricity from waste, including any required investment in infrastructure |
|
4.4 Increase recycling to avoid greenhouse gas emissions |
Ongoing activity |
The tonnage of total resource recovery is increasing, but resource recovery per head is not (NOWaste data provided by TAMS). Greenhouse gas emissions from landfill have declined dramatically, but the separate contributions of recycling and methane gas recovery are not known22 |
|
4.5 Ensure energy-efficient waste collection and transport solutions |
Ongoing activity Progress on efficient transport solutions is unknown |
The ACT’s waste management systems have a high rate of sorting, separation and recycling, which is consistent with energy efficiency, although the recycling rate has reached a plateau. There is no information on the TAMS and EPD websites or in their annual reports about energy-efficient waste transport |
EPD = Environment and Planning Directorate; MRF = material recovery facility; MW = megawatt; OCSE = Office of the Commissioner for Sustainability and the Environment; TAMS = Territory and Municipal Services
Source: Compiled by the OCSE from the sources in the table.