GOOD PRACTICE Limerick/Clare/Kerry Region (now part of the larger Southern Region): Mixed Dry Recyclable Bin (MDR Bin) September 2014
Content table 1. General information on the good practice (GP)... 3 1.1 General information... 3 1.2 Context... 4 1.3 Short description... 5 1.4 Objective... 5 1.5 Method used to identify the good practice... 5 1.6 External factors... 6 2. Implementation... 6 2.1 Preparation phase... 6 2.2 Technical implementation... 7 2.3 Communicative implementation... 7 2.4 Organisations involved... 9 2.5 Key success factors... 10 2.6 Resources... 11 3. Results... 11 3.1 Monitoring of the progress of the GP... 11 3.2 Other results... 12 4. Lessons learned... 13 4.1 Negative effects... 13 4.2 Challenges... 13 5. Pictures and other documentation... 15 6. Further information... 16 GOOD PRACTICES 2
1. GENERAL INFORMATION ON THE GOOD PRACTICE (GP) 1.1 General information Region Country Short name of the good practice Geographical level of implementation (country, region, municipality ) Target group Date of implementation/duration Waste stream (and subcategory) Limerick/Clare/Kerry Region (now part of the larger Southern Region) Ireland Mixed dry recyclable bin (MDR Bin) Country Waste collectors & producers of recyclable waste (household & commercial) Since 2000 (mandatory via the Waste Collection Permit system since 2005) Mixed municipal waste (EWC 20 01 03 - MDR) Legal framework Waste Management (Collection Permit) Regulations 2007 as amneded & Waste Bye- Laws (specific for each Local Authority area within the Region) Main local instruments involved Technical Mixed fractions; door-to-door collection; transfer station & sorting facility Economical fines for non-respect of the sorting guidelines. Communicative non-addressed communication & addressed communication Scale (pilot/partially roll out /roll out) Initiator/coordinator Roll-out National Demography Population 454,507 Number of households 171,476 (occupied) Area (km²) 10,700 GOOD PRACTICES 3
Population density (number of inhabitants/km²) 42.5 General waste data (Not necessarily related to the GP but to give some background information. Data about the GP should be included under 3.1) Year of the following waste data 2012 Sum of all waste streams excl. residual & bulky waste (kg/inhabitant/year) (Use indicator 1 or 2 from the R4R Online Tool) Residual waste (including sorting residues) (kg/inhabitant/year) (Use indicator 8 or 9 from the R4R Online Tool) 243.79 356.14 Total waste (add up the previous two) 599.93 Sum of all waste streams excl. residual & bulky waste to DREC (kg/inhabitant/year) (Use indicator 3 of the R4R Online Tool) 242.42 1.2 Context In 1998 the Irish Department of Environment, Community & Local Government published the policy document Changing Our Ways which set ambitious targets which were to be achieved over a fifteen year timescale. Targets included a diversion of 50% of overall household waste away from landfill and 35% recycling of municipal waste. Waste Management Plans (WMPs) were first prepared in Ireland in 2001 at which time the extent of source segregation and kerbside recycling was very limited. The 2001-2006 WMP for the Limerick/Clare/Kerry Region included a policy to promote the kerbside collection of dry recyclables i.e. cardboard, paper, newspaper, aluminium cans, steel cans, plastics (PET, HDPE, LDPE, PP) and glass. Since 2001 significant progress was made year-on-year on the roll-out of the mixed dry recyclable (MDR) bin to both household & commercial premises. Following the EU Packaging Directive of 94/62/EC Ireland published the Waste Management (Packaging) Regulations in 1997 requiring commercial producers of waste to segregate specific packaging waste arising on their own premises and have it collected by authorised operators for recycling. Since the introduction of the waste collection permitting regime, in 2001, permits issued to commercial collectors in the Limerick/Clare/Kerry Region have required the collection of mixed dry GOOD PRACTICES 4
recyclables, not defined as packaging, such as metals, plastic components, newspapers, magazines, office paper etc. Initial permits issued to household collectors in the Limerick/Clare/Kerry Region required the phased implementation of a system for kerbside collection of mixed dry recyclables within urban areas. Since 2005 all household collectors have to provide a separate mixed dry recyclable collection service to all householders served, in accordance with their WCPs. 1.3 Short description Fully segregating waste materials into different streams for collection at the kerbside is not always possible or feasible particularly in less densely populated areas of Ireland. The collection of a number of recyclable waste sources in one recycling bin i.e. cardboard, paper, plastic and cans has been undertaken in Ireland since 2001. Providing that the dry waste isn't contaminated by other waste, such as waste food left in its packaging, it can be recycled and its value as a commodity can be maximised. Almost all householders and commercial premises, in Ireland, are now provided with a kerbside mixed dry recyclable (MDR) bin, in addition to a residual and in some cases an organic bin. The MDR bin is normally left out for collection with the residual bin and most collectors, within the Region, have dual body collection vehicles which allows both waste types to be collected simultaneously. 1.4 Objective The primary aim of the roll-out of the MDR bin is to increase the household and commercial recycling rates and thereby reduce the quantity of waste going to landfill and/or energy recovery. 1.5 Method used to identify the good practice Benchmark A review of the waste collection data showed a significant increase in the roll-out of the MDR bin and subsequent increase in the percentage of waste recycled within the Region since 2004. 2005 waste data estimated that less than 10% of households had a dry recyclable kerbside collection service i.e. MDR bin, however within 2 years almost 99% of households, within the Region, had a MDR bin. The roll-out of the MDR bin has also contributed to the increase in the percentage of household waste recycled (managed) i.e. increased from 18% in 2004 to 42% in 2010. The roll-out of the MDR bin also resulted in a corresponding increase in the commercial & industrial recycling rate within the Region i.e. increased from 56.9% in 2004 to 75% in 2010. GOOD PRACTICES 5
None 1.6 External factors 2. IMPLEMENTATION 2.1 Preparation phase Waste collection permits (WCPs) issued require authorised collectors to provide details within a specified time-frame of the WCP been issued of how they were going to implement the household & commercial MDR bin requirement. These details must be approved by the Region prior to the authorised collector commencing collection within the Region, thereby ensuring an effective roll-out of the MDR bin. The WCP specify minimum criteria for approval of the separate dry recyclable collection i.e. MDR bin. The MDR must be collected in a wheeled hinged lid bin and allow for the following materials to be collected: Newspapers magazines, mail-shots & office paper Cardboard (cereal boxes, washing powder boxes) Plastic bottles (drinks, shampoos) Cans & tins (drinks cans, tinned food cans) Tetrapacks Plastic film/packaging Glass (optional) - glass must be collected separately when collected due to its contamination effect on paper waste. In relation to household MDR bin the following additional minimum criteria are specified: The dry recyclable capacity offered must be at least equal to the residual waste capacity offered The separate dry recyclable capacity must be available to the householder at the commencement of the contract with the householder The collection system must facilitate ease of use for the householder The collection must not be a source of littering The collection system must provide an incentive for the householder to recycle. The WCPs also states that source separated waste shall not be mixed or re-mixed during collection and shall be kept free of contamination The collectors, as part of the roll-out of the MDR bin provided details to their customers regarding the types of recyclable wastes acceptable. These details were provided using leaflets and some collectors attach a list of the acceptable items on the recycling bins provided. GOOD PRACTICES 6
Prior to the initial roll-out of the MDR bin the Local Authorities within the Region published newspaper advertisements highlighting the roll-out of the MDR bin. 2.2 Technical implementation The authorised collectors provide the MDR bins to their commercial and household customers. The MDR bins are normally blue in colour or have a blue lid to easily distinguish them from the residual bins. Householders are generally provided with a 240 litre or 360 litre wheeled hinged lid bin which is normally collected on a fortnightly basis. Commercial premises are generally provided with a number of 1,100 litre bins with collection frequency dependent on the nature and size of the business. The collectors, as part of the roll-out of the MDR bin provided details to their customers regarding the types of recyclable wastes acceptable. These details were provided using leaflets and some collectors attach a list of the acceptable items on the recycling bins provided The MDR bin is normally left out for collection with the residual bin and most collectors, within the Region, have dual body collection vehicles which allows both waste types to be collected simultaneously. Where the MDR bin is contaminated i.e. with dirty recyclables and/or residual waste the collector marks the bin as contaminated and does not collect the waste. The householder and the commercial premises have a legal responsibility to sort their waste correctly in accordance with waste bye-laws adopted in each Local Authority area within the Region. These byelaws require householders and commercial premises to use the MDR bin and only place permitted waste types in the bin for collection. The bye-laws are enforced by the relevant Local Authority. 2.3 Communicative implementation Prior to the initial roll-out of the MDR bin, in 2001, the Local Authoirties within the Region published newspaper advertisments highlighting the roll-out of the MDR bin. In recent years the Region has been running campaigns focused on one recyclable material as shown below: GOOD PRACTICES 7
This information was presented as advertisements in local papers circulating within the Region. They were also published as posters for schools. The authorised collectors, in accordance with their waste collection permit conditions, continually provide information to householders and commercial premises on the MDR bin via their websites and leaflets posted with the six monthly bills. Environmental Awareness Officers, based in each Local Authority area within the Region, continually provide information to various sectors i.e. members of the public, community groups, schools etc.. through workshops, presentations, open days, site visits etc. In addition to awareness work undertaken by the Environmental Awareness Officers the Regional Industrial Waste Minimisation Officer (RIWMO) meets with business operating within the Region and provides information and guidance on waste prevention and minimisation which includes the use of the MDR bin. The RIWMO has visited a total over 380 companies since 2003. Since 2006 this Region has been involved in the Local Authority Prevention Demonstration programme (2006-2009) and the Local Authority Prevention Network (2009-to-date) programme, which are national initiatives co-ordinated by the EPA. These programmes work on specific projects and although the primary focus of these projects is prevention they also raise the awareness of the use of the MDR bin as a means of reducing the quantity of waste sent for landfill. Waste audits & site visits of commercial premises in 2010/2011 found that the majority of business were good at separating out large recyclable wastes e.g. pallets, baled cardboard, WEEE however there was a poor uptake and use of the MDR bin. As a result of these findings the Region published the information leaflet Managing Recyclables in Business (April 2012). This leaflet is distrubited during site visits, waste audits, waste events and is available on www.managewaste.ie website and Local Authority websites. GOOD PRACTICES 8
2.4 Organisations involved Department of Environment, Community & Local Government (DECLG) responsibility for publication of strategy documents, circular documents to Local Authorities and preparing national legislation. Three Waste Regions within Ireland - responsible for the preparation of the Waste Management Plans (WMP), which detail the framework for the implementation of relevant EU & national legislation, over a 6 year period. They also will have responsibility for publishing annual reports which will assess the implementation of the WMP. Local Authorities responsible for the implementation of waste collection permits and the objectives specified in the Waste Management Plans. They also have responsibility for permitting MDR processing facilities where the annual intake does not exceed 50,000tonnes. EPA responsible for the publication of the National Waste Report which provides details of the annual waste quantities collected. The EPA is also responsible for licensing MDR processing facilities where the annual intake exceeds 50,000tonnes. Repak was established by Irish industry in 1997 to promote, co-ordinate and finance the collection and recovery of packaging waste with a view to achieving Ireland s packaging waste recovery and GOOD PRACTICES 9
recycling targets and is currently the sole approved compliance scheme for the recovery of packaging waste in Ireland. Repak is solely funded from packaging levies, as charged to its participating businesses, and operates on a not for profit basis. Repak s members are charged on the type and amount of packaging they produce. Repak uses the levies members pay to fund the collection and recycling of materials by contractors and Local Authorities. At present Repak has over 2000 participating companies in membership, and is currently funding the recycling of over 60% of all packaging placed on the Irish market. Private waste collectors these are required to collect MDR waste from both commercial and household premises, in accordance with the conditions of their Waste Collection Permit and national legislation. 2.5 Key success factors Elements necessary: Packaging Regulations - Following the EU Packaging Directive 94/62/EC Ireland published the Waste Management (Packaging) Regulations in 1997 requiring commercial producers of waste to segregate specific packaging waste arising on their own premises and have it collected by authorised operators for recycling. Following the EU Packaging Directive 2004/12/EC Ireland published the Waste Management (Packaging) (Amendment) Regulations 2006 which introduced the new higher EU packaging waste recovery targets of 60% and included materialspecific recycling targets, to be achieved in Ireland by end 2011. The current Waste Management (Packaging) Regulations 2007 consolidated the previously existing suite of regulations to bring improved clarity, transparency and accessibility to the packaging waste regulatory regime. They also introduced a range of integrated measures aimed at optimising the recovery and recycling of packaging waste in Ireland, including a reduction from 25 tonnes to 10 tonnes in the de minimis (i.e. one of the thresholds to determine major producer status) to spread the burden of compliance more equitably across all obligated producers in light of the higher targets that needed to be achieved under Directive 2004/12/EC. Waste Collection Permits (WCP) in 2008 all WCP issuing authorities agreed to include the same conditions regarding the provision of the MDR bin to household and commercial customers. This ensured that there was no competitive advantage for operators operating in areas with less onerous requirements. Waste Bye-Laws each Local Authority in the Region has adopted bye-laws requiring householders and commercial premises to use the MDR bin provided and only place permitted waste types in the bin for collection. The bye-laws are enforced by the relevant Local Authority. Public consultation prior to the implementation of the measure. For example the waste-byelaws were subject to public consultation prior to their implementation. Education and awareness at national & local level to ensure all relevant parties are aware of their requirements. GOOD PRACTICES 10
Enforcement evidence of enforcement is paramount to ensuring successful implementation across all sectors. Feedback collation and publication of relevant data in order to demonstrate the effectiveness of the measure. 2.6 Resources As waste collection in Ireland is primarily undertaken by the private sector the implementation of the MDR bin is primarily financed by the private sector. There is the initial investment cost in the provision of the separate bin for the collection of the mixed dry recyclable wastes and associated education/awareness cost. In relation to the collection of the waste the collector has to arrange for the collection of the waste by either adopting existing collection vehicles to store the waste appropriately or changing/alternating their collection model. Despite the investment and running cost associated with collection of mixed dry recyclable wastes there will be savings in landfill cost as the quantity of residual waste collected is reduced. The exact investment costs, running costs and savings are not available as this information is commercially sensitive. 3. RESULTS 3.1 Monitoring of the progress of the GP All private waste collectors in Ireland must have a Waste Collection Permit (WCP). The WCP requires collectors to provide details of the quantity of waste collected on an annual basis. The details required include Local Authority Area where the waste was collected, the waste type (EWC Code), the waste quantity and the disposal/recovery location. Therefore details of the quantity of source MDR waste are available per Local Authority Area. Figure 1 below indicates how the quantity of household mixed dry recyclable waste collected at the kerbside, within the Region, increased significantly in 2005 when it became mandatory for collectors to provide a MDR bin to all householders within the Region. Since 2005 the quantity of mixed dry recyclable waste has remained constant indicating an efficient and full roll-out of the MDR bin. GOOD PRACTICES 11
25.000 Household Kerbside MDR Qty 20.000 15.000 10.000 Household Kerbside MDR Qty 5.000 0 2004 2005 2006 2007 2008 2009 2010 2011 Figure 1 Quantity of household mixed dry recyclable waste collected at the kerbside 2004-2011. As a result of the roll-out of the MDR bin to both commercial and household premises the recycling rate increased (refer to Figure 2 below). The increase in the 2009 and 2010 recycling rates is also linked to the roll-out of the organic waste bin to both the household and commercial sector. 80% 70% 60% 50% 40% 30% 20% 10% 0% 2004 2006 2007 2008 2009 2010 Household waste recycling rate (managed) Commercial & Industrial Recycling Rate % Figure 2: The Household and Commercial & Industrial recycling rates 2004-2010 3.2 Other results Contamination of the MDR bin with contaminated recyclable material and in some cases residual waste is a significant issue in some areas. Almost all collectors within the Region do not charge for the collection of the MDR bin therefore waste producers are, in some cases, placing residual waste within GOOD PRACTICES 12
the MDR bin in order to reduce their waste charges. Waste collectors need to be very proactive in addressing this issue. 4. LESSONS LEARNED 4.1 Negative effects Contamination of the MDR bin with contaminated recyclable material and in some cases residual waste is a significant issue in some areas. Almost all collectors within the Region do not charge for the collection of the MDR bin therefore waste producers are, in some cases, placing residual waste within the MDR bin in order to reduce their waste charges. Waste collectors need to be very proactive in addressing this issue. Commercial waste audits undertaken within the Region have shown: o Failure to place recyclable material in the MDR, this material is often placed in the residual bin. o Contaminated recyclable material placed in the MDR bin. o Premises unaware that the waste collector is legally obliged to provide them with a MDR bin. o The rejection of MDR bins by the collectors where contamination is an issue does not appear to be happening as collectors are afraid to loose customers due to the competitive nature of the private collection business. The legal requirement for the roll out of MDR waste bin provides a solution to the treatment of generated waste however it does not address the issue of prevention nor does it address the issues of behavioural change and attitudes to waste. 4.2 Challenges The ability to recycle all plastic waste collected within the MDR bin is currently an issue particularly as there has been a phenomenal growth in the range of plastic packaging materials placed on the market, over the last decade. The primary problematic material is low-grade plastic i.e. plastic bags including bin liners, plastic film, bread wrappers and crisp bags. When segregated collections began over a decade ago only plastic bottles were accepted, then more & more plastics crept into the MDR stream and now waste contractors reluctantly continue to accept them but only out of fear of having a negative impact on the recycling message and creating negative publicity for the waste collection company. Sorting the various plastic types at the MRF is not economically viable for the waste operator and as a result plastic waste collected in the MDR bin is often ending up as either RDF/SRF or worse yet landfilled (RX3 Plastic Waste Arisings Report 2012 GOOD PRACTICES 13
stated that 334,000 tonnes of plastic was landfilled in Ireland in 2009). This issue now needs to be addressed at a national level in order to ensure level playing field for all operators. GOOD PRACTICES 14
5. PICTURES AND OTHER DOCUMENTATION GOOD PRACTICES 15
6. FURTHER INFORMATION Organisation Address Southern Regional Waste Management Office Lissanalta House, Dooradoyle, County Limerick IRELAND Contact person Philippa King/Carol Sweetnam Phone 00353 61 496842/00353 61 496841 E-mail address Website philippa.king@limerick.ie/csweetnam@limerickcoco.ie www.managewaste.ie Others GOOD PRACTICES 16