attachments for reports ordinary council meeting … · technologies have evolved in both waste to...

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ATTACHMENTS FOR REPORTS

ORDINARY COUNCIL MEETING

Tuesday 21 August 2018

commencing at 5.30pm

in the Oberon Council Chambers

ATTACHMENTS FOR REPORT

Report Item

11.01 COUNTRY MAYORS ASSOCIATION

MEETING – FRIDAY 3 AUGUST 2018

ATTACHMENTS

Mr Terry Dodds, General Manager Tenterfield Council Presentation

Tenterfield Shire Council report to NSW Country Mayors: Waste to Energy; Mr Terry Dodds, CEO

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SUMMARY The purpose of this report is to advocate for NSW Country Mayors to consider

supporting Tenterfield Shire Council and the New England Joint Organisation in our endeavour to gain financial assistance from the State and or Federal Government to

allow completion of a comprehensive feasibility study to convert municipal and other sources of waste into energy (WtE) at a local scale.

Officer’s RECOMMENDATION:

That NSW Country Mayors:

(1) Receives and notes the report on Waste to Energy and the attached discussion paper;

(2) Provides a letter of support to Tenterfield Shire Council and the New

England Joint Organisation advocating for the funding of a feasibility study to convert waste to energy at a local scale.

BACKGROUND The management of municipal waste is an ongoing challenge and not likely to

improve in the short to medium term. Recently the decision by a foreign government has changed the landscape. In short, our governments and industries

were caught largely ill prepared. There has been much discussion since, but no definitive affordable solution.

Moreover, the whole country is going through a difficult yet exciting period regarding the energy market. In short, photovoltaic, hydro and wind generated

power definitely have their place, but alone will only supply part of the solution, with base-load power generation still being the cornerstone requirement.

With 8,000 MW of coal-fired generation capacity to be retired in the next 20 years, the time for change has never been more prudent. Especially as the will to invest in

traditional coal fired generation has significantly waned. Despite the fact that coal seam gas (CSG) accounts for 27% of Australian gas

reserves, approving the extraction of CSG deposits has been addressed differently by each State, and is mired by problems be they real or imaginative.

Australia’s abundant gas reserves used to be considered the natural successor to coal, but as gas is a now valuable commodity able to be sold on the world stage, no

longer can it be a cheap back up source to that of coal as the price is determined by other players.

Nuclear energy, possibly the most misunderstood non-renewable or non-

sustainable energy source is available in Australia due to our uranium reserves. But as the risk is so inherently catastrophic few people would consider, and even fewer would condone nuclear power as an alternative.


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It is for these and other more altruistic reasons that both the State and Federal

governments have been giving so much encouragement towards the burgeoning new sustainable or (but mainly only renewable) energy industries.

State Governments have been thinking more laterally of late and backing those thoughts up with actions in different fields of power generation technologies. It is

refreshing to note that the NSW Government (OEH, DPC and Renewable Energy Advocate) is currently investigating Community Agreements and Microgrids. The

DPC Regional Coordination in collaboration with the Renewable Energy Advocate are about to scope agendas for meetings with the EPA and Essential Energy to progress these issues. The New England Joint Organisation (NEJO) was invited to nominate

one representative to attend the meeting on their behalf. The author of this report will represent the NEJO.

It is envisaged that the agenda for discussion with the EPA will include the waste to energy opportunities and barriers identified. To date though, photovoltaic

generation has been the poster child. It is proven in Australia and is less confrontational. This is commendable from a single paradigm, but may prove to be

overly conservative if viewed more holistically – as a solution to the municipal waste problem could be addressed in parallel.

As waste to energy brings both real and perceived risk to any government, government agency, regulator or inspectorate, the author is seeking to

ensure that the New England Joint Organisation’s mandate to pursue waste to energy is as wide and robust as possible and doesn’t become a

secondary consideration to the contemporary solutions. The mood of change towards waste to energy is reported in news outlets almost

daily in some part of the world. The technologies have been refined over many years, largely in Europe, North America and some parts of Eastern Asia. It is hoped

that this mood has transcended into a will by decision-makers in higher levels of government to take action, or failing that, support those who wish to act: the imprimatur for seeking support from the NSW Country Mayors through this report.

Small waste to energy plants may require dilution of cost of production per kilowatt

hour, due to the inherent makeup of the activity. This may prove to be achievable by mixing the generation of power from solar photovoltaic arrays located in the same location with that from the waste to energy process. In the past standalone

waste to energy plants have only reached positive benefit cost ratios when there has been specific and highly influential circumstances shifting the economics to its

favour, or where economics were a secondary consideration due to lack of alternative choices.

The aforementioned cost of conversion of waste to energy was historically high, but any things have changed over the last five (5) years:

Access to the electricity distribution network has become less burdensome


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Technologies have evolved in both Waste to Energy and also the control of the electricity input sources (Microgrids)

The problem of municipal waste management has become widely known The uptake of domestic power generation is exponentially rising

The feasibility study will determine whether the combination of changed circumstances mentioned above is enough to warrant a pilot plant being built in this

point in time. It will also determine what the smallest scale is; volume of waste and photovoltaic energy plant that could be used, taking into consideration the tyranny

of distance and the subsequent transportation costs. Lastly, the feasibility study will also determine whether councils across

NSW and perhaps Australia, who are in a position to convert waste to energy, are able to form a cooperative sales arrangement through a

partnership with a lower to medium tier power generator. The aim would be to form a ‘virtual generator’ whose combined energy input into

the grid nationally would be sold to the Australian National Electricity Market (NEM) in a more competitive financial arrangement than offered by tariff inputs payments

at the lower scale (through Community Agreements). Part of this would include network demand and supply controls that would allow the timing of the energy

input to align with peak demands such that councils received peak dividends; like the Snowy Hydro Scheme.

If Tenterfield Shire Council and the New England Joint Organisation is successful in gaining the support of NSW Country Mayors and then higher levels of government,

or their agencies, to provide financial assistance in leading a feasibility study into waste to energy (WtE) at a local scale, regional communities far and wide may benefit.

REPORT:

See attachment. Conclusion:

Waste to Energy projects are not new, however, technologies have advanced so much over the past five years, particularly across Europe, the author thinks it is

time that they are reviewed in Australia – at a small scale. In the past, chasing economies of scale meant that sub-regional economies did not

usually benefit. A feasibility study into Waste to Energy at this point in technological developments may change the waste and energy paradigms for the better, at a

scale to provide benefit to many more local economies than was previously the case. Especially if a ‘virtual generator’ was able to be formed.

There is steadfast diligence required in a number of arenas which need to remain front of mind:


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It has been proven that large scale plants work in cities (and for whole countries; 35), but vast distances (country Australia) cause economic and

environmental losses which quickly erode benefits. Yet our regulators, at least in the Eastern States, appear less enthused to investigate.

Pollution needs to be, at the very least, less detrimental than the current

management systems (hiding waste in a big hole). The pollution offsets need to be tabled and robustly considered. The reductions in current pollutants, such methane, leachate, and CO2 (transportation), needs to be considered

and compared in parallel with any newly introduced technologies.

Arguments the writer has seen to date conveniently negate this, instead only concentrating on energy used to manufacture something in another geographical area or country, or new pollutants, or don’t reflect the benefits

to a local community.

The study needs to concentrate on science, economics, logistics, markets, and the (net) environmental impacts versus subjective opinions by special

interest groups or attempted influence by industries that currently benefit in maintaining the status quo.

The macro view (triple bottom line) needs to concentrate on benefits for local councils and their surrounds, not a net benefit to corporate enterprises

a thousand kilometers away, or worse, overseas. Protecting an objective and rational answer from being sabotaged by

emotive and irrational arguments will be more difficult than the assessment of technical, environmental and economic endeavours.

Lastly, the investigation needs to ensure that what makes shires so great for

locals and visitors alike; picturesque places to visit, lovely natural amenity, wonderful towns to live in; remains so in the event the feasibility study determines the objective to be sound.

COUNCIL IMPLICATIONS:

1. Community Engagement / Communication (per engagement strategy)

This report’s recommendation is to seek seed funding from a second party or parties only. Should a feasibility study indicate that further advancement is

warranted, community engagement would form part of the Concept Phase.

(Concept, Development, Implementation and Finalisation are the four phases of project management.)


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2. Policy and Regulation

The list of compliance requirements is daunting and in many cases legislation contradicts itself.

One of the biggest challenges will be finding a path through the legislation and regulations without having either a special interest group, a currently benefiting industry or group of industries, a government agency with an

individual controlling a ‘go/no go’ threshold with a biased personal opinion, or an influential politician using the process for their own agenda effecting the

outcome.

NSW Environmental Planning & Assessment Act (1979) Contaminated Land Management Act 1997 Dangerous Goods (Road and Rail Transport) Act 2008

Environmentally Hazardous Chemicals Act 1985 Forestry Act 2012

National Environment Protection Council (New South Wales) Act 1995 Ozone Protection Act 1989 Pesticides Act 1999

Protection of the Environment Administration Act 1991 Protection of the Environment Operations Act 1997

Radiation Control Act 1990 Waste Avoidance and Resource Recovery Act 2001

EPBAC Act POEO Regulation 2014 (part 9) and 2010 Clean Air POEO Act 1997 (schedule 1)

WARR Act 2001 EP&A Act (part 3A) – Ministerial Approval

Local Government Act 1993 The Waste Less Recycle More Initiative The Clean Energy Act (and potential repeal)

NSW Waste Levy Review NSW Waste Avoidance and Resource Recovery Act and Strategy

Protection of the Environment Operations Waste Regulation Landfill Design Masterplans Product Stewardship Act & Regulation

LEP’s across various jurisdictions SEPPs (various)

3. Financial (Annual Budget & LTFP)

This report is to initially seek a mandate to advocate for seed funding and to

ensure that the current investigations do not discount the waste to energy solutions.


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It is expected that Tenterfield Council and the New England Joint Organisation would need to engage many experts in various fields which is

currently not in the forward budget and Long Term Financial Plan. (For example; Environmental Economist, Chemical Engineer, Electrical Engineer,

Senior Project Manager, Planning Consultant, Legal Consultant, Market Analyst, Network Demand Planner, and others.)

If the feasibility study positively confirms that Council’s and the Joint

Organisation’s aspirations are technically sound the result has the potential to benefit all local government areas. It is for this reason that the writer believes that the cost of answering the questions should be shared. It will not

be possible nor is it fair for Tenterfield Shire Council and the New England Joint Organisation to harbour the cost imposition alone. Without the State

and or Federal Government providing financial support it is unlikely that the project can proceed.

Although the first two Waste to Energy Plants (both in WA) have commenced, the scale is too large to work in country areas in NSW. The

words ‘at a local scale’ were chosen very carefully. The technology has been proven for years to work at large scales, the writer wishes to answer the

question as to whether the scale can be economically reduced.

4. Asset Management (AMS)

Council’s Long Term Financial Plan and Asset Management Strategy will require a complete review should the new technologies be implemented. The

feasibility study will need to address asset management.

5. Workforce (WMS)

The workforce of the either the Council or Joint Organisation will not be influenced the short to medium term. The short term involves the use of

consultants only.

6. Legal and Risk Management

This report seeks to gain seed funding only at this stage. Should this occur, and it progresses further, separate investigations regards legal and risk will be required as part of the feasibility study.

7. Performance Measures

At present, Council is endeavouring to complete a strategic business review on waste management. If successful, this study may greatly influence the outcome in the future, not only of Tenterfield and possibly the New England,

but wider local government areas.


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8. Project Management

If successful, the overall outcome sought will require robust project

management disciplines to be put in place. Until that time, the project remains a feasibility study only.

Terry Dodds

Chief Executive

Prepared by staff member: Terry Dodds, Chief Executive, Tenterfield Shire Council

Approved/Reviewed by Manager:

N/A

Department: Office of the Chief Executive, Tenterfield Shire Council

Attachments:

Attachment 1 (Booklet 1) - Waste

to Energy: Discussion Paper; The Case for Change

19

Pages

Waste to Energy, Tenterfield Shire Council Mr. Terry Dodds, Chief Executive

Date last saved: 16/8/2018 1 of 17 Tenterfield Shire Council

Waste to Energy: Discussion Paper

The Case for Change

1. Background / Description

Traditional Electricity Generation and Distribution Australian domestic electricity consumers principally rely on receiving energy via a complicated distribution and retail network (grid) that by design harbours much inefficiency. As so much of our power generation is supplied by burning fossil fuels these inefficiencies are both detrimental to the environment, as an artificially higher rate of extraction and production is required to overcome energy losses, as well as costly to the consumer who pays for the losses. New technology may improve this somewhat, but wherever energy (or anything) is transferred from one location to another there will always be losses. Base Load Power - The Future Australia is not seeing the amount of new investment in traditional base-load energy generation that is required to replace the 8,000 MW of coal fired generation capacity expected to be retired over the next 20 years.

Municipal Waste In 2014-15 Australia produced 64 million tonnes of waste, which is equivalent to 2.7 tonnes of waste per capita. Almost 60% of this was recycled. Transporting waste materials away from households such as food scraps, green-waste, paper and non-recyclable plastics, just like electricity transmission losses, consumes considerable energy. Perhaps not as much as transporting to China or from one State to another. There are many other costs are associated with the process; some obvious, most far less so. Sewerage Treatment Almost every town in regional Australia has at least one sewerage treatment works. All of them consume energy in the form of electricity. How many owners of these plants have looked at using wastewater sludge management to create biogas recovery to produce electricity thus adding value?



A few observations:

As waste management legislation has evolved the over-simplistic solutions have mostly been forced to disappear. Councils face substantial and ever increasing expense regarding waste management. Burying waste creates multiple risks and by its nature is unsustainable; no matter how big the hole, it will eventually fill.

Australia faces a difficult period transitioning from the current reliance on electricity

produced by burning coal to that of dependable, on demand and reliable alternative

and sustainable forms of energy. Not only is it proving difficult, it is also a race against

the clock as investment in traditional generation falters.

Wind or solar energy generation relies on weather conditions or the ability to store

energy in (mostly) batteries. There are many types and methods used to store energy,

from compressing air through to hydro. Mostly though, energy is stored in batteries.

That in turn currently relies on a resource (lithium) which itself is available in limited

quantities and likely to be affected by the supply and demand equation.

Energy recovery from waste, as of 2016, has increased by 4.4% per capita over the

previous 10 years, but due to the low base, the total quantum is still only 6%. Methane

production has been the main technology used, but in itself is problematic. Some

installations have reverted to flaring the methane as the BCRs don’t stack up.

The Elephant in the Room As a country we have many challenges, but there are two making the news almost daily; what to do with our waste and how we develop alternative energy solutions that don’t rely on the vagaries of the weather or battery storage.

Can waste be used, just like hydro power generation, to supply power on demand –

meaning there is no need for energy storage (batteries)?

What technologies to convert WtE have been used in other countries?

Who can we seek advice from such that we don’t start from ground zero?

What is the public’s appetite for change now, given the often newsworthy topics of

rising energy prices and the crisis in waste management?

How is local government going to gain assistance and overcome the initial risk?

Should we review all energy paradigms, Waste to Energy, Waste Water Sludge to

Biogas to Energy, and Photovoltaic Arrays in parallel and homogenise?

Keeping up with the Joneses There are solutions that have been used in many other parts of the world. Some waste to energy (WtE) technologies are listed below:

A. Thermal Technologies

B. Direct Combustion (Mass Burn and RDF)

C. Pyrolysis



D. Conventional Gasification

E. Plasma Arc Gasification

F. Biogas

Waste to Energy (WtE) Plants, sludge to biogas conversion systems, and photovoltaic arrays,

can be small and bespoke, modular and operate in synergy feeding into Microgrid

transmission stations. Thus enabling the need to transmit electricity over vast distances to be

overcome.

If the triple bottom line stacks up, synchronising three local generation methods will improve

reliability of the overall Microgrid system, add to sustainability, improve environmental

outcomes, grow local economies, and assist educate the public by using positive

reinforcement (versus a levy or tax).

The economic benefit will be given a positive start, as the same feed stock all ratepayers now

pay to dispose of anyway, through waste water treatment plants and central municipal waste

facilities, will be used to reduce the net outright cost of the WtE technology.

Even if the power tariffs were exactly the same, and the waste disposal costs exactly the same

too, not having to dispose of the municipal waste using the current landfill methods would still

make the project very worthwhile.

Economy of Scale Dilemma In the past there has been one fundamental flaw related to any governmental review and subsequent distribution of seed and or grant funding. It is with almost an absolute certainty that the economy of scale argument is used to centralise or regionalise any project, program or solution; often represented through a Benefit Cost Ratio (BCR) that doesn’t address the triple bottom line. Or worse, not addressing the total spectrum of macroeconomics across all potential inputs and outputs. In the case of electricity generation and distribution, wanting to grow economies of scale is

what causes the transmission losses in the first instance. The further a generator, in this

instance a waste to energy plant, is away from the electricity consumers, the greater the

wastage (friction losses).

Australia has embarked on concentrating through amalgamating, or centralising government

owned utilities, since the 1950’s. However, with massive plants requires massive investment,

only the equivalent scale can deliver an economic return. That was mostly true for decades,

but perhaps not in this instance in this point of history, now that small scale is far cheaper?

The take-away is that the smaller-the-scale the greater-the-reduction in generation and

distribution costs; providing the net financial offsets in the other two fields of science are

higher.

Are smaller scale WtE plants available that perhaps can augment photovoltaic arrays,

WtE and biogas generated by sewerage treatment plants, to create a neutral or an

improved Net Rate of Return and a better environmental outcome?



2. Description of Suggested Project Sub Components There are multiple components to a WtE Project, all of which will contribute to a complex decision support matrix and eventually each project ‘gateway’;

A. Environmental Regulations, Compliance and Audit B. Methods to convert waste to energy(WtE) C. Legal and Commercial Contracts D. Operations and Logistics E. Governance and Control F. Finance G. Conclusion and Request for Support

A. Environmental Regulations /Compliance and Audit Regulations

In accordance with the NSW Environmental Planning & Assessment Act (1979) the Local

Council is the consent authority. The NSW EPA provides technical review and input to the

Local Government development consent process to ensure matters specific to the protection

of the environment are reflected in consent approvals.

However, depending on the different triggers other and varying consent pathways may require

to be undertaken, for example the Joint Regional Planning Panel.

The NSW EPA regulates the processing and storage of energy feedstock and emissions (into

the air, water and soil).

Acts, Regulations and Policies:

• NSW Environmental Planning & Assessment Act (1979)

• Contaminated Land Management Act 1997

• Dangerous Goods (Road and Rail Transport) Act 2008

• Environmentally Hazardous Chemicals Act 1985

• Forestry Act 2012

• National Environment Protection Council (New South Wales) Act 1995

• Ozone Protection Act 1989

• Pesticides Act 1999

• Protection of the Environment Administration Act 1991

• Protection of the Environment Operations Act 1997

• Radiation Control Act 1990

• Recreation Vehicles Act 1983

• Waste Avoidance and Resource Recovery Act 2001

• EPBAC Act



• POEO Regulation 2014 (part 9) and 2010 Clean Air

• POEO Act 1997 (schedule 1)

• WARR Act 2001

• EP&A Act (part 3A) – Ministerial Approval

• Local Government Act 1993

• The Waste Less Recycle More Initiative

• The Clean Energy Act (and potential repeal)

• NSW Waste Levy Review

• NSW Waste Avoidance and Resource Recovery Act Strategy

• Protection of the Environment Operations Waste Regulation

• Boonoo Boonoo Landfill Design Masterplan

• Product Stewardship Act & Regulation

• NEGOC (seeking advocacy)

• LEP

• SEPPs (various)



Environment Protection Licence

A WtE activity will require a licence. Licences are issued in respect of scheduled development

work (i.e. development of a site that would require a licence), premises based activities and

non-premises based activities.



The EPA will issue all licences and are usually subject to conditions. Licences can control the

air, noise, water and waste impacts of an activity. Licences are ongoing but subject to review

at least once every five years and can be varied, suspended or revoked.

Technical Stewardship It is not anticipated that the pathway through approval process will be easy. To assist from environmental standpoint consultation with a Professor of Chemical Engineering backed by a Faculty of Engineering from a top tier university will be sought. Additionally, from an electrical engineering perspective, the same would apply to seeking input from a Professor of Electrical Engineering.

Cross-border shipment of waste In addition to development of a decision support matrix for operating in NSW, consideration needs to be applied to other State jurisdictions, both from an environmental and electricity sale and distribution viewpoint.

The project will require mapping (decision support matrix) of the consent pathways,

including from an operational basis regards how the requirements of each of the above

Acts (in NSW) and those in interstate jurisdictions will direct the physical operations –

and hence cost (see approval process flowchart).

Categorisation of waste The first phase of waste management is the collection of waste, i.e. the gathering of waste, including the preliminary sorting and preliminary storage of waste for the purposes of transport to a waste treatment facility, whereby a collector is a legal person or a sole proprietor whose activity is the collection of waste; be they a council, or other entity that provides feedstock.

Collectors, and how they’re perceived to operate, will have much influence over the WtE

operations and maintaining good stead with the community, regulators and clients.

Chain of custody control essential

Following collection, waste is transported to waste treatment facilities. In determining the

operation of the WtE plant accurate information will be required as to what the waste consists

of (especially moisture content and hazardous substances), and what ratios of mixes is

required to deliver efficient energy production; dependent on the technical requirements of the

solution chosen.

Waste composition, volumes and feed management control mechanisms

Prior to or within collection, transport, treatment, disposal or the conversion to energy process,

waste may be required to be stored. Storage of waste must be carried out without endangering

human health or the environment and applying measures to prevent or reduce adverse

environmental impacts, and separating waste categories based on the characteristics of

waste.

Storage requirements

Some waste will require different treatment or disposal methods depending on the composition

or economic value. Waste recovery methods to enable recycling, and alternate disposal

methods for unsuitable (for WtE) or hazardous materials, needs to be addressed.



Recyclable, unsuitable or hazardous materials management

Waste streams in waste to energy operations There have been examples and different interpretations of the definition of what is deemed as ‘waste’, and therefore what State Government applied costs (taxes) occur. The legislation surrounding various Acts, including the WARR Act, is written to justifiably encourage much needed societal change. Existing legislation may need amending as to not impede councils from applying in principle the imprimatur of the legislation.

Critically some waste may be required by legislation to no longer be regarded as waste

before or after it has been processed into another product, material or energy, such

that the State doesn’t tax those trying to achieve altruistic outcomes.

Waste streams – Economic and Environmental Cost The recovery of mixed municipal waste collected from households must comply with the principle of self-sufficiency and proximity. Carting waste 100’s if not 1000’s of kilometres (across an ocean), when measured from the total cost to the environment as well as (overly simplistic) economics, provides much different results.

The higher you are when looking down, the wider the view you see. In the past there has been one fundamental challenge (and flaw) related to many pre-

feasibility investigations. It is with almost an absolute certainty that the economy of scale

argument is used to centralise or regionalise any project, program or solution. In the case of

electricity generation and distribution this is what causes the transmission losses in the first

instance.

The take-away is that the smaller the scale the greater the potential reduction in generation

cost; particularly with regards to photovoltaic generation.

Australia has embarked on concentrating, or centralising government owned utilities since the

1950’s. We all understand that the bigger the scale, the smaller the unit rate. Mostly, that’s

true. But maybe not in this instance at this point in time? Technology has a way of improving

faster than our capacity to keep up.

Small scale electricity generation that removes the macro level environmental costs

shouldn’t be discounted due to micro economics

Waste eligible for energy production Different characteristics apply to different waste streams, depending on materials or products comprising waste. Depending on the WtE technology adopted, the percentage of each waste stream inputted can be critical. The bulk of this waste stream is from households, although waste from similar sources such

as commerce, offices, events, public institutions and selected municipal services is also

included. Examples include, but is not necessarily limited to, the following types of materials:



paper, paperboard and paper products, plastics, glass, metals, food, garden waste, and

textiles.

With regard to municipal waste management, disposal still prevails. Landfilling is performed

within municipal services largely provided by local councils, or consortiums of councils, and

licensed at non-hazardous waste landfills.

Over the last decade and longer, the percentage of recycling has dramatically increased, now

to approximately 60%. How the recent negative publicity regards China not accepting

recyclables will affect the will to separate waste for recycling is subjective, but not likely to be

positive.

With changes in legislation, political mechanisms and the establishment of modern waste

management centres and transfer stations, improved separation collection, mechanical

separation, and treatment of mixed municipal waste before disposal, the percentage of

recycled waste may still increase.

Eventually the continual evolution of the concentration of scale requires the ‘downstream’

technology to recycle to become more and more specialised and sophisticated. When this

occurs the opportunity to convert to a pure form of energy upstream is more likely. It may have

already actually passed the tipping point if the cost to the environment as well as the economy

were considered.

Conventional grate fired mass burn systems for Municipal Solid Waste (MSW) have tended to

be built as large as possible in order to benefit from the inherent economies of scale.

In urban locations which is where most of the waste is this has been seen as an appropriate

strategy for conversion of MSW. In rural or semi-rural locations generally lower waste tonnage

combined with high transportation costs have ruled out the deployment of large-scale systems.

In these cases the interest has been in the application of small-scale (typically less than

50,000 tonnes per year throughput) systems capable of competing with low-cost landfill

disposal. The challenge for these small-scale systems has been to compete with the

economics of large-scale MSW incineration plants while meeting, indeed exceeding,

appropriate emission regulations. Except of course, their respective Benefit Cost Ratios would

have almost inevitably not considered the macro-level net off-sets able to be gained (both

economic and environmental).

Is the cost of recycling down-stream less than the cost of converting the materials to

energy upstream? (Triple bottom line versus just economic.)

In the past we’ve relied on either States with less stringent environmental legislation, or

countries with both low labour costs and lower environmental controls or massive levels of

scale and limited natural resources, to fix (hide) our problem. In effect, we’ve taken the view

that if we can’t see it, there isn’t a problem.

Punishing consumers by increasing levies leaves a poor sentiment in the public’s mind. As

does calling something a levy when it’s a hidden tax, then only returning some of the tax

collected back to assist the purpose in which it was ‘sold’ doesn’t leave a good feeling either.

(The levies raised through the WARR Act is one example.)

The third option is to do nothing and continue to ensure the waste is placed somewhere it can’t

be easily seen, which is obviously flawed, as those who can see it are having second thoughts

or running out of places to hide it themselves.



The last option is to reward the public by selling a reduction in electricity prices based on the

level and quality of the feed stock received, or failing the ability to lower tariffs, sell the

environmental benefits. Tenterfield Shire Council feels that unless the general public receive a

real dividend in either form, councils will continue to rely on education to coerce people to do

the right thing.

Rewarding the public for better managing waste through lowering of electricity tariffs

and improving environmental outcomes is ideal; versus taxing them via levies for

failure to meet targets.

B. Methods to convert waste to energy

Incineration and advanced thermal treatment Comparatively, incineration is the most common waste to energy technology. In recent years,

however, new and more efficient technologies have been implemented. Modern technologies,

commonly referred to as the advanced thermal treatment, include pyrolysis and gasification.

Incineration and co-incineration Plant design and configuration of the individual incinerators differ considerably between different technology providers. However, all incineration plants are based on the same principle. The heat from the combustion process is used to generate superheated steam in boilers. The superheated steam is in turn used to drive turbogenerators to produce electricity. This process is generally conducted through five distinct phases including: (1) waste reception and handling, (2) combustion, (3) energy recovery, (4) emissions clean-up, and (5) bottom ash handling. Following the reception of waste, it is discharged into large refuse bunkers for mixing. The

mixing is required to ensure that the blended waste is stable and the calorific value of the

waste feed is as consistent as possible. The process from the waste delivery through

combustion is nowadays fully automated. Combustion takes place at temperatures from 850 to



1100° C, which are required to ensure the complete burning of waste and to prevent the

formation of dioxins and carbon monoxide.

The standard technique for the recovery of energy from waste incineration is to utilise the

combustion heat through a boiler to generate steam. At present, the waste energy to steam

efficiency ratio amounts to 80%. Steam can be used for the generation of power by the use of

steam turbine and for heating. An energy recovery plant producing both heat and power is

commonly referred to as a combined heat and power plant and presents the most efficient

option for utilising recovered energy from waste through a steam boiler. The main residual

material is the so-called bottom ash. Bottom ash may be recycled and used as a secondary

aggregate in a variety of construction applications if it complies with statutory requirements, as

well as a valuable fertilizer, especially in forestry.

In order to comply with air emission requirements, the combustion process must be correctly

controlled and flue gases must be cleaned prior to their final release. This is performed

through a combination of various pollution control systems. After electrostatic precipitators

initially remove approximately 99% of dust and ash particles, acid gas scrubbing is performed.

This includes the injection of ammonia, application of lime and sodium bicarbonate mixtures in

order to neutralize and control NOx, SO2 and HCl emissions, and activation of carbon to

capture heavy metals. Finally, a filter system ensures the removal of fly ash and other solids.

Fly ash generally amounts to approximately 1-3% of the overall input waste and is considered

to be hazardous. As such, it must be disposed of in a specially designed facility or used to

produce other goods.

A co-incineration plant constitutes a particular form of incineration plant. Apart from dedicated

waste incinerators, where exclusively waste is burnt, a co-incineration plant uses waste as a

supplementary or additional fuel. Correspondingly, the main purpose of co-incineration plant is

not the processing of waste but production of energy.

Pyrolysis Pyrolysis has recently become an advanced alternative to incineration. In contrast to combustion, pyrolysis is a thermal degradation in the absence of oxygen. This process requires an external heat source to maintain the necessary temperature, although temperatures applied (from 300 to 850° C) are lower than in incineration. Pyrolysis has been promoted for biomass applications and in the treatment of scrap tyres. Carbon-based waste such as paper, petroleum-based wastes like plastics and organic materials such as food scraps are also suitable. However, raw municipal waste is usually not appropriate and normally requires prior mechanical preparation. In particular, separation of glass, metals and inerts must be performed prior to the processing of the remaining waste. Three products are usually produced in the pyrolysis process: synthetic gas, pyrolysis oil and

char. Once cooled down, pyrolysis oil can be transported, stored and used as a dense fuel

source for applications such as heating and steam production. Its caloric value is close to

diesel fuel and, therefore, presents a substitute for conventional fossil fuels.

Pyrolysis oil is defined as an energy product and alternative fuel. The long term goal of the

pyrolysis industry is to focus on the bio-refinery concept, under which pyrolysis oil can be used

as one of the raw materials for automotive fuels.

Bio charcoal is the output produced from biogenic input materials as biomass, whilst black coal

produced from fossil based fuels, such as tyres and plastics is used for industrial purposes.



Bio charcoal from pyrolysis can be used in the farming industry, as a fertilizer and soil

amender. Charcoal is highly absorbent and therefore increases the soil’s ability to retain water,

nutrients and agricultural chemicals. In addition, charcoal prevents water contamination and

soil erosion.

Gas produced during the pyrolysis is generally referred to as the syngas. Syngas generally

consists of CO2, CO, H2 and other light hydrocarbons. Syngas can be converted to biofuels

such as methanol, ethanol and hydrogen using either a metal or a microbial catalyst. In

addition, syngas can be directly combusted in a secondary chamber to generate electricity.

Gasification Gasification, as a form of advanced thermal treatment, combines elements of both incineration and pyrolysis. Oxygen is added during the gasification, but the amounts are not sufficient to allow the output gas to be entirely burnt. Subsequently, full combustion does not occur. This allows the output gas to be additionally processed at a later stage. The temperatures applied are typically above 650° C. The process is largely exothermic but some heat may be required to initialise and sustain the gasification process. Coal and petroleum coke are used as input materials for many large gasification plants worldwide. Additionally, a variety of biomass and waste-derived materials can be gasified, including wood pellets and chips, waste wood, plastics and aluminium, municipal solid waste, agricultural and industrial wastes. Similarly as with pyrolysis, syngas is the main gasification product and may be made into

methanol and ethanol. Nonetheless, most modern gasification undertakings use a secondary

combustion chamber to burn the syngas and recover energy via a steam circuit.

Biogas plants Biogas plants are becoming an increasingly popular form of energy production. They are especially appropriate for countries and regions with strong agricultural presence, where they can be integrated into existing agricultural undertakings to complement the primary farming activity or as self-standing industrial plants. Biomethane used to be the main product of the biogas technology; however, conversion to electricity has become the standard technology in all modern plants. Organic input materials such as food waste, manure, sewage or sludge are used as the

primary substrate for biogas production. Moreover, renewable resources such as corn, beets

and agricultural by-products are also being used. All of these materials are placed inside a

special container, the fermenter, which decomposes the substrate of bacteria and other

microorganisms in the absence of oxygen and light. The temperatures applied are usually

between 38 and 42°C. Decomposition provides three distinct products: biogas, heat, and

digestate.

Depending on the technology provider and plant design, the produced biogas can be collected

by using the gas-tight cover directly above the substrate or in an external gas storage tank.

Most often, biogas is transported to an integrated heat and power station, where it is burnt in a

combustion engine to generate electricity and heat. Generated electric power is fed directly

into the power grid connected to the electrical transmission system. On the other hand,

generated heat can be used for the heating of on-site objects or even for industrial heating.



Alternatively, biogas can be dried and purified in a gas treatment unit. Such treatment raises

the methane content of the biogas transforming it into Biomethane. Subsequently, Biomethane

can be sold directly via the gas transmission network.

Finally, the digestate residues can be used as a high-quality fertilizer. Following the substrate’s

fermentation, the residues are separated, dried and collected. Due to its low viscosity,

digestate can enter the farming grounds faster. Moreover, the digestate often has a higher

fertilizer value and is less intense to the olfactory senses.

The number of biogas plants has risen significantly in the recent years. Small farmers, as well

as industry leaders are creating new biogas plants. Generally those plants integrated into

existing farms have proved to be a success. Such biogas plants have sufficient and

continuous amount of substrate resources. However biogas plants depending on external

substrate providers have struggled to become economically viable.

Plasma Arc Gasification (PAG) PAG is the process that utilises a plasma torch or plasma arc using carbon electrodes, copper, tungsten, hafnium, or zirconium to initiate the temperature resulting in the gasification reaction. Plasma temperature temperatures range from 2,200 °C – 11,000 °C, creating not only a high value syn-gas but also high value sensible heat. The technology has been used for decades to destroy wastes that may be hazardous. The resulting ash is similar to glass that encapsulates the hazardous compounds. The first Plasma Arc unit began operation in 1985 at Anniston, Alabama, USA. The unit used a

catalytic converter system to improve gas quality and the gasifier was designed to destroy

munitions.

The second system began operation in 1995 in Japan followed by the third system in

Bordeaux, France. There are other operating systems in Sweden, Norway, the UK, Canada,

Taiwan and the U.S., Japan has added nine more since 1995. All of these are small in size but

have the ability to scale up, using multiple units.

The advantage of the PAG is the high temperature that minimizes air pollutants well below

those of traditional WtE facilities. At the elevated temperatures, there is no odour, and the

cooled off gas has lower NOx, SO2 and CO2 emissions. The solid residue resembles glass

beads.

Some Technical Questions to Evaluate

Is it proven? (Meaning: technically sound) – Not serial No. 1

What is the capital and long term O&M costs? (Long Term Lease?)

Is it guaranteed and what is behind the guarantee?

Land and Water requirements?

Is it scalable? (Modular)

Environmental?

Can it use all the municipal solid waste, with little or no waste streams?

What is the schedule for delivery and commercial operation?

Is the technology/company committed to resolve all issues with waste?



Note: If it doesn’t work technically then it doesn’t work, and if it doesn’t work economically,

then it doesn’t work, and if it creates environmental issues, it doesn’t work. All are needed to

be viable.

Evaluation Conclusions The CSIRO Energy Technology Division, various European and Asian governments, the US Navy, and many waste management associations have all written at some time or another about the benefits and challenges of WtE. Most of the intellectual property contained in this paper has been wilfully gleaned from sources

readily found using the Google (search engine). Here lies the problem. Every paper published

is somewhat biased towards the conclusions either obtained at the time, or paid for by those

with vested interests. The few I found that didn’t fall into that category were out of date.

Nevertheless, the freely available information represents a great starting point.

Coercing those with the financial capacity to assist Tenterfield Shire Council and our

New England Group of Councils to make a start is the aim of this paper.

All of the technologies presented provide the end user with different results. Although mass

burn and RDF (Refuse derived fuel) have the most units installed around the world, the lesser

used technologies (Pyrolysis, Gasification and Plasma Arc) all have the capability of changing

the landscape of the WtE arena.

All three of these technologies provide systems with lower emissions than the mass burn and

RDF system simply due to their process characteristics. The Plasma Arc has proven that it has

the lowest emissions of all the technologies presented, but does not have a track record of

multiple units around the world.

That said, it is gaining in acceptance and increasing the number of installations due to its

complete elimination of the waste stream. Although there are few Pyrolysis systems installed

around the world it appears as though this technology will not be used to produce electrical

energy rather it will be used to produce bio-fuels for the transportation industry.

Although the capital costs are conservative and high compared to other energy technologies,

we need to look at all the possible revenue streams, including off-set costs.

Although some are more valuable than others, WtE technologies have more ways to generate

revenue that any other power generation technology due to by-products. The exception is

Plasma Arc as it doesn’t have any by-products to on sell due to its complete consumption of

waste.

Installation and operation of energy plants The installation and the operation of energy plants are complex and multistage processes where different approvals need to be obtained. WtE sits within a regulatory environment with policy settings struggling to keep up.

WtE also appears to reside in a little understood arena with no ‘boxes to tick’ to gain

seed funding via Government grants or collaboration. This is ironic, as the waste

problem confronts us all head-on.

Moreover, the industry is far bigger than the government. (For example Australia has a gas

shortage, yet we export gas.) Some policy derived outcomes will therefore be controlled by the

world supply and demand paradigm.



It is also ironic that as a Nation we appear to have gone a complete circle. Energy generation

and distribution was originally under control of small County Councils. Until the National

Electricity Grid was built the generation and distribution was mostly locally contained and

managed.

Now that technology has evolved and gone the full circle, the NSW Government sees

opportunities to reduce transmission losses, reduce our dependency on coal fired power

generation, and place downward pressure on energy tariffs by encouraging the introduction of

Microgrids.

Tenterfield Shire Council sees the installation of a Community-level Microgrid, with

power generated from WtE and Photovoltaic panels, providing power for the whole

town as our aim.

Even more ideal, will be to produce enough power that the installation is deemed a

‘commercial generator’ versus something owned by a bunch of over enthusiastic,

altruistic but well-meaning futurists.

C. Legal and Commercial Contracts Access to the grid, negotiation and payment of feed in tariffs, maintenance of electrical

distribution networks, feed stock supplier contracts, sale of by-products, framework to sell

power downstream to customers, and maintenance contracts need to be understood and

agreed to prior to being able to finalise the business case.

The flowchart related to the process of development of a Town based Microgrid is still

vague.

The negotiated payment for the generation and methodology for supply and demand

controls (feed in times) needs to be fairly derived not dictated by monopolistic

enterprises. Making the most of energy payments through being given the instrument

to feed at peak load times would supply the best outcome.

Although there are now companies pre-approved through both the OEH and LGP, it is

questioned as to how much profit is likely to be whittled away that may or may not

prove to influence the no/go decision Business Case. Added to the profit that those

supplying access through Community Agreements would be required to make it is

anticipated that the efficiency gains made on one hand would be quickly diluted on the

other.

The concept of Microgrids is both refreshing and well timed, but why so many

(perceived) constraints?



D. Operations and Logistics

The end-to-end processing requirements will largely determine the overall cost per unit rate.

As with any production line, any change that adds to input reduces output. The plant and its’

operations need to be designed with not only the obvious in mind, such as logistics, volumes,

outputs etc., but ensuring the legal, commercial, environmental and compliance requirements

are ‘hard-wired’ into the design from the onset.

Understanding Lean Six Sigma principles is required (efficient production techniques)

E. Governance and Control

A WtE plant will have multiple stakeholders, other government entities, private industry,

suppliers, and those residing within the locality.

A robust governance framework, including ownership and control, needs to be

established.

F. Finance

The benefit cost ratio and other financial metrics need to take a broader more holistic

approach to ensure that the reduction or elimination of the cost to dispose waste, the benefit

able to be derived from by-products, and the assistance to other industries (forest residue),

grants and other incentives, is fully captured.

Triple bottom line mathematics required, including artificial off-sets

No Council is going to embark on something as risk laden as this. But someone has to.

The State and Federal Government needs to choose a Council or Joint Organisation

(preferable Tenterfield Shire Council driving the outcome through New England Group

of Councils) and provide support.

Further Challenges Faced: Even the Experts Don’t Agree The Decision Support Matrix required to make the choice as to whether to install a WtE plant is somewhat daunting. This alone may result in a lengthy process for the realisation of such investment, which may take years and a number of hurdles to overcome.

Unfortunately, we haven’t got the luxury of years, as the waste problem is already here.

There is much debate worldwide on how to define and distinguish renewable energy from non-

renewable. I like the following definition:

‘Renewable energy sources (RES) are renewable non-fossil energy sources, namely

wind, solar, aerothermal, hydrothermal and geothermal energy, ocean energy,

hydropower, biomass, landfill gas, sewage treatment plant gas and biogases.’

In the traditional sense, RES are those that nature can regrow, such as wood, crops, or other

plants (biomass) available through the Earth’s unique physical set-up, such as wind, water,

and solar radiation. However, the term biomass often includes one manmade good that is the

by-product of industrialisation - waste. In this sense, energy from waste is only partially



renewable due to the presence of fossil-based carbon in the waste and only the energy

contribution from the biogenic portion is counted towards renewable energy targets. If the

waste is pre-treated to separate out the biogenic fraction then this can be considered entirely

renewable.

Considering the aforementioned definition it is undisputable that biomass and biogas waste is

considered RES. Biomass is the biodegradable fraction of products, waste and residues of

biological origin from the agriculture (including vegetable and animal substances), forestry and

related industries including fisheries and aquaculture, as well as the biodegradable fraction of

industrial and municipal waste.

For the use and processing of biomass into fuel, four processes apply:

Burning (the combustible material in the biomass oxidizes in CO2 and water vaporizes,

thereby emitting heat),

Biological conversion (anaerobic digestion, fermentation, etc.),

Thermo-chemical conversion (pyrolysis) and

Liquefaction and gasification (biodiesel, biogas etc.).

Sustainably sourced biomass has a low emissions footprint. On the downside, the process of

burning biomass does release carbon into the atmosphere, meaning that the emissions

resulting from biomass must be weighed against the emissions that would result from any

power source biomass was looking to replace. Biogas is energy gas produced from biomass

or from biodegradable waste, or wood gas that can be refined to a degree of quality, which is

interchangeable with natural gas.

Other types of waste (not falling under the scope of biomass, e.g. end-of-life tyres and cars,

batteries and accumulators, hazardous waste) could be used as energy sources, as described

above, however, they are not considered renewable. Even globally, no common and

unanimous accord on which waste type could be perceived as a renewable source of energy

exists. Some have taken the position that, e.g. hazardous medical waste accounts as a

renewable energy source, since it can be refined through the gasification process into ethanol,

synthetic diesel and used to generate electricity.

G. CONCLUSION

What is known is that there is plentiful science available to help make a robust decision

in a timely manner.

The problem doesn’t appear to be the science, the problem is consensus.

Unless a government pushes past the bias, professional boundaries, subjectivity,

pecuniary interests, and hype, we could be putting waste in even bigger holes for

another 150 years.

I put it to higher levels of Government to get behind Tenterfield Shire Council,

and the New England Group of Councils, supply us some champions from the

various government entities, and fund the solution.

The time for talking about the problem is past.

WASTE TO ENERGYBy Terry Dodds

Chief Executive

1

As society becomes more time poor, but more affluent,and even more efficient economies of scale are reached,the likelihood of waste products increasing in volume andsophistication will only rise. The evidence clearly shows thisexponential rise already. In Japan you can buy a singleboiled egg in a little plastic box.

2

We all know we’re currently facing huge challenges regarding waste management.

Councils all over Australia are spending millions and millions of dollars to manage a continuallygrowing waste issue. It’s an expense that isn’t easily reduced let alone removed – despite decadesof effort to date.

As waste management legislation has evolved the over-simplistic solutions have mostly been forcedto disappear. As environmental problems happen in the future, legislation will inevitably get eventougher and more expensive to address. Burying waste creates multiple risks and by its nature isunsustainable.

3

Our tried and proven solution of finding abigger hole, preferably not in our backyard,isn’t sustainable.

Hiding a problem usually only guarantees growing the problem. Leachate, methane, long termenvironmental management and intergenerational equity spring to mind. Although reducingpackaging in the first place, and recycling as much as possible is greatly helping, it is not enough.We still bury waste.

With 8,000 MW of coal-fired generation capacity to be retired in the next 20 years, the time for changehas never been more prudent. Especially as the will to invest in traditional coal fired generation hassignificantly waned.

4

Moreover, the whole country is going through a difficult yet exciting period regarding the energymarket. In short, photovoltaic, hydro and wind generated power definitely have their place,but alone will only supply part of the solution, with base-load power generation still being thecornerstone requirement.

5

Despite the fact that coal seam gas (CSG) accounts for 27% of Australian gas reserves,approving the extraction of CSG deposits has been addressed differently by eachState, and is mired by problems be they real or imagined.

Australia’s abundant gas reserves used to be considered the natural successor to coal,but as gas is a now valuable commodity able to be sold on the world stage, no longercan it be a cheap back up source to that of coal as the price is determined by otherplayers.

6

Nuclear energy, possibly the most misunderstood non-renewable or non-sustainable energy sourceis available in Australia due to our uranium reserves. But as the risk is so inherently catastrophic fewpeople would consider, and even fewer would condone nuclear power as an alternative.

7

Australia faces a difficult period transitioning from the current reliance on electricityproduced by burning coal to that of dependable, on demand and reliable alternativeand sustainable forms of energy. Not only is it proving difficult, it is also a race againstthe clock as investment in traditional generation falters.

Wind or solar energy generation relies on weather conditions or the ability to storeenergy in (mostly) batteries. There are many types and methods used to store energy,from compressing air through to hydro. Mostly though, energy is stored in batteries. Thatin turn currently relies on a resource (lithium) which itself is available in limited quantitiesand likely to be affected by the supply and demand equation.

We think we’re pretty clever, but generating energy fromwind has been around a while…..

8

And generating energy from pumped hydro, just aslong….

q Is the cost of recycling down-stream less than the benefits of converting the materials toenergy upstream; especially when waste costs offset energy generation costs?

The Elephant in the Room 9

“Where there is confusion there is profit.”10

(As a nation, Japan has 1,162 energy from waste plants, including plants with no energy recovery,through to modern gasification plants with advanced pollution control, energy recovery and plasmaarc treatment of ash. Tokyo alone has 21 dedicated energy from waste plants that recover energy fromresidual waste after source separation and recycling. There are 764 energy from waste plants across thecountry that capture heat from the process, and a further 338 include power generation capabilities.The average processing capacity per plant is 158 tonnes per day).

11

Some Fundamental Questions

As a country we have many challenges, but there are two making the news almost daily; what to dowith our waste and how we develop energy solutions that don’t rely solely on the vagaries of theweather or battery storage.

• If the recycling industry delivered a constantly positive rate of return, why are we looking towardsor relying on existing levies and other artificial props to sustain it? Why is there a glut versus shortfallof raw product?

• Can waste be used, just like hydro power generation (pumped storage), to supply power ondemand – thus generating best value return to local governments?

• What technologies to convert WtE have been used in other countries? If WtE is so evil and is beingavoided why are 35 other countries using it?

Osaka City Environment Bureau, Maishima Incineration PlantCompleted: 2001Processing capacity: 900 t/day (450 t/day x 2)Power output: 32,000 kW

12

• Is rewarding the public for better managing waste through lowering of electricity tariffs andimproving environmental outcomes versus taxing them via levies for failure to meet targets abetter solution?

13

• Waste to Energy has been described as “only one step better that burying it”. This is true. Butif the environmental, social and economic equation doesn’t add up, WtE is (rightfully) thenext best thing to burying. Why the hurdles?

• What is the public’s appetite for change now, given the often newsworthy topics of risingenergy prices and the crisis in waste management?

• How is local government going to gain assistance and overcome the initial risk – even ofdoing a feasibility study that actually looks at the environmental mathematics, as well as thesocial and economic cost?

• Why do we look at the same re-badged solutions to solve our problems when we wouldn’thave the problem if the old solutions were working in the first place?

• The waste levy fund management has seriously eroded trust in the State Government as onlya small amount has been redistributed under the original imprimatur. Does a government ofany persuasion think local government and the public will seriously believe that any new orincreases in a levy will be used for it’s intent?

Through Hitachi Zosen Inova AG (Switzerland), Hitachi Zosen has built Energy-from-Waste plantfor various clients around the world. Hitachi Zosen has installed 458 plants, comprising 195 inJapan and 263 outside Japan. (As of October, 2013)

14

• Are smaller scale WtE plants available that perhaps can augment photovoltaic arrays, WtEand biogas generated by sewerage treatment plants, to create a neutral or an improved NetRate of Return and a better environmental outcome?

Acts, Regulations and Policies that will influence the Decision Support Matrix:

15

• NSW Environmental Planning & Assessment Act (1979)• Contaminated Land Management Act 1997• Dangerous Goods (Road and Rail Transport) Act

2008• Environmentally Hazardous Chemicals Act 1985• Forestry Act 2012• National Environment Protection Council (New South

Wales) Act 1995• Ozone Protection Act 1989• Pesticides Act 1999• Protection of the Environment Administration Act

1991• Protection of the Environment Operations Act 1997• Radiation Control Act 1990• Recreation Vehicles Act 1983• Waste Avoidance and Resource Recovery Act 2001• EPBAC Act• POEO Regulation 2014 (part 9) and 2010 Clean Air• POEO Act 1997 (schedule 1)

• WARR Act 2001• EP&A Act (part 3A) – Ministerial Approval• Local Government Act 1993• The Waste Less Recycle More Initiative• The Clean Energy Act (and potential repeal)• NSW Waste Levy Review• NSW Waste Avoidance and Resource Recovery Act

Strategy• Protection of the Environment Operations Waste

Regulation• Boonoo Boonoo Landfill Design Masterplan• Product Stewardship Act & Regulation• NEGOC (seeking advocacy)• LEP• SEPPs (various)

Ø One council won’t generate much electricity or gain large tariff inputs. What if 80councils joined forces and created a virtual generator network?

16

Some Exciting Questions

Assuming that some divine intervention of biblical proportion happens, and the New EnglandJoint Organisation / Tenterfield Shire Council navigate a path through the 27 aforementionedActs, Regulations and Policies, let alone the political machinations, there are some prettyexciting possibilities.

Ø What would happen if a pilot virtual generator was set up in NSW then replicated acrossEastern Australia?

17

Ø What if that network controlled input into the grid at peak demand periods and wassold on the free market the same way pumped hydro is currently?

Ø What would happen if these councils used the offset cost (waste and energy combined)on replacing timber bridges, maintaining roads, repairing buildings and parks?

Ø Gain seed funding for the completion of a feasibility study to convert waste to energyat a local scale.

18

What is it that Tenterfield Shire Council in conjunction with the New England JointOrganisation is wanting to do?

Federal Member for New England, the Hon. Barnaby Joyce and State Members, the Hon. ThomasGeorge and The Hon. Adam Marshall have also indicated their support.

21

Where is the New England Joint Organisation up to?

Tenterfield Shire Council has spoken to eighteen local governments across two States, two Territoriesand an Island, along with Regional Development Australia – Northern Inland, and requested theycontribute $15,000 each. This will create a potential pool of up to $270,000.

The Chair of Northern Inland Regional Waste, Mayor Michael Pearce of Uralla, Mayor Peter Petty ofTenterfield, and myself met with the Federal Minister for the Environment and Energy’s Office in Juneto discuss. The deputation was reported via the Federal Member for New England’s Office to havebeen warmly received. The meeting was to clarify the chances of success for an application to theAustralian Renewable Energy Agency for dollar-for-dollar funding. This will potentially mean that thepool will be $540,000.

Ø Chief Executive of Tenterfield Shire Council has his well deserved nervous breakdown.

23

Ø When the coalition of the willing is known, Tenterfield Shire Council will make formalapplication to the Australian Renewable Energy Agency (ARENA) to match contributions.

Ø If successful with the grant application a project group will be formed with people withexpertise in the various streams required.

Ø Depending on the results of the feasibility study, it is hoped that Tenterfield Shire Council, orothers, then are successful in going to the next stage which would be to build a pilot plant.

Ø The intellectual property gained through the process will be documented in a ‘DecisionSupport Matrix’ such that replication can more easily occur.

Ø We continue to believe in current management regimes.

24

The Risks?

Risks Continued.

25

Risk Continued.

26

If the NSW Country Mayors Association would like to be kept informed I’m sure it wouldn’t be an issue.

27

Risks Continued.

NSW hasn’t a great track record in regards to Waste to Energy. Every industry representativeTenterfield Shire Council (and others involved) has spoken to has denigrated the wholegovernmental approval process. This risk cannot be managed by councils or the FederalGovernment. It is hoped that the Machiavellianism that has seemingly plagued those who I havemade contact with in the last few months gives way to a big dose of pragmatism and acceptanceof science versus political popularism.

ATTACHMENTS FOR REPORT

Report Item

13.09 FINANCE & COMMUNITY SERVICES

POLICIES FOR REVIEW

ATTACHMENTS

Policies

a) Communications - 1115

b) Procurement and Disposal - 1206

c) Use of Internet and Email - 2115

d) Corporate Credit Card - 2117

e) Children and Young People in the Library - 2403

f) Independent Living Unit – 2404

Policy 1115 – Communication

POLICY 1115

COMMUNICATION

1. Intent of Policy

Oberon Council recognises that the key to building positive and lasting partnerships with thecommunity requires effective two-way communication. The intent of this policy is to informhow Council proposes to:

· Inform the community of key Council decisions, services, programs and initiatives,· Promote transparency and accountability of Council’s decision making processes,· Promote opportunities for public consultation, engagement and participation in

Council activities,· Promote accessibility by the community to Oberon Councillor’s and staff,· Build pride and community capacity through a positive image of Oberon Council.

2. Scope of Policy

In all forms of communication, including verbal, printed or electronic, Oberon Councillors andstaff are expected to adhere to the highest standards of ethical practice and professionalcompetence.

3. Guidelines

Media

All media comments of a politically sensitive nature are to be made by the Mayor of the day,and in the Mayor’s absence, such comments can be made by the Deputy Mayor.

Visitor Information Centre, Library and Community Technology Centre staff can continue toprovide information via regular radio programs, newsletters and media releases, promotingthe benefits of the region and to keep the public informed.

Factual media comments can be made by the General Manager or if the General Manager isnot available then by the Acting General Manager, and if the Acting General Manager is notavailable, then by the most appropriate senior staff member who has knowledge andresponsibility for the matter raised by the media.


Advertising

To ensure maximum coverage within the Council area, Council’s public advertisementsmust, at a minimum, be placed in the local newspaper, ‘Oberon Review’. All publicadvertisements are to include the Oberon Council Logo.

The Oberon Council logo is to appear on all Council communication mediums includingcorrespondence, publications, forms, facsimiles, advertisements, displays, signage, etc.

Access to Council Information

Members of the public are entitled to have access to the majority of Council documents.Inspection of Council documents is free, if a copy is required the photocopying rate inCouncil’s Fees & Charges will be charged.

Section 12 of the Local Government Act 1993 specifies which Council documents must beavailable free of charge for people to inspect at Council offices during business hours.

An application for information through the Government Information (Public Access) Act 2009(GIPA Act) can also be submitted to obtain documents that cannot be obtained underSection 12 of the Local Government Act. However, the Privacy and Personal InformationProtection (PPIP) Act 1998, which helps to protect personal information and the privacy ofindividuals, must also be considered.

Community Notice Boards

Council has Community Notice Boards within the Local Government Area. The notice boardsare to be locked and access is only to be controlled by Council staff.

Acceptable uses are, but are not limited to, the following:·· IInnffoorrmmaattiioonn aabboouutt ccoommmmuunniittyy eevveennttss aanndd//oorr pprrooggrraammss·· AAvvaaiillaabbllee hheeaalltthh sseerrvviicceess·· CChhiilldd ccaarree ffaacciilliittiieess·· MMiiggrraanntt ssuuppppoorrtt·· FFaammiillyy wweellffaarree·· EEmmeerrggeennccyy sseerrvviicceess·· CCoouunncciill sseerrvviicceess·· MMaappss ooff tthhee aarreeaa·· SScchhoooollss,, ssppoorrttiinngg aanndd rreeccrreeaattiioonnaall ffaacciilliittiieess,, aanndd·· VViissiittoorr iinnffoorrmmaattiioonn..

Unacceptable uses include, but are not limited to, the following:·· IInnffoorrmmaattiioonn aabboouutt lloosstt ddooggss·· IItteemmss ffoorr ssaallee oorr ggaarraaggee ssaalleess·· AAddvveerrttiissiinngg·· CCoommmmeerrcciiaall aaccttiivviittiieess..

The Council retains the right to add or remove any items from the notice boarsd at any time.The General Manager will make these decisions.


Website and Facebook

Council will maintain its website, www.oberon.nsw.gov.au and Facebook page.

Oberon Council is committed to a quality service and makes every attempt to ensureaccuracy, currency and reliability of the data contained in these documents. However,changes in circumstances after time of publication may impact the quality of this information.It is the responsibility of the user to make his or her own decisions about the correctness ofinformation found. Confirmation of the information may be sought from originating authors ororganisations providing the information.

Oberon Council has no control over the content of material accessible on any site cross-referenced. It is the responsibility of the Internet User to make his or her own decision aboutthe relevance, currency and reliability of information found on Council sites.

In addition, Oberon Council does not necessarily endorse or support the views, opinions,standards or information expressed at linked sites. They have been set up as informationsources only.

Distribution of Council Meeting Business Papers

The distribution of business papers for the Ordinary Council Meetings is to be arranged sothat elected members receive the business paper before it is released to the general public.

Agendas, business papers and minutes from Council and Committee meetings, except forany parts of the meeting that are closed to the public, are available free of charge for peopleto inspect at Council offices during business hours.

Council will issue a public notice that the complete business paper will be available forinspection at Council’s offices, Library and website. If people wish to receive a paper copy, itwill be charged at the rate in Council’s Fees and Charges.

Community Consultation

Council will help the community build capacity by providing vehicles for local people toexpress and act on existing concerns. These vehicles may include but are not limited to:

· Focus Groups· Community Forums· Community surveys· Review of customer feedback and complaints· Neighbourhood, precinct, community committees or working parties· Research into service trends· Informal assessment through networking· Structured community involvement through advisory committees (Section 355

Committees) or representative appointments to panels that mediate community input.

In providing these vehicles for local concerns, Council can interact with communities indifferent cycles of contact. Council will avoid top down approaches which often engagecommunities and agencies in a self-reinforcing “vicious cycles”.

With a more community orientated approach, agencies and communities can build aconstructive “virtuous” cycle of contact. As people begin to express and act on theirconcerns, they meet other stakeholders and community sectors cooperate.


Gradually, emotional and reactive thinking become more constructive and strategic. Councilfinds it easier to listen and act on community concerns, building trust between staff and localparticipant.

These processes are not intended to reduce in importance Council’s role and responsibilityin decision making. It is intended that local people will provide information and opinions withthe objective of building wisdom that facilitates sound decision making.

Internal Communication

The General Manager will be responsible for the development and implementation ofefficient and effective internal (staff) communication policies and procedures.

Approving Authority Oberon CouncilContact Finance & Community Services DirectorApproval 21 August 2018: Item x, Resolution xRevised 21 August 2018Revision Date August 2020Issue Date to Staff August 2018

Policy 1206 – Procurement and Disposal

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POLICY 1206

PROCUREMENT AND DISPOSAL

1. Intent of Policy

The intent of this policy is to:· Provide clear guiding principals for the procurement and disposal of materials,

equipment and services through quotations and tendering, to assist in ensuring bestvalue for money, cost, effectiveness, meeting the needs of the community, goodmanagement practices, transparency, probity and environmental performance.

· Comply with occupational health and safety good practice in the general employer’sduties required under the WHS Act 2011 and the WHS Regulation 2011 with theregard to purchasing of equipment, plant and material.

· Endeavour to participate in sustainable procurement to facilitate purchasingenvironmentally sustainable products and services whenever possible.

2. Scope of Policy

Council is committed to ensuring fair, transparent and accountable process in the purchaseof disposal of goods, the contracting of services, and in the disposal of assets. This policyapplies to all Councillors and Staff of Oberon Council.

3. Guidelines

Council’s procurement and disposal related activities shall be conducted in a manner thatcomplies with these general procurement principles:· Obtaining value for money in the procurement and disposal of goods and services,

using open and effecting competition wherever practicable.· Quality, price, delivery and service shall generally be considered the main criteria in

assessing Council’s procurement and disposal of goods and services together withexperience, conformance with specifications (including environmental performance),local benefit, WHS record and system and project specific matter.

· Council expects its contractors and suppliers to comply with ethical businessstandards and practices in its procurement activities.

· Council expects its contractors and suppliers to comply with insurance requirements· Council shall strictly implement its Code of Conduct, guidelines and other relevant

policies on matters relating to its procurement activities.· All staff are required to consistently apply and implement Council’s procurement policy

and procedure.


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4. Responsibility

General Manager and DirectorsGeneral Manager and Directors are responsible for providing policy, procedures andframework to facilitate transparent, ethical and value for money procurement.

ManagersManagers are responsible for ensuring this policy is implemented within their workgroup.Managers are to ensure hazard identification and risk assessment is undertaken with regardto equipment, materials and supplies which they have responsibility for purchasing forworkplace use.

SupervisorsSupervisors are responsible for ensuring procurement tasks are carried out according toprocedures. Supervisors are to ensure there are in place procedures for identifying safetydefects in equipment, material and supplies purchased and used at the workplace.

EmployeesEmployees are responsible for carrying out procurement activities in an appropriate mannerwith regard to training undertaken.

SupplierThe supplier is required to advise of the risks to WHS of the purchase, and to supplyappropriate information and instruction to ensure safe use at the workplace. Largeprocurements or procurements with elements outside Council’s areas of expertise willrequire the supplier to complete a risk assessment prior to Council accepting the item orservice.

4. Categories of Procurement

4a. Petty Cash

Petty cash is used to meet the need for the procurement of small incidental goods andurgent situations for Council and is limited up to $50.00 per individual transaction. Splitting ofpurchases to circumvent the limit or the multiple purchases of the same items over a periodof time is not permitted. Petty cash claims are to be approved by authorised officers andrecords of claims and tax invoices maintained.

The General Manager is delegated authority to determine all matters relating to petty cash,in order to allow the levels of the floats and the limits placed on petty cash vouchers to beamended administratively. In this regard, the petty cash limit may be varied from the $50.00limit in extenuating or emergency circumstances when a cash transaction is required.

4b. Credit Cards

Please refer to Council’s Policy 2117 Corporate Credit Card for details. The Corporate CreditCard policy is to minimise administration expenses, time inefficiencies, the risk of fraud andmisuse by providing Oberon Council staff clear guidelines on corporate credit card issue anduse.

4c. Value for Money

Council seeks to achieve value for money in all its procurement activities. Council will selectgoods, services and suppliers that represent the best overall value for Council; notnecessarily the lowest priced conforming offer.


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Value for the community is the core principle underpinning Council’s procurement system.This will involve a comparative analysis of all relevant costs and benefits of each proposalthroughout the whole procurement cycle. Value for money is not restricted to price alone.

When assessing value for money, consideration shall also be given to:· The advancement of Council and Local Government priorities· The non-cost factors, such as fit for purpose, quality, service and support, and

sustainability considerations· The cost related factors including whole-of-life costs and transaction costs associated

with acquisition, use, holding, maintenance and disposal.

4d. Purchase Order

A purchase order is Council’s official document used to purchase goods or services from anexternal supplier. A purchase order created through the online requisition module confirmsthe contractual relationship between Council and the supplier. The purchase order numbermust be issued to the supplier before the procurement of the goods or services and placedon the invoice issued to Council.

Apart from delegation of authority, financial allocation of funds must also be available toundertake procurements.

The limitations below refer to the total cost of purchase, not to individual line items. Ordersplitting, that is multiple orders, is not permitted to avoid limitation levels within theprocurement process.

$1 up to $4,999A competitive process is not required, although it is recommended that at least one verbal orwritten quotation is obtained where possible. The use of ‘Corporate Credit Cards’ byauthorised Council staff for minor, low risk purchases may be considered within this limitrange.

$5,000 to $49,999A competitive process is recommended, with three written quotations obtained wherepossible. This will ensure that an open, fair and transparent process is carried out, resultingin the facilitations of a Value for Money judgement. All quotations are to be attached toCouncil’s Purchase Order. All quotations and records are to be attached to the PurchaseOrder and retained by Council’s Accounts Payable Officer, attached to the appropriatevoucher.

$50,000 up to $149,999A competitive process is required, with a minimum of 3 written quotations obtained. This willensure an open, fair and transparent process is carried out, resulting in the facilitation of aValue for Money judgement.

The process used for procurement in this price range should involve thorough assessment ofthe quotations against appropriate evaluation criteria with authorisation to process, approvedby the procuring officer’s senior supervisor.

Quotations are to be recorded in Council’s electronic document management system(InfoXpert).


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In Excess of $150,000Full tendering procedures are to be in place with a process that meets the requirements ofthe Local Government Act 1993 (S55) and the Local Government (General) Regulation2005.

4e. Tending

All tendering must be undertaken in accordance with section 55 of the Local Government Act1993. In extenuating circumstances the provisions of sections 55(3), of the LocalGovernment Act 1993 may be applied subject to a supporting resolution of Council.

It is essential that forward planning of this process occurs in order to allow time for bothCouncil and potential suppliers to comply with policy and tendering requirements.

If a Government contract already exists for the goods and services in question, then it is atCouncil’s discretion whether it wishes to tender separately or simply use the Governmentcontract already in place.

Other Instances that require Tendering· Where the sale or purchase of goods or services may be considered controversial,

contentious or political.· Where the sale or purchase of land may be considered controversial, contentious or

political.· Where there is a risk that “would be” tenders could claim that Council has “preferential”

arrangements with a single supplier.· Where there is a risk that “would be” tenders could claim that they wold have tendered

for the work if a public tendering process had been undertaken.· To assist with the Tendering Process, refer to the Department of Local Government

Guidelines.

Tendering Methods· Open Tenders – where Council tenders by public advertisement with no restriction

placed on whom may tender.· Selective Tenders – where invitations to tender for a particular proposed contract are

made following a public advertisement asking for Expressions of Interest.· Selected Tenders/Pre-qualifies Tenders – whereby recognised contractors selected

from a list prepared or adopted previously by the Council are invited to tender forproposed contracts of a particular kind.

Special Circumstances OrdersProvision is made for purchases of goods and services to be obtained without quotes ifapproved by an appropriately delegated officer of Council. This would occur incircumstances where it was not practicable to obtain quotes due to the timing that theservices or goods are required in an emergency situation, or where the expertise requiredhas limited availability.

The delegated officer would need to be satisfied that a legitimate emergency situation exists.

Communication with TendersAll communications with potential tenderers should be conducted within strict probity and riskmanagement frameworks to ensure accountability and transparency.


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Councillors and staff are reminded to ensure they act in accordance to the LocalGovernment Code of Conduct.

Records should be kept of all communications with all tenderers. Council officers are toensure that:· A register of all requests for tender documents and a register of all requests for

information regarding the tender and requests for clarification are maintained.· Communication with potential tenderers is only undertaken by the contact person who

must be listed in the public advertisement of the tender and the tender documents.· Unless impractical, all communication to tenderers be provided in writing and

simultaneously to all tenderers in respect of a question asked of the tender. A copy of thequestion, but not in details of the source of the question, should be circulated with theanswer.

· Information or clarification provided to potential tenderers is consistent and documented.Where the information is not readily or immediately available, the contact person obtainsthe relevant information and then follows up the request.

· Response to queries about a specific tenderer’s innovative solution should not becommunicated to any other tenderer.

· Any amendment to the tender documents and the steps taken to inform all potentialtenderers of the amendments, are documented.

· Responses to tender enquires should reference the relevant clause in the tenderdocuments or if there is no clause relevant to the query, provide the response as anaddendum to the tender documents.

· Information or clarification provided to potential tenderers is consistent and documented.· Where briefing or site visits are offered by the council in regard to a particular tender, an

attendance register and minutes or notes of the proceedings, including questions askedand answers provided is maintained and forwarded to all attendees following the briefingor site visit.

· During briefings or site visits, council officials should avoid one to one communication.Requests for information by one potential tenderer should be repeated and the responseprovided to all in attendance.

Tender EvaluationA tender evaluation committee will be formed to evaluate all tender responses.

General key area is to be taken into consideration when evaluating a tender include:· Price – while price is one of the most important aspects of Procurement, it does not

always follow that the lowest price will always win the contract. The requirement is forthe most commercially favourable and advantageous tender to be accepted. This maynot necessarily be the cheapest tender.

· Commercial Considerations – these might include the ability of the supplier to deliverthe goods and/or services as and when required; the capacity of the supplier to meetenvironmental and WHS standards; and previous poor supply performances, inferiorproduct quality; ability to meet appropriate quality standards as set but Council assuitability of the product being tendered.

· Financial Considerations – the financial viability and stability of the supplier. If thereare questions in this regards, then appropriate advice should be sought.

· Risk – a formal risk assessment should be conducted for all major tenders over$1,000,000. The resulting risk profile should be used in conjunction with the analysis ofother evaluation criteria to determine the recommended tenderer to Council.


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Pre-Procurement ActivitiesIn considering the purchase of plant, equipment, services and materials the followingquestions are to be addressed:· What is the proposed purchase item?· What safety information has been obtained from the supplier regarding the item to

ensure the hazards and risks can be properly assessed? Equipment Manual AustralianStandards/MSDS/other safety information.

· Which employees and work processes are affected by the purchase?· Have the affected employees been consulted? When? Staff will be able to provide

input on the requirements of the plant, equipment and material and provide informationon safety issues that need to be controlled.

· What are health and safety risks relevant to the purchase? A risk assessment isundertaken with regard to its potential use at the workplace including the hazards andrisks presented by the item to be purchased, the manner in which it is to be used, thesuitability of the item for the purpose, and the opinions of the users of the item.

· How will the purchase help manage these risks?· What has to be done to ensure the use, storage and transport of the purchase is safe,

including any specific risk control measures identified by the manufacturer/supplier,provision of any personal protective equipment recommended by the manufacturer/supplier, and provision of any special emergency equipment?

· What change will need to be made to Safe Work Procedures? Effective riskmanagement procedures need to be in place before the equipment or substances areused at the workplace.

· What training will be required before the purchase to ensure the safe use of theequipment or substance?

· Have environmental impacts from the purchase of the product or services beenconsidered?

Post-Tender ActivitiesA listing of tender respondents is to be displayed in alphabetical order as soon as practicableafter the tenders have been opened.

Once a confidential report will be submitted to Council and the tender awarded. Inaccordance with Clause 179 of the Regulation, Council must make information on theoutcome of the tendering process publicly availably by displaying the name and amount ofthe successful tender, or if no tenders were accepted, a notice to that effect.

Further, as soon as reasonably practicable, tender respondents should be notified in writingof their successful or unsuccessful tender.

If feedback is requested by an unsuccessful tender, it will be provided by the SeniorManager responsible for the particular tender.

5. Sustainable choice and Environmental Goals and Objectives

GoalsWherever possible, Council employees and contactors will pursue the following goals andadhere to the specified objectives when purchasing products and services (nothing thatthese impacts should be considered during the entire life cycle of the product – i.e. theproduction, distribution, usage and end of life stages):· Minimise unnecessary purchasing – only purchase when a product or service is

necessary.· Minimise waste – purchase in accordance with avoid, reduce, reuse and recycle

strategies.


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· Save water and energy – purchase products that save energy and or/water.· Minimise pollution – avoid purchasing products that pollute soils, air or waterways.· Non-Toxic – avoid purchasing hazardous chemicals that may be harmful to health or

ecosystems.· Greenhouse Benefits – purchase products that reduce greenhouse gas emissions.· Biodiversity and Habitat Protection – purchase in accordance with biodiversity and

conservation objective.· Value for Money – purchase the best value for money on the long term.

ObjectivesCouncil’s objectives through sustainable purchasing are to:· Eliminate unnecessary inefficiency, waste and expenditure.· Contribute to the combined purchasing power of local government to further stimulate

demand for sustainable products.· Advance sustainability by participating in “closing the life-cycle loop”· Increase awareness about the range and quality of products available.· Deliver Council’s commitments in relation to ecologically sustainable development

(ESD) and other environmental and social objectives.· Play a leadership role in advancing long-term social and environmentally sustainability.

6. Training· Code of Conduct Online Course· Internal workshops to inform staff of this policy.

7. ReportingProcurement reporting will accord to the reporting provisions of the Local Government Act1993.

8. Sale or Disposal of Land and Assets

PrinciplesWhile the same principles and standards that apply to the procurement process equallyapply to the process of selling or disposing of land or assets, the following have specificapplications to the sale of land and assets:· Consideration of community access to an appropriate range of facilities and services

within Oberon Council, delivered through the physical assess.· Recognition of the value of areas of native vegetation to biodiversity in Oberon Council,

and the need for area to be available for this purpose.· Transparency and accountability in sale and disposal practices and procedures.· Thorough community consultation on proposed sale or disposal of significant and

important assets.· The equitable distribution of, and access to, quality physical assets within Oberon

Council.· Recognition of opportunities to enhance local economic development and growth.· The benefits of quality physical asset management including better service delivery,

optimising the utilisation of assets, higher return on investments and creatingopportunities to facilitate new facilities and services.

· Compliance with all statutory obligations.· Commercial confidentiality.· Consideration of ecological impact.· Equitable, efficient and defective practices and decisions.


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CriteriaThe following criteria should be considered in deciding which method to use for the sale ofdisposal of land and assets:· The number and type of known potential purchasers of the land or assets.· The original intention for the use of the land or asset when purchased.· The original method and intent of Council in obtaining ownership or custodianship of the

asset.· The current and possible preferred future use of the land or assets.· Potential for development and local economic growth.· Estimated value of asset.· The level of public interest in the disposal.

Methods of DisposalThe following general methods of sale or disposal of Council’s assets are acceptable:· Relocation of an asset which is surplus from one area within Council to another area

within Council which can utilise the asset.· Trade-in on new assets· Sale by public auction· Open invitation to quote to staff in specific circumstances, for the disposal of obsolete

equipment that has no significant market value.· Open invitation to tender or quote to the public through advertisements in the media.· Direct approach to potential purchasers in specific circumstances, such as:

- Prior ownership of the land or asset- The owners of land adjoining the parcel of land for sale- Direct relationship with an asset- Prior contractual arrangement.

· Donation to charitable institutions or local community service organisations· Disposal at a registered Waste Management Facility.

Council staff may only purchase assets being disposed of through an arms lengthcompetitive process, such as calling of expressions of interests from staff or public auction.Assets will not be sold to individual staff by private treaty, unless extenuating circumstancesapply and only then with the express consent of the General Manager. Assets beingscrapped are only to be taken by Council staff with the consent of the General Manager.

TendersShould Council determine to invite tenders or expressions of interest for the sale of disposalof land and assets, the same procedures that apply to the procurement process equallyapply to the process of selling or disposing of land or assets.

9. Business Ethics

Oberon Council expects all its representatives, staff and Councillors to behave ethically. Weare all required to abide by the Model Code of Conduct. The Council also expects privateindustry and its representative to maintain similar standards of ethical conduct in theirdealings with Council.

There are three main principals that form the basis of Oberon Council’s businessagreements. Firstly, there is the need to obtain the best possible value for public money;secondly, local benefit; and thirdly, Council needs to demonstrate impartiality and fairness atall stages of the process.


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These principles enable the suppliers to promote their interests productively and avoidpotentially questionable activity. Those providing goods and services also benefit from theassurance that their competitors are required to behave in accordance with the sameguidelines.

Value for Money is determined by considering all the factors which are relevant to aparticular process. For example, quality, reliability, timeliness, service, initial and on goingcosts, are all factors which can make a significant impact on benefits and costs. Value formoney does not mean ‘lowest price’. However, the lowest price bid might offer best value if itmeets other essentials such as quality and reliability.

Local Benefit as one of the selection criteria for assessing tenders, Council is activelyencouraging and promoting business and industry within the Oberon Council LocalGovernment Area, without conferring an improper advantage or breaching the TradePractices Act. Local Benefit shall only have a maximum of 10 points out of 100 for tenderassessment criteria.

A local benefit can be established where there is one or more of the following:· Locally sourced materials specific to the contract· Locally sourced services as a result of the contract (e.g. accommodation or electricians)· Locally sourced labour (people domiciled written the Oberon Council Local Government

Area) either sub contractors or employees, either at the time of tendering or as a result ofbeing successful in the tender.

· A business premises in Oberon Council Local Government Area.

Impartiality and fairness are about being objective, even-handed and reasonable. Animpartial person will try objectively to establish criteria. A fair person would not for examplechange or introduce new selection criteria midway through the tendering process withoutadvising all tenderers.

Being impartial includes taking into account the practicalities of a given situation. Impartialitydoes not require, for example, inviting bids from firms which have performed poorly in thepast. In some circumstances, fairness takes into account the effects of actions of others. Itwould be unfair to call tenders when there is not a serious intent to award a contract subjectto a satisfactory offer.

Fairness does not mean pleasing everyone. Council operates from a viewpoint where it aimsto be fair in all its dealings and minimise, where possible, any adverse effects of itsdecisions.

Oberon Council expects staff and Councillors to:· Respect and follow Council’s policy· Treat all tenders for the supply of goods and services equitably· Promote fair and open competition while seeking best value for money· Protect confidential information· Meet or exceed public interest and accountability standards· Avoid situations where private interest could conflict with public duty· Never solicit or accept remuneration, gifts or other benefits from a suppler for the

discharge of official duties· Respond promptly to reasonable requests for advice and information.


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Council expects tenderers, suppliers, consultants and contractors to:· Respect the conditions set out in documents supplied by Council· Respect the obligation of Council staff to abide by Council’s procurement policy.· Abstain from collusive practices· Prevent unauthorised release of privileged information, including confidential Council

information· Refrain from offering Council employees or Councillors any financial or other inducement

which may give any impression of unfair advantage.

How It WorksThere is no absolute definition of ‘ethical behaviour’. If there is any doubt about the ethics ofa proposed action, a sensitive test is whether or not you would be happy to see yourbehaviour published in the local newspaper.

Staff and Councillors of Oberon Council or those employed of a tender, supplier, consultantor contractor who are concerned that a breach of the law or of ethical conduct may havetaken place, should discuss the matter with Oberon Council’s General Manager on(02) 6329 8100.

Oberon Council is committed to overseeing the continued growth of the area and ensuringhigh quality of life for residents and visitors.

Related Documentation- Council’s Delegations Register- DLG Tendering Guideline for NSW Local Government- Risk Management Policy- Plant and Vehicle Replacement Policy- Code of Conduct Policy- Corporate Credit Card Policy- Gifts & Benefits Policy- GIPA 2009

Approval Ordinary Meeting of 21 August 2018Next Review Date August 2020Issue Date to staff August 2018

Policy 2115 – Use of Internet and Email

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POLICY 2115

Use of Internet and Email

1. Intent of Policy

To provide guidelines for the use of the internet and Council’s electronic mail (email) systemand establish procedures for creating, retaining, managing and disposing of email that meetthe Australian Standard AS ISO 15489.1: 2017 Information and documentation - Recordsmanagement, Part 1: Concepts and principles.

2. Scope of Policy

This policy applies to all Council employees, Councillors, contractors, consultants, temporaryand casual employees and other authorised personnel offered access to Oberon Councilresources.

3. Guidelines

Internet access and e-mail provided to Councillors and employees are public resources to beused for legitimate business purposes. All email accounts including the data and messagescontained within or transmitted via them are the property of Council and are primarilyintended for business use only.

Council employees should not transmit any classified, staff in confidence, commercial inconfidence, restricted or sensitive material over unsecured communication devices such ase-mail.

Use of email and internet must be consistent with other relevant laws, policies and practicesregulating:· Copyright breaches and patent materials legislation· Anti-discrimination legislation· Privacy legislation· Council’s Code of Conduct· Practices regulating discriminatory speech and the distribution of illicit and offensive

materials, particularly those that are sexual or pornographic in nature.

Failure to comply with this policy may lead to disciplinary action, should users conductand/or should actions be unlawful or illegal, they may be personally liable.

Council reserves the right to control and monitor the use of its equipment/services and auditand remove any illegal material without notice.


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Personal UseReasonable personal use of e-mail and/or internet is permissible, however, personal use is aprivilege which needs to be balanced in terms of operational needs. Its use must beappropriate, lawful, efficient, proper and ethical. Personal use should:· Be infrequent and brief· Not involve activities that might be questionable, controversial or offensive, including

gambling, accessing chat lines/rooms, transmitting inappropriate jokes or sending junkprograms/mail

· NOT extend to sending non-business related written material to any politicalorganisation.

· Not disrupt Council communication systems· Not interfere with employees’ job responsibilities or detrimentally affect the job

responsibilities of other employees.

Employees reasonably suspected of abusing personal use requirements will be asked toexplain such use.

EmailEmail messages must be kept as Council records if they provide evidence of Council’sbusiness and activities, are needed for use by others or affect the work of others. Staffsending and receiving email are responsible for deciding if an email message is consideredto be Council record and making sure that these messages are documented to provide aformal record.

Email messages which become Council records must be kept in accordance with theapproved retention periods listed in the Local Government Disposal Schedule.

Access to email is limited to Council staff, or other authorised persons, who have been givena user identification and password. Staff must not give their password to another staffmember or member of the public and must not access other staff members’ email withoutthe authority of a Director. Unauthorised access to programs or information will result indisciplinary action.

The email system is part of Council’s computer network and all the information processes,transmitted or stored in the system, are the property of Council.

Email is a business tool. Staff must make sure that all email messages are brief, concise andbusiness related and are kept in the system only as long as required.

Email messages kept as Council records are accessible to the public under Freedom ofInformation and Privacy legislation.

Email systems should not be assumed to be secure. Staff must be aware of the potentialrisks involved in sending confidential or sensitive information by email.

Procedures for use of emailEmail should be treated with the same significance as the signed letter.

Email must be accessed at least once a day by each employee with access to a networkedpersonal computer. Any unwanted email should be deleted.


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Staff can maintain their own email address book.

Personal or private information such as personal notes or invitations, staff appraisals or jobapplications should not be included in an email message because it could be read by, ormisdirected to, unauthorised persons. Messages may also continue to exist long after thesender has deleted them. Deletion eliminates the message or file name from the computerdirectory but the information itself exists in the back up system until it has been overwritten.

An email message sent with a Council document as an attachment, must note details of thesource of the document on the attachment. These details should include the addressee, thesender and the date and time of dispatch and receipt.

Email messages kept as Council records should be saved into Infoxpert. The email systemshould not be used as a filing system (See Records Management Policy).

Emails are admissible as evidence in court, so good judgement should be exercised whenwriting emails.

Messages should be kept polite and should not be written in upper case as this isconsidered as ‘shouting’. Only information that is of value to the receiver should be sent andmessages should not be made High Priority unless they are truly urgent.

Use of Internet/Web SitesIt is inappropriate to:· Intentionally download unauthorised software including games.· Download files containing picture images, live pictures or graphics for personal use.· Download computer games, music files or accessing web radio or TV stations.· Visit inappropriate web sites including chat lines/rooms, on-line gambling, sexually

explicit or pornographic web sites.

All internet access is monitored by end-point protection software which prohibits sites basedon classification and algorithms. Occasionally a legitimate site is unintentionally blocked.Requests to have websites and email addresses added to the ‘white list’ should be directedto [email protected]

For details on the use of social media sites, see Social Media Policy 2130.

Approving Authority Oberon CouncilContact Finance & Community Services DirectorApproval Ordinary Meeting – 21 August 2018:

Item #, Minute #Revision Date August 2020Issue Date to Staff August 2018

Policy 2117 – Corporate Credit Cards

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POLICY 2117

CORPORATE CREDIT CARDS

1. Intent Policy

The intent of this policy is to minimise administration expenses, time inefficiencies, the risk of fraudand misuse by providing Oberon Council staff clear guidelines on corporate credit card issue anduse.

2. Scope of Policy

This policy applies to all Oberon Council staff who are responsible for issuing and/or issued acorporate credit card.

3. Guidelines

Card Application and UseEntitlement to a Corporate Credit Card shall be determined by the General Manager.

The provision of a Council Corporate Credit Card is subject to the approval of the GeneralManager.

Restrictions on useThe Corporate Credit Card cannot be used to obtain cash.

Purchases must only be for the use of Council or Council related businesses and not for private orpersonal use.

The Corporate Credit Card is not to be used for obtaining items which are available from Council’sstores inventory. A lack of planning or organisation by the cardholder is not considered areasonable explanation for not obtaining goods from stores inventory.

4. Responsibilities and Procedures

Corporate Credit Cardholders are responsible for:· Signing the Corporate Credit Card Acknowledgement and Conditions of Use form on

receiving the Corporate Credit Card.· Ensuring the safe keeping of the Corporate Credit Card and immediately reporting to the

Bank and the Finance & Community Services Director if the Corporate Credit Card is lost,stolen, damaged or has suspected fraudulent transactions.

· Taking the appropriate measures to ensure the Corporate Credit Card is not used by anotherperson other than the approved cardholder.

· Exercising professional judgement with regards to Internet purchases in regards to thesecurity of the site.

· Not using the Corporate Credit Card without having read and understood this CorporateCredit Card Policy.

· Ensuring that the Corporate Credit Card is used in accordance with Council’s Delegations,Code of Conduct and other policies, as appropriate.


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· Ensuring that expenditure is contained within available budget limits.· Ensuring that a tax invoice, receipt, docket or similar source of document is obtained for each

transaction and given to the Finance member on the 15th of each month as part of themonthly reconciliation. Otherwise, complete and submit a Statutory Declaration Form whenthe original source document for a transaction is lost, stolen, mislaid, damaged or notreceived.

· Cardholders must submit their monthly statements to the General Manager each month forreview and signature. In the event that the General Manager is not available, the cardholdermust seek the counter signature of the Finance & Community Services Director.

· Corporate Credit Card expenditures must be reconciled with the appropriate Finance staffmember no later than the 15th of each month.

5. Records Management

All documentation associated with the application for a Corporate Credit Card will be maintainedwithin the Council’s records management system.

Receipts for all Corporate Credit Card transactions will be retained by the Finance Department.Council or cardholders must be able to produce receipts on demand for audit purposes. Whereelectronic document management systems are available to record receipts and/or other evidenceof business transactions, this is the preferred medium for storage.

6. Audit

An audit of cardholder purchases will occur randomly by the Finance & Community ServicesDirector, and external auditors.

7. Termination of Corporate Credit Card

A Corporate Credit Card may be terminated for reasons such as:i. Termination of employment;ii. Re-assignment to another position;iii. Failure to comply with the conditions of this Policy; oriv. Any other reasons as determined by the General Manager.

Approving Authority Oberon CouncilContact Finance and Community Services DirectorApproval 17 July 2018 Item , MinuteRevision Date July 2020Issue Date to Staff July 2018


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ATTACHMENT 1

Corporate Card Acknowledgment & Conditions of Use

I acknowledge receipt of an OberonCouncil Corporate Card and acknowledge that I:

i. Am aware of my responsibilities and duties as a Corporate Card Holder under theCorporate Card Policy,

ii. Will only use the Corporate Card within the approved financial limits and for approvedpurposes,

iii. Am aware that transactions made with the corporate credit card are subject toauthorisation and audit procedures,

iv. Will keep the corporate credit card safe from unauthorised use at all times,v. Will return the corporate credit card to the Finance & Community Services Director:

a) on request of the General Managerb) prior to my assuming duties in another position within Council; orc) within a reasonable period of time once it has been deemed by the General Manager

that I no longer require a Corporate Credit Card.vi. Will advise the Finance & Community Services Director and the Commonwealth Bank

Customer Service Department immediately I am aware that the Corporate Credit Card hasnot been lost, mislaid, stolen or misused,

vii. Will not use the Corporate Credit Card for any personal or private use,viii. Will not use the Corporate Credit Card to obtain cash,ix. Will use other means available for purchases when efficient and appropriate to do so rather

than use the Corporate Credit Card, andx. Am aware that if the goods are held as an inventory item that I must order through the

Council Store rather then use the Corporate Credit Card.

Corporate Cardholder’s signature: Date

General Manager’s signature: Date

Policy 2403 – Dealing with Unattended Children in the Library

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POLICY 2403

DEALING WITH UNATTENDEDCHILDREN IN THE LIBRARY

1. Intent of Policy

Oberon Council Library supports young people through the provision of collections andprograms that foster an appreciation of literature and promote the development ofinformation literacy skills.

While this philosophical underpinning enables the library to offer a broad range ofservices to young people, it also serves to define the categories of services offered.These categories are information and reader services, education and literacy support,access to public space and recreation. Notably, the public library brief in regard toservices for young people does not include services provided professionally by otheragencies, for example child care and formal education.

2. Objectives

Oberon Council Library’s services to young people include:· fiction, non-fiction and recreational books· magazines· CDs· computer and internet access· assistance from specialist and general staff in accessing collections and

information· eBooks and e-Resources· DVDs· internet guidance· storytime· space for activities or study

3. Scope of Policy

This policy applies to all users with specific reference to young people using theOberon Library and to Council staff.

4. Principles

Clause 14 of the Library Regulation 2010 (NSW) defines the proper use of a library.It is an offence to use a library for any other purpose.


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Clause 14 Proper use of a libraryA person must not, without the consent of the governing body for the library, useany library for any other purpose than reading, consulting or borrowing the librarymaterial of the library or using any other library service or information service.

Unattended Children

Young people under10 years old must be accompanied and supervised by an adult atall times. Unsupervised children can be at risk in any public place, including publiclibraries. The staff at Oberon Library do not supervise children in the Library and thereis a risk that unattended children may leave the Library at any time, hurt themselves, orbe approached by strangers. In addition, the Library does not have the facilities toattend to children who are sick, injured or hungry.

Children left unattended in a Public Library may be classed as a child or young personat risk or harm under s.23 of the Children and Young Persons (Care and Protection)Act 1998 (NSW) and may be reported as such to the Director-General of theDepartment of Family & Community Services. Parents who leave a child unattended ina Public Library may be exposing their child to potential harm, and may be committingan offence under s.228 of the Children and Young Persons (Care and Protection) Act1998 (NSW).

Young people left alone in the Library can become distressed, bored or disruptive.Young people who disturb other Library users may be removed from the Library underclause 17 of the Library Regulation 2010 (NSW).

Access to restricted materialsOberon Library's general collection may contain publications that have been classified"Unrestricted" and films and computer games that have been classified "G" (General),"PG" (Parental Guidance) or "M" (Mature) in accordance with the Classification(Publications, Films and Computer Games) Act 1995 . This material is available to allpersons, including young persons, without restriction.

Library staff guide and assist young people in finding and accessing resourcesappropriate to particular interests and inquiries. However, some parents/guardians maywish to regulate their children's access to these publications, films or computer games,based on the family’s values or beliefs. In these circumstances, responsibility formonitoring or supervising the child’s use of the general collection remains with theparent/guardian.

Computer useOberon Library observes the Classification (Publications, Films and Computer Games)Enforcement Act 1995 (NSW), which restricts the extent to which certain publications,films and computer games may be made available to the public, with particularrestrictions for young people (under the age of 18).

Parents/guardians of young people are solely responsible for the young person'saccess to and use of the library’s internet facilities, including access to sites, theirsubject matter and content.

Young people's use of the Library's Internet facilities should be authorised byparents/guardians. Provision is made for this authorisation on the library’s juniormembership forms


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Parental responsibility statementIt is the responsibility of parents/guardians to oversee their child’s use of a publiclibrary in relation to:· access to resources · unattended children.

5. Library Staff Responsibilities

All Library staff are responsible for the implementation of this Policy.

Staff should be aware of the duty of care which they may owe in respect of childrenremoved from libraries. More information about the Civil Liability Act 2002 (NSW) isincluded in Appendix 5.

A child left unattended in a public library may be classed as a child or young person atrisk of harm in accordance with s. 23 of the Children and Young Persons (Care andProtection) Act 1998 (NSW). If a staff member has reasonable grounds to suspect thisis the case, he or she may make a report to the Director-General of the Department ofFamily & Community Services under s. 24 of this Act. The Child Wellbeing and ChildProtection – NSW Interagency Guidelines provide information on the application of theChildren and Young Persons (Care and Protection) Act 1998 (NSW), and outline howagencies identify children at risk of harm, as well as the reporting responsibilities ofagencies.

Parents who leave a child unattended in a public library are exposing their child topotential harm, and may themselves be committing an offence under s. 228 of theChildren and Young Persons (Care and Protection) Act 1998 (NSW).

Library staff on duty at the time a child is left unattended have the responsibility forcontacting parents/carers, ambulance and/or police, where necessary. They are alsorequired to report the event to Council’s Workplace Health & Safety/Risk Coordinatorwithin 24 hours, by completing an incident form.

If Library staff become aware that a child is left unsupervised in the library for a longperiod of time, parents/carers should be contacted, informed of library policy, andsupplied with a list of local child care facilities. If the parents/carers ignore this policy orare not able to be contacted, and a staff member has reasonable grounds to suspectthe child is, accordingly, at risk of significant harm in accordance with s. 23 of theChildren and Young Persons (Care and Protection) Act 1998 (NSW), the situation maybe reported to the Director-General of the Department of Community Services.

6. Communication

Council will ensure that Library users are informed of this Policy through displaying thePolicy at the Oberon Library, placing it on Council’s website and approved social mediaand in accordance with other communication methods as outlined in the adoptedCommunication Engagement Strategy.


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7. Complaints

Complaints about the implementation of this Policy will be dealt with initially by theLibrary Manager. Complaints that cannot be resolved at this level will be referred tothe Finance & Community Services Director.

If the customer remains unsatisfied they may write to:The General ManagerOberon CouncilPO Box 84OBERON NSW 2787

Legislative and Policy FrameworkMost relevant legislation· Children and Young Persons (Care and Protection) Act 1998· Civil Liability Act 2002· Classification (Publications, Films and Computer Games) Act 1995 (Cth)· Classification (Publications, Films and Computer Games) Enforcement Act 1995· Library Act 1939· Library Regulation 2010· Privacy and Personal Information Protection Act 1998· Related and/or most relevant State Library and government policies· Library Council of New South Wales, Internet Policy Guidelines for NSW Public

Libraries, 2011· Library Council of New South Wales, Access to Information in New South Wales

Public Libraries Guideline, 2007

Approving Authority Oberon CouncilContact Finance & Community Services DirectorApproval Ordinary Meeting – 21 August 2018:

Item #, Minute #Revision Date August 2020Issue Date to Staff August 2018

Policy 2404 – Independent Living Units

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POLICY 2404

INDEPENDENT LIVING UNITS

1. Intent of Policy

Oberon Council owns and manages units situated in Curtis and Balfour Streets Oberon.These units provide affordable accommodation for eligible senior residents of the OberonLGA to live independently at a subsidised cost.

2. Scope of Policy

To provide affordable Independent Living Units for eligible senior residents of the OberonArea, to support eligible residents maintain independent living for longer. Ensure allocationof units are in accord to priority of need, and ensure the Independent Living Units aremanaged consistently with equality.

3. 1 Definitions

3.1 Affordable Accommodation: low cost rental accommodation.3.2 Independent Living: Physically and mentally capable of living independently

without assistance.3.3 Self Care: Capable of independent living and maintaining their residence without

assistance.3.4 Independent Living Unit Panel: The panel is made up of a Councillor and

representatives from the Oberon Medical Centre, Oberon Pharmacy and acommunity member.

3.5 Priority of Need:a) Accommodation: The current living arrangements of the applicantb) Health: The current state of health and wellbeing of the applicantc) At risk: A person who is at risk of family violence or homelessness.d) Suitability: The suitability of the available unit for the applicant’s needse) Support: The level of support systems currently in place and/or are available

to the applicantf) Waiting List: Length of time the applicant has been on the waiting listg) Financial: The current financial situation of the applicant

3.2 Eligibility

To be eligible for Oberon Council’s Independent Living Units, an applicant must:a) Be a resident of the Oberon Council local government area.b) Be capable of living independently.c) Meet the eligibility criteria set by the Independent Living Unit Panel.d) Meet the medical requirements to maintain independent living.e) Meet the financial requirements.

Policy 2404 – Independent Living Units

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3.3 Allocation of Units

Council’s Independent Living Panel (ILP) meet and allocate units according to priorityof need each time a unit becomes available.

3.4 Legislation and Compliance· Council will comply will all legislative requirements relating to the provision on

Independent Living Units.· Council will conduct annual inspections of each unit. If the unit passes inspection,

the tenant will be issued with a renewed Tenancy Agreement valid for one year.· Council will respond promptly to any complaints with appropriate investigation in

accordance with legislation.· Council will review the Independent Living Units Policy every 2 years to ensure

Management practices are fair, equitable and transparent.· The tenant will provide Council will access for repairs, general building maintenance

and pest management.

4 Related Legislation

NSW Residential Tenancies Act 2010

Approving Authority Oberon CouncilContact Finance & Community Services DirectorApproval Ordinary Meeting 21 August 2018: Item

xx, Minute xxRevision Date July 2020Issue Date to Staff August 2018

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