Beyond the Edge: Australia's First National Peri-urban Conference La Trobe University October 2013

1. Australian Centre for Sustainable Business
and Development
Carbon Management by Peri-urban Cities in Queensland:
Challenges in transitioning to a low carbon future
Heather Zeppel
Beyond the Edge: Australia’s First Peri-urban Conference
La Trobe University, Melbourne
1-2 October 2013

2. Queensland Local Government
• 73 Qld Local Councils: 7 City, 30 Regional, 24 Shire, & 12 Ab. Shire Councils
• 5 of 10 largest LGA in SEQ, population to double by 2030 (peri-urban)
Brisbane (1), Gold Coast (2), Moreton Bay (3), Sunshine Coast (4), Logan (6th)
• Qld population grew by 23% or 845,200 people (2001-2011). Coastal growth
in Gold Coast, Sunshine Coast, Wide Bay, Cairns, Townsville (18th), & Mackay
• National Growth Areas Alliance (25 councils): Ipswich, Logan, Moreton Bay
• 191,000 workers in SEQ region commute daily to Brisbane (RDA-Qld)
• Highest carbon emissions per capita & total waste generated is in Qld
• 20 Qld Councils & 7 prior Shires in Cities for Climate Protection program
*CCP cities set GHG emission reduction goals (corporate, community) to 2010
e.g. 20%-25% reduction on (1996-2001) levels by 2010 (voluntary, non-binding)
*Cairns Regional Council: 50% reduction on 2007/08 levels by 2020
Can Queensland peri-urban cities transition to a lower carbon future?

3. Urban, Peri-urban & Regional Areas

4. Carbon Compliance and Liability for City Councils
•
•
•
•
Clean Energy Act 2011
Carbon Price Mechanism (‘tax’) of $23 per tCO2-e July 2012 ($24.15c - 2013)
Liable entities report GHG emissions over threshold of 25,000tCO2-e
Carbon tax liability on landfill emissions begins from 1 July 2013
Carbon credits (ACCUs) from landfill gas flaring/electricity/waste diversion
* Increased cost of electricity, water, fuel, transport, & raw materials
* Brisbane City Council – est. carbon tax of $65 million over next 4 years
* Gold Coast City Council – est.$1.6M electricity & $1.1M landfill costs
Clean Energy Regulator - 40 local councils are liable entities for carbon ‘tax’
• 10 Qld Councils are liable entities for landfill emissions (urban/peri-urban):
City Councils (4): Brisbane, Gold Coast, Logan, Townsville
Regional Councils (6): Gladstone, Mackay, Moreton Bay, Rockhampton,
Sunshine Coast, Toowoomba

5. Climate Change Mitigation by Qld Councils
“Mitigation involves taking actions to reduce greenhouse gas emissions being
emitted to minimise the impact from climate change.” (LGAQ, 2009)
Mitigating Climate Change: An Introductory Guide for Queensland Local Government
• Climate change & carbon management programs – voluntary, regulatory
• Council carbon exposure, managing GHG emission sources:
Solid waste and landfills
Wastewater treatment plants
Fleet
Building air conditioning (refrigerants)
Natural gas use
Electricity use
Corporate travel
Purchasing
Offsets
• Carbon risks & opportunities for councils – carbon price impacts

6. Climate Change Mitigation Survey of Qld Councils
•
•
•
•
Commissioned by Local Government Infrastructure Services (LGIS)
Survey conducted January to May 2012
Survey sent to all 73 Qld local Councils (email, post, phone calls)
5 key sections: Your Council; Climate Change; Mitigation; Offsetting; Carbon Price
List of 64 carbon mitigation actions (i.e. energy, water, waste, behaviour change, offsetting)
•
Survey completed by 32 Qld Councils (51% response, excl. Aboriginal SC):
 5 City Councils (CC)
(Ipswich, Logan, Moreton Bay, Redland, Townsville)
18 Regional Councils (RC) (Gold Coast, Sunshine Coast, Cairns, Toowoomba,
Mackay, Gladstone & 12 others)
 9 Shire Councils (SC)
(3 coastal, 6 inland)
•
Survey respondents were environmental/sustainability staff, & others
 Climate change/carbon, environment, sustainability, waste, NRM = 25
 CEO/corporate services = 5
 Engineering/building surveyor = 2

7. Council Responsibility for Climate Change Issues
0
2
4
6
8
10
12
14
16
18
20
Planning & Environment/Planning & Sustainability (n=19)
Corporate Services/Governance/Finance & Business (n=9)
General Manager/CEO (n=10)
Environmental Services/Water & Waste (n=8)
Mayor and elected councillors (n=5)
Policy and Planning/Planning & Development
/Regional Strategy & Planning (n=5)
Infrastructure Services/Engineering, Construction
& Maintenance Services (n=5)
Other (n=5)
City
Regional
Shire
Aboriginal Shire
Sustainability Unit /Sustainability Department (n=4)
Environment Team/Assets & Environment
/Open Space & Environment (n=3)
Community Development/Services (n=2)
Other: Infrastructure Manager (CC), Fleet and Hydrology Managers (RC), Engineer (SC), Hydraulics &
Hydrology (RC), Spread across organisation: Waste, Fleet, Flood & Waterways (RC); No one delegated (4)

8. Council Funding of Climate Change Initiatives
Funding of climate initiatives - total
Council operating budget
3
2
State/Fed Govt Grants
17
10
Council levy/action or revolving
fund
No council funding for climate
change
Private sector partnerships
8
9
Other
Other: (RC) ‘Strategic projects’ ; ‘business sponsorship to offset events, NGOs implement program’;
‘low on budget priority’
Private sector partnership: (CC) Ergon Energy (Townsville) ; Energy Conservation Communities (Redland)

9. Climate Change Responses by Councils
•
CC is an Important issue (21 Councils)
•
CC will Impact on Council operations (22 Councils)
•
A little prepared (16), fairly prepared (10), not prepared (1), very prepared (1)
•
Statutory obligations (13); Additional climate initiatives (13); Proactive (6)
•
Climate change actions included in a corporate plan (16)
•
Do NOT consider carbon mitigation guidelines in planning decisions (23)
3 councils do (renewable energy): Sunshine Coast, Townsville, 1 inland SC
•
Climate change/carbon mitigation actions mainly included in:
waste management plan (20)
water management plan (16)
environment plan (11)
climate change plan (11) – coastal/larger inland councils (>30,000 population)

10. Council Climate Change Plans – Areas Covered
____________________________________________________
Climate
ASC SC
RC
CC
Total
Change Areas
_______________________________________________________________________________________________________________________________
Waste Reduction
Community Education
Energy Efficiency
Water Conservation
Sustainable Living
Sustainable Transport
Other
Sustainable Business
Renewable Energy
Clean Energy Business
1
1
0
1
1
0
0
0
0
0
2
1
3
2
0
1
0
0
0
0
8
8
6
6
6
5
6
3
3
2
4
5
5
3
4
4
3
5
5
3
15
15
14
12
11
10
9
8
8
5
_____________________________________________________________________________________________________________________________

11. Carbon Mitigation Actions by Councils
•
433 carbon actions implemented by 30 Councils (average = 14.4)
City Councils
(32.4)
Regional Councils
(12.8) (*urban/peri-urban areas)
Shire Councils
(4)
•
Main carbon mitigation actions:





•
energy
water
waste
behaviour change
offset actions
(55%)
(17%)
(13%)
(13%)
(2.5%)
Top 20 carbon mitigation actions:
 smaller-scale energy efficiency measures + solar PV power



waste management
water conservation
behaviour change programs (information, staff training)

12. Waste Efficiency Actions by Councils
________________________________________________________________________________________________________________________________________________
Waste efficiency actions
Number
________________________________________________________________________________________________________________________________________________
Practise recycling and minimise amount of solid waste (2nd)
Implemented active waste reduction measures (5th)
Encourage self-composting of waste by residents/businesses (6th)
Implemented any other waste initiatives
Capture methane gas from Council landfills to generate power (EE)
Use composting to treat wastes
Use anaerobic digestion to treat wastes
Use anaerobic digestion of sludge in WWTP for biogas
Facilitate sewage/water mining by industry/developers
17
13
11
7
6
4
2
2
1
_____________________________________________________________________________________________________________________
Range: 3-5 waste actions (5 CC); Range: 1-5 waste actions (13 RC); Range: 1-3 waste actions (3 SC)
7 Councils reported being over landfill emissions liability threshold of 25,000tCO2-e (CER - 10 liable):
Gold Coast, Logan, Townsville, Mackay, Moreton Bay, Sunshine Coast, Toowoomba

13. Behaviour Change Actions by Councils
________________________________________________________________________________________________________________________________________________
Behaviour change actions
Number
_________________________________________________________________________________________________________________________________________________
Share information with neighbouring Councils on emissions reduction (6th) 11
Provide information to residents on reducing their emissions (7th)
10
Train Council staff or volunteers on your emissions reduction actions (9th) 8
Provide information to businesses on reducing their emissions
7
Market the emissions reduction initiatives of your Council
6
Include emissions reduction targets in Council corporate plans
5
*Choose suppliers taking actions to reduce their emissions
4
Provide community rebates for energy/water/waste efficiency products
4
Total: 55
__________________________________________________________________________________________________________________________________________________
*Logan CC, Townsville CC, Mackay RC & Toowoomba RC had a green purchasing program
Five City Councils had 1 to 7 behaviour change actions listed (average = 4.8 actions)
Nine Regional Councils had 1 to 5 behaviour change actions listed
Banana Shire Council listed 4 behaviour change actions

14. Council Motives to Reduce Carbon Emissions
________________________________________________________________________________________________________________________________________
Reason to Reduce Carbon Emissions
Number
Rank
________________________________________________________________________________________________________________________________________
Major reasons to reduce emissions (> 5 responses)
Cost savings
Environmental regulations (eg Waste Management Strategy)
Council climate change strategy/action plan
Council resolutions on climate change/energy efficiency
Demonstrate climate leadership to local businesses/residents
24
12
11
9
15
1.8
2.2
2.4
2.6
3.0
4
3
3
4
3
4
3
5
1
2.6
2.6
3.0
3.2
3.3
3.5
4.3
4.7
3.0
Minor reasons to reduce emissions (< 5 responses)
Certification (eg CCP) or permit requirement
Business reporting legal requirement (eg NGERS)
Queensland renewable energy plan
Attract low-carbon industry investment
Other (ie SEQ Regional Plan, drought, reduce climate risk)
Preparation for energy trading schemes/carbon legislation
Qld government climate change strategy/Q2 carbon targets
Differentiate your Council as a ‘climate friendly’ region
Premier’s Statement on carbon emissions
________________________________________________________________________________________________________________________________________

15. Managing Carbon Emissions at Councils
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Assess carbon emissions already (13 Councils), assess emissions next 12 months (5 )
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Council systems to calculate GHG emissions: NGERS (10), Excel spread sheets (7)
Consultants (3) e.g. LGIS, Planet Footprint, Sustainable Corporate Solutions
•
•
•
Low priority/not a priority to reduce carbon emissions (18 councils)
Emissions under NGERS threshold of 25,000tCO2-e (19 Councils)
Do not assess/know most cost-effective emissions reduction actions (17 councils)
City Councils: ROI (<10 years), MACC, lowest initial cost
Regional (City) Councils: ROI (<10 yrs), govt grants, lowest initial cost, MACC, not sure
Green Power
• 3 Councils purchased Green Power: Redland - 5%, Townsville, Tablelands
(Brisbane City Council purchases 100% Green Power)
• Logan City Council - ‘initiated a regional Green Power purchasing concept,
including Queensland renewable energy station’

16. Council Carbon Emissions
________________________________________________________________________________________________________________
Emissions Source
Number
% Total Council Emissions
(Response Range)
Responses
Average
Emissions
________________________________________________________________________________________________________________
Landfill
(9)
Energy
(7)
Vehicle fleet (10)
WWTP(s)
(6)
Council office (7)
Water storage (3)
Street lighting (8)
Other facilities (4)
24 - 86%
10 - 68%
3 - 34%
10 - 23%
3 - 37%
11 - 12%
5 - 26%
6 - 9%
5
4
8
3
5
2
6
2
57% (1st)
37%
16%
15%
13.7%
11.5%
9.8%
7.5%
__________________________________________________________________________________________________________________________________________________
12 Councils measured both Scope 1 (fuel, waste) and Scope 2 (energy) emissions
Scope 3 (goods, travel) emissions measured by Gold Coast CC, Redland CC
(& Tablelands RC)

17. Council Investment in GHG Emissions Reduction
0
5
Energy efficiency
10
5
Landfill management
20
11
4
Waste management
15
4
3
11
9
25
1
2
3
1
City
Regional
Behaviour change
3
6
1
Shire
Aboriginal Shire
Vehicle fleet
3
Solar power
Other
2
1
6
3
1
1

18. Carbon Mitigation Actions by City Councils
• Townsville City
Solar City, Energy performance contracts, Network demand management
(CBD cooling, EE upgrades-TCC offices/street lights, staff education)
• Logan City: Ammonia chilled AC, EE upgrades-buildings (CEEP, LGEEP)
• Redland City
EE upgrades-buildings, Household energy conservation audits/meters,
Sustainable Homes program, Energy Conservation Communities
•
•
•
•
•
•
Sunshine Coast RC: EE projects-top 10 sites, behaviour change, landfill
Cairns RC: Energy & Emissions System, Carbon Reduction Pathway
Toowoomba RC: solar PV, landfill gas collection/flaring, diesel vehicles
Moreton Bay RC: EE-buildings, organic waste diversion, carbon reserves
Mackay RC: EE, sustainability policy, community education/engagement
Gladstone RC: harvest methane from landfill, eco-efficiency measures

19. Carbon Offsetting by Qld Councils
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7 large Qld councils offsetting emissions (5 CC: 2004-10, 2 RC: 2010/11)
Bought Australian(4)/international (1) carbon credits (e.g. Sunshine Coast RC)
4 councils planned to offset emissions in next 12 months (3 RC, 1 SC)
Carbon emissions offset: vehicle fuel (4), electricity (4), community events (3),
hire vehicles (1), printed material (1), airline travel (1: ad hoc)
• Support offsetting by tree planting or partner with conservation groups (10):
Ecofund Qld, Greenfleet, Greening Aust., Conservation Volunteers Aust.
• Council motives for offsetting:
Concern about climate change impacts
2.2
‘Right thing to do’/support conservation
Being a climate friendly business enterprise
Financially support offset projects
2.3
2.8
2.8
• Unsure about offset guidelines in Carbon Credits Act 2011 (17 councils)
• Carbon offsetting not necessary/not a priority (18 councils)

20. Barriers to Councils Implementing Carbon Actions
•
Cost & lack of funding, reliance on Council operating budget or grants
‘lack of funds for any mitigation even though demonstrated return is three to
five years. Things are very tight.’ (Redland CC)
•
Lack of Council policies (on climate change)
•
•
•
•
Indifference/lack of support by senior managers & some councillors
Lack of staff to implement climate action, no climate change delegation
Carbon mitigation actions & responses spread across Council areas
Environmental regulations: ‘restrictive DERM licence conditions on WWTPs ’,
‘uncertain RECs market over past 3 years’
•
Data management: energy & fuel accounts; coordinating data entry;
calculating landfill emissions; managing & sharing emissions data across
Council areas; software to generate reports on emissions
Changing federal government guidelines, GHG reporting standards
•

21. Climate Change Response by Local Councils
• Innovative (Leader) 1 RC
Aim: To fully integrate climate change thinking and action into all Council
operations with a view to becoming a carbon neutral leader
• Progressive (Proactive) 6 councils (1 CC, 3 RC, 1 SC)
Aim: To proactively pursue mitigation and adaptation actions designed to
address the challenges posed by climate change
• Opportunistic (Follower) 13 councils (3 CC, 6 RC, 4 SC)
Aim: To engage in climate change related initiatives beyond statutory
requirements from time to time as resources become available
• Minimalistic (Reactionary) 13 councils (9 RC, 4 SC)
Aim: To comply with statutory obligations as determined under State and
Federal legislation
Wood, M. & McNamara, S. (2011). Philosophy for climate action: Ballina Shire Council. 20th NSW Coastal Conference, 8-11 Nov., 2011.

22. Assessment of Carbon Management by Councils
• Number and range of carbon mitigation actions related to: 1) Type, & size of
Council (>30,000), 2) Coastal location, & 3) Climate change strategy
• Level of carbon price preparation related to:
1) Council Size, 2) Geographic location, & 3) Measuring carbon emissions
Philosophy for Climate Action
• Qld Councils largely ‘Minimalistic’ or ‘Opportunistic’ in climate initiatives
• Six Qld Councils are ‘Progressive’ (proactively pursuing mitigation actions)
Carbon Management Assessment Matrix (LGAQ, 2009)
• Larger metropolitan/coastal Qld councils more prepared & ‘carbon ready’
Stage 3: ‘Consolidating’ or Stage 4: ‘Mainstreaming’ carbon actions
• Smaller, inland rural Qld councils least prepared & not ‘carbon ready’
Stage 1: ‘Latent’ or Stage 2: ‘Emerging’ carbon actions

23. Qld State Budget 2012/13 & Qld Local Government
Qld State Budget: $148.5 million in capital grants for Qld Local Councils
(disaster recovery, public works, roads, flood mitigation, community infrastructure;
$100,000: solar powered CCTV-Townsville)
• LG Sustainable Future Fund, Waste Avoidance & Resource Efficiency Fund cut
Abolition of Qld govt. carbon schemes, ‘responsibility of Australian government’
Qld Govt. – Sustainability: Energy-efficient Homes & Recycling; Clean Energy
LG Low Carbon Transition relies on Federal grants & State planning policy
• Community/LG Energy Efficiency Program – Brisbane, Logan, Cairns, Townsville
Carbon management in peri-urban Qld cities
*Population growth & development (land use planning, jobs, transport, waste)
*Decentralised: Satellite cities - Ipswich, Logan, Moreton Bay, Redlands
Digital Work Hubs-5 SEQ RDAs, solar PV power, recycling, green space)

24. Peri-urban Electricity Generated by Solar PV in 2011
Sydney
Melbourne
Brisbane

25. Low Carbon Urban Transition (Newton & Newman, 2013)

26. References & Resources
Hoff, J. (2010) Local climate protection programs in Australia and New Zealand: Results,
dilemmas and relevance for future actions. CIDEA Project Report No. 1. www.iclei.org
LGAQ. (2009). Mitigating Climate Change: An Introductory Guide for Queensland Local
Government . www.lgaq.asn.au
LGAQ. (2012). Affects of the Carbon Price on Qld Councils: Summary Analysis. LGAQ
Newton, P. & Newman, P. (2013). The geography of solar photovoltaics (PV) and a new low
carbon urban transition theory. Sustainability, 5(6), 2357-2556.
Storey, H. et. al. (2012). Local Action for a Low Carbon Future. ACELG. www.acelg.org.au
Storey, H. & Eckstein, D. (2013). Approaches taken by local councils – transitioning and
transforming communities and local economies towards a low carbon future. LGMA.
Zeppel, H. & James-Overheu (2012). Climate Change Mitigation Survey of Queensland Local
Councils: Final Report. www.usq.edu.au/acsbd/publications/workingpapers
USQ Local Government Research Group: www.usq.edu.au/acsbd/research/localgov
Project : http://www.usq.edu.au/acsbd/projects/councils
Contact: Associate Professor Heather Zeppel (heather.zeppel@usq.edu.au)