To provide Waste Management Committee with the Waste Management Division's 2014 Work Plan to complete and/or advance Term of Council Priorities.

Transcription

1 F Region cf Peel w~jtkillf loll qott REPORT Meeting Date; March 6, 2014 Waste Management Committee For nformation DATE: February 11, 2014 REPORT TTLE: FROM: Dan Labrecque, Commissioner of Public Works OBJECTVE To provide Waste Management Committee with the Waste Management Division's 2014 Work Plan to complete and/or advance Term of Council Priorities. REPORT HGHLGHTS The Waste Management Division, with the support of the Waste Management Committee, has made significant progress on its Term of Council Priorities. Key accomplishments are described in this report and in Appendix. This report describes the key activities that the division intends to complete before the end of the term, including the following two that will require Council approval: Adoption of the long term Waste Reduction and Resource Recovery Strategy Adoption of the Strategic nfrastructure Development Plan. DSCUSSON n 2011, as the current Term of Council began, Regional Council adopted a course of action for the Waste Management Division (the Division) that focused largely on strategic planning. Accordingly, it was agreed that staff would focus on: ncreasing reduction and reuse efforts; mproving the effectiveness and efficiency of existing programs; and, Making long-term strategic decisions in key program areas. n each of these focus areas staff sought guidance from the Waste Management Committee {WMC) and Council to ensure that our strategic decisions achieved the right balance between social, environmental and financial considerations. Significant progress has been made on many key objectives during the first three years of the Term. These accomplishments include moving key components of the Division's long term Strategy forward. V /09

2 11 a -2 - February 11, 2014 Key accomplishments include: Council's decision, based on the results of a year long pilot, to adopt bi-weekly, cart-based collection for the Region's curbside collection customers beginning in 2016, which is expected to increase waste diversion by 4 to 6 per cent due to increased recovery of Blue Box and Green Bin materials and result in a $5 - $7 Million reduction in annual collection costs; Council's decision, based on an analysis of best practices, to utilize a three-zone competitive procurement process for the 2016 collection contracts, which is expected to lower costs while maintaining or improving service; Council's decision, following a lengthy and thorough analysis of options, to develop a new Peel-owned Energy from Waste (EFW) facility which will use the Region's garbage as a resource to produce enough electricity to meet the needs of 27,000 homes while reducing greenhouse gas emissions by half compared to the current practice of landfilling Peel's waste; Council's decision to landfill all of Peel's residual waste while the new EFW facility is being developed and to put the estimated $8 Million per year savings in a reserve fund to help offset the capital cost of the new EFW facility; Council's decision to add 3-7 Mixed Rigid Plastics to the Blue Box Recycling program and its commitment to a major renewal of Material Recovery Facility (MRF) infrastructure within the next five years to accommodate future packaging; and The installation of a token system at Peel's Community Recycling Centres (CRCs) to allow customers with free loads to by-pass the outbound weigh scales and exit the site more quickly thereby improving customer service. Progress to date on these and other initiatives is summarized in Appendix. The Division also successfully managed three extraordinary situations: the 2012 Strike, the July 2013 Flood, and the December 2013 ce Storm. As we begin the final year of this Term of Council, it is important that we identify the key activities that need to be completed or advanced before the end of the Term to ensure staff is focused on key priorities. Table 1 below lists key Term of Council activities that remain to be completed in The first two activities in the table are described in more detail immediately following the table. V /11

3 L.lCA February Table 1: Key Activities for 2014 Waste Reduction and Resource Recovery Strategy (the Strategy} j Strategic nfrastructure! Development Plan! '! 1 Peel Energy Recovery Centre 2016 Collection Contracts Cart Rollout Heart Lake CRC The final Waste Reduction and Resource Recovery Strategy will be brought to Council in late spring for adoption. Along with a full suite of policies and programs (as summarized in Appendix 1), the Strategy will recommend updating the Division's 2008 Communication Strategy and developing a Business ntelligence Plan for the Division. A more detailed discussion follows this table. Peel's Blue Box Material Recovery Facility (MRF) and Green Bin Organics Processing Facility are at or nearing capacity. n the case of the MRF, the ever changing types of packaging materials collected in the Blue Box program continue to reduce the efficiency of the MRF. n anticipation of the increased requirements for Blue Box and Green Bin processing capacity post implementation of Bi-weekly collection and in light of the decision to develop the Peel Energy Recovery Centre, staff is conducting a comprehensive review of Peel's waste management infrastructure needs and will present a Strategic nfrastructure Development Plan for approval in late spring. A more detailed discussion follows this table. Staff is currently reviewing the six submissions received in response to the Request for Prequalification (RFQ) that was issued in August Staff will inform Council of the outcome of the RFQ process in late spring. Other major activities planned for this project during 2014 include: ssuing the Request for Proposals; Continuing to pursue a Power Purchase Agreement with the Province; Publishing the Notice of Commencement to officially begin the Environmental Assessment Screening Process; and, Proceeding with studies and consultation in accordance with the Screening Process. Staff is working on tender documents for the 2016 Collection Contracts. The Request for Tender (RFT) is expected to be released in February or March 2014, and awarded in mid-2014, with the new contracts coming into effect on January 1, Staff is working on tender documents for the supply and delivery of carts. The RFT is expected to be released in February or March 2014, and awarded in mid-2014, with cart delivery taking place in late n 2013, Council approved a communications framework for the cart roll-out. Details on how this roll-out will be communicated to residents will be brought to Council in As indicated in Appendix, Council adopted the use of a competitive procurement process to secure an operator for the Heart Lake CRC. Staff is using a two-step procurement process where vendors who are prequalified through a RFQ process will be invited to respond to a competitive RFT. The RFT is expected to be issued in late February or early March 2014, and awarded in mid V-Q1-Q /11

4 Li<A February 11, 2014 Council has already provided direction to staff on four of the activities listed in Table 1. Council direction is still required on the following key initiatives before the end of the current Term: Adoption of the Waste Reduction and Resource Recovery Strategy including: Overarching Communication Strategy; and Business ntelligence Plan; and Adoption of the Strategic nfrastructure Development Plan. These two activities are described in more detail below. Waste Reduction and Resource Recovery Strategy Staff is finalizing an update to Peel's long-term waste management strategy that was first developed in 1997, and last updated in The update will highlight the Region's accomplishments since 1997, and outline what Peel plans to do over the next 20 years to meet its objective of reducing the negative impact of waste on the environment. As part of the update, the name of the Strategy is being changed to "Waste Reduction and Resource Recovery Strategy" to reflect the importance of conserving and recovering resources. The updated Strategy includes the following vision, mission and key objectives and is based on a 4Rs Waste Management Hierarchy. Vision: A world without waste. Most favoured option Mission: To provide reliable, cost-effective, customer-focused services and programs that minimize waste generation and maximize resource recovery Reduce lowering the mount of Wlste produced Key Objectives: To design and deliver waste management services that meet the needs of the customer in a costeffective manner; and, To reduce the negative impact of waste on the environment. 4Rs Waste Management Hierarchy: Peel has adopted a 4R's Hierarchy as shown in the adjacent image. retovering energy fromwute safe dispo$11 of w1ste to landfill least favoured option Balanced Approach: With each decision we need to find the right balance between social, environmental and financial considerations. We will do this by assessing the situation, getting input from a range of stakeholders and reflecting on what's best for our residents. The adjacent image is used to help convey our balanced approach. V..()Hl /11

5 t-q February 11, 2014 Through much of 2010 and 2011, we reviewed components of the Strategy with the Waste Management Committee and Council, and received positive feedback and support for the proposed approach. Regional Staff had originally planned to present the revised Strategy to Council for approval in 2011; however the needs of individual projects within the Strategy required that we shift our focus from finalizing the Strategy document to meeting key project milestones and timelines. Staff is once again focused on writing the Strategy document, which will be presented to Council in late spring for adoption. The Strategy will recommend that staff update the 2008 Waste Management Communication Strategy to ensure it supports the goals and objectives of the Division by fostering an increased awareness of the importance of resource conservation and recovery and an increased desire to participate in the Region's 3Rs programs. Along with educating residents about ways that we as a community can reduce, reuse, recycle and recover resources instead of landfilling our waste, the Communication Strategy will also employ social marketing tactics focused specifically on creating positive behaviour change. Two hallmarks of good governance are openness and transparency. The Strategy will therefore recommend that staff develop a Business ntelligence Plan that will identify and use key indicators to improve the information with which management decisions are made and with which we can track and measure the Division's performance. This work will include development of a public report card for the Division that scores the performance of our programs and services. Staff is developing metrics that reflect the key components of our mission and objectives: reliability, customer service, cost-effectiveness, resource conservation and resource recovery. Strategic nfrastructure Development Plan Nearing their eighth year of operation, Peel ntegrated Waste Management Facility's (PWMF's) Organics Processing and Material Recovery Facility are at or nearing capacity. This, combined with the upcoming program changes, including the move to bi-weekly collection and the development of the Peel Energy Recovery Centre have made it necessary to look closely at our infrastructure to ensure it will be capable of satisfying the Region's future waste management needs. The importance of this review cannot be understated; in order to provide reliable, costeffective services, we need access to reliable, cost-effective infrastructure. Staff is therefore carefully reviewing infrastructure options for material recovery, organics processing and waste transfer taking into account the planned development of the Peel Energy Recovery Centre at PWMF. This includes looking at both public and private options as well as various technologies. i) Material Recovery Upgrades to the Material Recovery Facility (MRF) are planned for early 2014 to make it possible to recycle 3 to 7 rigid plastics. Even with these planned upgrades, the existing MRF may not be able to handle the type and quantities of packaging we will see in the coming years. Council has therefore included money in the Capital Plan for a major MRF renewal within the next five years. n light of the ever accelerating rate of change in packaging materials, and the proposed changes to the province's Extended Producer Responsibility (EPR) laws, we need to look not only at what recycling infrastructure is needed but also at whether or not Peel should own the infrastructure. Staff is therefore looking at a range of options including building a new Peel-owned MRF or securing capacity at privately-owned MRFs. V-{) /11

6 tfcl February 11, 2014 ii) Organics Processing The Region's existing Organics processing facilities are at capacity. Staff is conducting a review of organic processing options, including the possible use of anaerobic digestion, to determine how best to manage the significant increase in Green Bin organics that will follow the implementation bi-weekly collection. As with the MRF, staff will look at a range of composting and anaerobic digestion options utilizing Peel-owned or privately-owned facilities. iii) Transfer Capacity Having access to a reliable drop off point is crucial to the effective and efficient operation of the waste collection system. t is important to have access to transfer capacity in case the recycling facility, organics facility, or energy-from-waste facility are ever unable to process waste due to planned or unplanned shutdowns. Staff is therefore considering options to secure waste transfer capacity at Peel-owned or privately-owned transfer facilities. iv) Peel ntegrated Waste Management Facility (PWMF) The infrastructure plan will also consider that a portion of the PWMF has been identified as the preferred site for the Peel Energy Recovery Centre (PERC). The infrastructure plan will recommend what infrastructure should be co-located, with the PERC, at the PWMF. t will also recommend interim measures to ensure service continuity during implementation of the various infrastructure components. Staff is planning to bring the Strategic nfrastructure Development Plan to Council for approval in late spring. The Plan will recommend infrastructure to support our vision, mission and objectives, while achieving an appropriate balance between cost, reliability, risk and environmental performance. FNANCAL MPLCATONS There are no new financial implications of adopting this Waste Management Division 2014 Work Plan. The specific financial implications of each of the remaining priorities within this work plan will be outlined when these activities are reported to Council for adoption. CONCLUSON The Waste Management Division, with the support of Waste Management Committee and Council has made significant progress on our Term of Council Priorities. This report describes the Divisions 2014 work plan to complete its Term of Council Priorities. V /11

7 4() February 11, 2014 Dan Labrecque Commissioner of Public Works Approved for Submission: D. Szwarc, Chief Administrative Officer ~ 1:\ V For further information regarding this report, please contact Norman Lee at extension 4703 or '"" via at norman.lee@peelregion.ca c. Legislative Services V /11

8 - 1 - tja.. ~ February 11, 2014 APPENDX Appendix 1: Key Accomplishments This table outlines key activities the Waste Management Division set out to achieve during the Term of Council and identifies key achievements, and progress towards their attainment. c.-activity Waste Reduction and Resource Recovery Strategy (the Strategy) Formerly referred to as the Long Term Waste Management Plan Vision, Mission, Principles & Objectives Progre5s to oate Reviewed components of the Strategy with the Waste Management Committee (WMC) between March and November Briefed Council on components of the Strategy in November The final Strategy will be presented to Council in late Spring for approval. Discussed preliminary ideas with WMC in April 2011, and included draft wording in the November 2011, Council briefing. Everything the Waste Management Division does is captured by the following two objectives, which will be included in the final Strategy: Design and deliver waste management services that meet the needs of the customer in a cost-effective manner; and, Reduce the negative impact of waste on the environment. The proposed vision, mission, principles and objectives will be included in the final Strategy. Waste Reduction Strategy Discussed preliminary ideas with WMC between March and April 2011, and included a highlight of these discussions in the November 2011, Council briefing. The Waste Reduction Strategy will include: ncreasing "Reduce" messaging in communications and education products such as the waste management website and the Waste Guide; Working with the packaging and retail sector to reduce/optimize packaging and advocating for better Extended Producer Responsibility (EPR) legislation; Working with the packaging and food industry to reduce food waste; and, Working with stakeholders to develop better metrics to measure reduction. An overview of this strategy will be included in the final Strategy. Reuse Strategy Discussed preliminary ideas with WMC between March and April 2011, and included a highlight of these discussions in the November 2011, Council briefing. V-<l1-Q /11

9 APPENDX February 11,2014 The Reuse Strategy will include: ncreasing "Reuse" messaging in communications and education products such as the waste management's website and the Waste Guide; and, Working with reuse sector to increase awareness and use of on-line and in-store re-use opportunities; and Working with stakeholders to develop better metrics to measure reuse. An overview of this strategy will be included in the final Strategy. Curbside Policies Discussed preliminary ideas to increase participation in curbside programs with WMC between March and November 2011, and included draft wording in the November 2011, Council briefing. Key activities and milestones to date include: Conducted a year-long Bi-weekly, Cart-based Collection Pilot from April 2012 to April 2013, with almost 6000 households in Peel; Adopted Biweekly, Cart-based Collection in April 2013 (effective Jan. 2016); Adopted the Addition of 3-7 Mixed Rigid Plastics in the Blue Box in June (effective Sept. 2013); Adopted Three-Zone Competitive Procurement Process for 2016 collection contracts in June 2013 (effective Jan. 2016); Adopted the Elimination of White Goods Collection in September 2013 (effective July 2016). (Please note, white goods will still be accepted free of charge at Community Recycling Centres (CRCs)); Adopted Extension of the Yard Waste Collection Season in September 2013 (effective 2016 collection season); and Adopted mplementation Plan for Cart-based Garbage and Recycling Collection in November 2013 Multi-Res Policies Discussed preliminary ideas to increase multi-res diversion with WMC between March and November 2011 and included a highlight of these discussions in the November 2011 Council briefing. Key activities and milestones to date include: Adopted the use of Radio Frequency dentification (RFD) tags and development of a sample Multi-Res Report Card in March 2013 to track and report diversion at multi-res buildings. 20 building, year-long pilot to begin in Spring 2014; Multi-Res Report Card to be developed during pilot; and Region-wide implementation to begin in 2015

10 APPENDX February 11, 2014 j Community Recycling Centres (CRCs) Policies Discussed preliminary ideas to reduce wait times and encourage recycling at CRCs with WMC between March and November 2011, and included a highlight of these discussions in the November 2011, Council briefing. Key activities and milestones to date include: Adopted Revised Tip Fee Schedule in November 2011, and approved through the 2012 Budget (effective Jan. 2012): ncreased fees for waste disposal to match neighboring municipalities; and Waived fees for scrap metal and dedicated loads of recyclable material; nstalled Scale Bypass Lanes in 2011 to allow customers with dedicated loads of recyclable material to leave without having to wait at the outbound scales; mplemented two-month Flat-fee Pilot in April Based on results of the pilot, Council decided to maintain the existing fee structure; mplemented a year-long Extended Hour Pilot beginning in July Results will be reported in 2014; and, Adopted Third Party Operation and Maintenance of the Heart Lake CRC in 2012 Budget. Agencies, Boards, Commissions and Departments (ABCD) Plan (leading by example) Discussed preliminary ideas and the importance of "leading by example" with WMC between March and May 2011, and included a highlight of these discussions in the November 2011, Council briefing. Updated WMC in November 2013, reporting that ABCD waste diversion plans are being developed, as discussed, and that WMC will be provided with an annual summary in each of the next five years (as the plans are implemented). The ABCD Plan will be included in the final Strategy. Long Term Disposal Solution (Peel Energy Recovery Centre) Staff assessed all available waste disposal technologies between 2010 and 2011 and in November 2011 Council adopted a staff recommendation to utilize Established Thermal Conversion Technology. Between November 2011 and June 2013, staff assessed various delivery options, including utilization of P3 Canada funding and, in June 2013, Council approved the final business case and directed staff to issue a Request for Prequalification (RFQ) followed by a Request for Proposals (RFP) for a ,000 tonne per year facility utilizing a design, build, operate and maintain (DBOM) contract structure. Since June 2013, staff has been working diligently on the procurement (RFQ and RFP), the power purchase agreement, environmental approvals and a communications plan for the Project.

11 APPENDX February 11, 2014 ~-- \\ The RFQ was issued in August 2013 and closed in December 2013, with six submissions received. Staff is currently reviewing the submissions. Heart Lake Community The Heart Lake CRC is currently under construction and is expected to Recycling Centre (CRC) be operation by mid-to-late As part of the 2012 Budget approval and in keeping with Peel's desire to ensure the effectiveness and efficiency of its programs, Council adopted the use of a competitive procurement process to secure a third-party operator for the Heart Lake CRC. Having a third party operator will give us perspective to help us ensure CRC operations are cost effective. Measurement and reporting of key customer service metrics at all CRCs will ensure that residents receive reliable, customer-focused service regardless of which CRC they visit. A Request for Prequalification (RFQ) was issued in January 2014, to prequalify vendors who will be invited to a competitive Request for Tender (RFT}, which is expected to be issued in February/March Strategic nfrastructure Discussed preliminary need to upgrade the Region's waste Development Plan management infrastructure with WMC in March Discussed need to upgrade Material Recovery Facility (MRF) with WMC in May and November 2011, to accommodate the significant shift in consumer packaging. Discussed need to expand Organics Processing Capacity with WMC in May 2011 and as part of the bi-weekly pilot discussions to accommodate the increase in Green Bin material that will come with biweekly collection. ndicated that the review will include the possible use of anaerobic digestion technology to produce biogas. Discussed the fact that existing Peellntegrated Waste Management Facility's (PWMF) Waste Transfer Station would be displaced by the new energy-from-waste facility as part of the Peel Energy Recovery Centre discussions. Staff is currently undertaking a comprehensive review of options for these three key pieces of strategic infrastructure and will report back in late spring or early summer with recommendations. The report will recommend which facilities should be owned by Peel and which should be owned by third-party service providers. t will also recommend which facilities should be co-located at PWMF with the Peel Energy Recovery Center and which should be located elsewhere. Diversion Target Discussed preliminary ideas with WMC in March 2011, and included a highlight of these discussions in the November 2011, Council briefing. ndicated that policies and programs under consideration would result in an overall diversion rate of 85 percent, with 60 per cent coming from 3R initiatives (Reduce, Reuse and Recycle} and 25 per cent from Recovery (the 4 1 h R). Proposed diversion targets will be included in the final Strategy.

12 APPENDX February 11, 2014 The final Strategy will also recommend working with others in the waste sector to develop a measurement system that accounts for the benefits of aii4rs (as the current system only measures the 3rd R, Recycling). Communication Strategy Discussed preliminary ideas to increase awareness and resident participation in programs and services with WMC between March and November 2011 and included a highlight of these discussions in the November 2011 Council briefing. An overarching Waste Management Communications Strategy will be developed to provide a framework for all communications, education and outreach activities for the Division. The key objectives of the Communications Strategy will be to: ncrease awareness of the importance of conserving and recovering resources; ncrease desire of residents to change their behaviour (where needed}; ncrease resident knowledge about Peel's waste management programs and services; and, ncrease resident participation in the Region's 3R's programs and services. The communication strategy's objectives will be complemented and supported by the Waste Education Framework (which focuses on the education of Peel's students) and by project specific Communications Plans developed for large-scale projects such as the Peel Energy Recovery Centre and Bi-Weekly, Cart-based Collection. Key activities and milestones to date include: Adopted the Waste Education Framework for Peel's students in June An overview of the Communication Strategy will be included in the final Strategy. Business ntelligence Plan Staff is working to identify key performance indicators for the Division which could be measured and reported in a Public Report Card. This work is part of a Business ntelligence Plan that will be recommended in the final Strategy. Among other things, curbside collection data will be automated through the use of Radio Frequency dentification (RFD) tags in carts and RFD readers on collection trucks - RFD technology along with GPS AVL technology will be used to modernize how we collect data, manage assets and manage contractors - RFD tag in carts will include cart number, cart size, waste stream and address

13 APPENDX February 11, 2014 ~q- l'3-6- RFD reader on trucks will record each lift Collected data wilt be used to: Verify collection contractor performance Monitor resident participation rates and trends (on an aggregated basis) Help By-law staff resolve complaints Data will be collected, stored and used in accordance with applicable privacy legislation and good Business and T practices