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1. INTEGRATED WASTE MANAGEMENT MASTER PLAN (IWMMP)
UPDATE MISE À
JOUR SUR LE PLAN DIRECTEUR DE GESTION INTÉGRÉE DES DÉCHETS |
Committee recommendationS AS
AMENDED
That Council
receive this update on the status of the Integrated Waste Management Master
Plan (IWMMP).
WHEREAS on
June 14, 2006 City of Ottawa Council unanimously approved a motion requesting
greater leadership from the Province of Ontario in supporting the management of
institutional, commercial and industrial (IC&I) waste;
AND
WHEREAS to date negligible progress has been undertaken by the Province to
respond to the need for an integrated approach to managing IC&I waste;
AND
WHEREAS the Province has the authority and regulatory ability to directly
impact diversion rates and lower the reliance on landfills and has not taken
any substantive action directing the ICI sector to achieve the 60% diversion
goal;
THEREFORE
BE IT RESOLVED that City Council urges that the Province of Ontario:
1. Be
requested to increase province-wide enforcement of existing regulations such as
Waste Audits and Waste Reduction Work Plans (O. Reg 102/94) and Industrial,
Commercial and Institutional (ICI) Source Separation Programs (O. Reg. 103/94);
and,
2. Be
requested to establish a Task Force involving appropriate stakeholders,
including municipal representatives from Association of Municipalities of
Ontario, LUMCO, Rural Ontario Municipalities Association and representatives
from ICI sectors, Ontario Waste Management Association, Recycling Council of
Ontario and others to formulate integrated waste management strategies for
areas within the Province of Ontario, and;
And that this motion be circulated to the Premier of Ontario, Minister of the Environment, all Ottawa area M.P.P.s, the Association of Municipalities of Ontario, the Large Urban Mayors’ and Council of Ontario (LUMCO), the Rural Ontario Municipalities Association (ROMA), the Ontario Waste Management Association (OWMA) and the Recycling Council of Ontario (RCO).
RecommandationS modifiÉes du Comité
Que le Conseil
accepte la présente mise à jour sur le statut du Plan directeur de gestion intégrée des déchets.
ATTENDU QUE le 14 juin 2006, le
Conseil municipal d’Ottawa a approuvé à l’unanimité une motion demandant un
plus grand leadership de la part du gouvernement de l’Ontario à l’appui de la
gestion des déchets industriels, commerciaux et institutionnels (ICI);
ATTENDU QUE jusqu’à maintenant, peu
de progrès a été réalisé par la province afin de répondre au besoin d’une
approche intégrée à la gestion des déchets ICI;
ATTENDU QUE la province a l’autorité
et la capacité législative d’agir directement sur les taux de réacheminement et
de réduire notre dépendance aux sites d’enfouissement, mais n’a encore pris
aucune mesure significative pour obliger le secteur ICI à atteindre l’objectif
visant à réacheminer 60 % des déchets;
IL EST RÉSOLU QUE le Conseil
municipal demande avec insistance au gouvernement de l’Ontario :
1.
De renforcer l’application, dans l’ensemble de la province, des
règlements existants tels que le R.O. 102/94, Waste Audits and Waste Reduction Work Plans, et le R.O. 103/94, Industrial, Commercial and Institutional
(ICI) Source Separation Programs;
2.
De mettre en place un groupe d’étude réunissant des intervenants clés, y
compris des représentants municipaux de l’Association des municipalités de
l’Ontario, du Caucus des maires des grandes municipalités de l’Ontario (CMGMO)
et de la Rural Ontario Municipalities Association, ainsi que des représentants
des secteurs ICI, de la Société ontarienne de gestion des déchets, du Conseil
du recyclage de l’Ontario et autres, afin de formuler des stratégies de gestion
intégrée des déchets pour les différentes régions de l’Ontario; et
Que cette motion soit transmise au
premier ministre de l’Ontario, à la ministre de l’Environnement de l’Ontario, à
tous les députés provinciaux de la région d’Ottawa, à l’Association des
municipalités de l’Ontario, au Caucus des maires des grandes municipalités de
l’Ontario (CMGMO), à la Rural Ontario Municipalities Association (ROMA), à la
Société ontarienne de gestion des déchets et au Conseil du recyclage de
l’Ontario;
For the information
of council
The Planning and Environment Committee also approved the following
directive:
That
the briefing package that the City of Ottawa prepares for provincial election
candidates in the Ottawa area to inform them of provincial issues affecting the
City of Ottawa include the issue of IC&I waste and related issues (e.g.
packaging).
Pour la gouverne du Conseil
Le Comité de l’urbanisme
et de l’environnement a également approuvé la directive suivante :
Que le dossier d’information préparé
par la Ville d’Ottawa à l’intention des candidats aux élections provinciales
dans la région d’Ottawa, pour les renseigner sur des questions de portée provinciale
ayant un impact sur la Ville d’Ottawa, comprenne la question des déchets ICI et
des questions connexes (p. ex., emballage).
Documentation
1.
Deputy
City Manager's report Public
Works and Services
dated 15 March 2007 (ACS2007-PWS-UTL-0006).
2. Extract
of Draft Minutes, 27 March 2007.
Report
to / Rapport au:
Planning
and Environment Committee
Comité de l'urbanisme et de
l'environnement
and Council / et au Conseil
152
March 2007 / 152
mars 2007
Submitted
by/Soumis par:
R.G.
Hewitt, Deputy City Manager / Directeur municipal adjoint
Public Works and Services / Service et Travaux publics
Contact Person/Personne resource : Kenneth
J. Brothers, Director/Directeur
Utility Services/Services publics
613-580-2424 x 22609, ken.brothers@ottawa.ca
SUBJECT: INTEGRATED
WASTE MANAGEMENT MASTER PLAN (IWMMP) UPDATE
OBJET: MISE À JOUR SUR LE PLAN DIRECTEUR DE GESTION
INTÉGRÉE DES DÉCHETS
REPORT RECOMMENDATION
That the Planning and
Environment Committee recommend that Council receive this update on the status
of the Integrated Waste Management Master Plan (IWMMP).
RECOMMANDATION DU RAPPORT
Que le Comité de l’urbanisme et de l’environnement
recommande au Conseil d’accepter la présente mise à jour sur le statut du Plan
directeur de gestion intégrée des déchets.
EXECUTIVE SUMMARY
The Integrated Waste Management Master Plan
(IWMMP) is being developed in stages. Early stages have focused
on residential waste because
the City has legislated responsibility for the
management of residential waste. Within
the next two years, all elements of Ottawa’s waste stream will be
examined and an all encompassing approach developed that addresses cradle to
grave management of both residential and IC&I wastes
generated in the city. Currently,
the Plancontains
recommendations regarding the scope and delivery of waste services by the City of Ottawa. The
Plan comprises four documents, completed between 2002 and 2004:
§
Integrated Waste Management Master Plan, Phase I
Report, 2002
§
Phase II Report on Program Design for Short &
Medium Term, 2003
§
Phase II Report on 3Rs and Other Waste Diversion
Issues, 2004
§
Phase
II Report on System Options for the Longer Term, 2004
Key initiatives being pursued in accordance with the Plan are the following:
Enhance
Waste Diversion to Reach 40% Diversion Target
§
Launched “Rethink Garbage” campaign in 2006..
§ Revised the Household Hazardous Waste (HHW) program to include 10 mobile dates across the City.
§
Reduced bag limit to 3
items per/ week
through amendment to the Solid Waste
Management By-law.
§ Introduced “Yellow Bag” program for Non-Residential Establishments (NRE).
§ Commenced IC&I 3R study; phase 1 consultation completed.
§ Received budget approval to increase staff to facilitate increased diversion through direct customer communications and compliance.
Implement
Source
Separated Organics (SSO)
Program to
reach 60% diversion target
§
Operating Compost
Plus+ pilot since 2001.
§
Commissioned co-processing of
organics and leaf & yard waste
pilot at Trail Waste Facility in 2006
to handle Compost
Plus+ pilot materials..
§ Issued RFQ in 2006—six firms pre-qualified. RFP for detailed prices issued in March 2007.
§ Secured $8.25M in FCM funding support, and capital reserves in place.
§
Ensured new solid waste collections contracts
provides for source separated organics
pickup.
§ Continued monitoring of Compost Plus+ pilot and testing of various implementation options.
Secure
Long term
Disposal Capacity
Landfill
Capacity
§ Obtained Certificate of Approval (C of A) amendment for Trail Waste Facility (TWF) expansion of 8.2M cubic metres.
§
Responded to Draft Terms of Reference (ToR) for the
proposed Carp and Navan landfill expansions,
with and continued monitoring and input to
the Environmental Assessment
(EA) process.
Energy
from Waste
§ Completed IWMMP Phase II report on Technologies.
§ Issued a Request for Expressions of Interest (REOI) for Waste Management Technologies to verify the scope of technologies available in market place.
§ Commissioned and now operating Trail Road Gas to Electrical Energy Project (5MW).
§ Entered into a demonstration project partnership with Plasco Energy Group for 85 tonne per day gasification facility.
Major next
steps in implementation are the following:Next
Steps
§ Facilitate implementation of Plasco demonstration plant (Q2-3, 2007).
§ Report to PEC on approach for detailed evaluation of waste disposal methods (Q3, 2007).
§ Report to PEC on the results of the SSO procurement process (Q3, 2007).
§
Report to PEC on status of achieving 40%
and 60% diversion targets (Q3, 2007).
§ Report to PEC on results of IC&I study (Q4, 2007).
§
Undertake Residual Waste Management Plan
(2008).
§
Undertake Landfill Management Plan
(2008).
§
Commence Environmental Assessment for one or more
new waste facilities (2009).
The purpose of this report is to describe more fully the status of the Plan and implementation of these and related waste management initiatives.
RÉSUMÉ
Le plan directeur de la gestion
intégrée des déchets (PDGID) est en voie d’élaboration, en plusieurs
étapes. Les étapes initiales portaient principalement sur les déchets
résidentiels étant donné que la Ville est légalement responsable de la gestion
de ces déchets. D’ici deux ans, on examinera tous les éléments du flux des
déchets d’Ottawa et on élaborera une approche globale pour assurer la gestion
de la totalité du cycle des déchets résidentiels et IC&I de la ville. Le
Plan est actuellement formé de quatre documents, rédigés entre 2002 et 2004,
soit :
§
Integrated
Waste Management Master Plan, Phase I Report, 2002
§
Phase
II Report on Program Design for Short & Medium Term, 2003
§
Phase
II Report on 3Rs and Other Waste Diversion Issues, 2004
§
Phase
II Report on System Options for the Longer Term, 2004
Les principales initiatives prévues
dans le Plan sont les suivantes :
Amélioration
de la réorientation des déchets de façon à atteindre l’objectif de 40 %
§
Lancement
de la campagne « Repensez les déchets », en 2006.
§
Révision
du Programme des déchets ménagers dangereux, de façon à inclure 10 dépôts
annuels mobiles d’une journée à l’échelle de la Ville.
§
Réduction
du nombre maximal de sacs, de façon à les ramener à trois par semaine, grâce à
la modification du Règlement sur les déchets solides.
§
Mise
en œuvre du programme de sacs jaunes pour les établissements non résidentiels
(ENR).
§
Début
de l’étude 3R visant les déchets IC&I; fin de la phase 1 des
consultations.
§
Approbation
du budget pour accroître le nombre d’employés et faciliter la réorientation
accrue des déchets grâce à des communications directes avec les clients et à la
conformité.
Mise
en œuvre du programme des matières organiques séparées, de façon à atteindre
l’objectif de 60 % en matière de réorientation
§
Réalisation
du projet pilote Compost Plus+ depuis 2001.
§
Traitement
conjoint des déchets organiques et des feuilles et résidus de jardinage à la
décharge contrôlée du chemin Trail, en 2006, de façon à pouvoir accepter ces
matières dans le cadre du projet pilote Compost Plus+.
§
Émission
d’une DQ en 2006 – six entreprises se sont préqualifiées. Émission d’une
DP en mars 2007, afin d’obtenir des prix détaillés.
§
Obtention
d’un montant de 8,25 millions de dollars de la part de la FCM et création
de réserves de capital.
§
Adoption
de mesures pour veiller à ce que les nouveaux contrats en matière de collecte
des déchets solides permettent la collecte des matières organiques séparées.
§
Surveillance
continue du projet pilote Compost Plus+ et mise à l’essai des diverses
options en matière de mise en oeuvre.
Capacité
d’élimination à long terme
Capacité
des sites d’enfouissement
§
Modification
du certificat d’autorisation pour la décharge contrôlée du chemin Trail, en vue
d’une expansion de l’ordre de 8,2 millions de mètres cubiques.
§
Réponse
à l’ébauche de cadre de référence pour l’expansion proposée dans le cas des
sites d’enfouissement de Carp et de Navan et surveillance continue et
contribution au processus d’évaluation environnementale.
Utilisation
des déchets comme source d’énergie
§
Rédaction
du rapport de la phase II, sur les technologies.
§
Demande
d’expressions d’intérêt pour les techniques de gestion des déchets, afin de
vérifier l’étendue des technologies qui existent actuellement sur le marché.
§
Début
d’un projet intitulé Trail Road Gas to Electrical Energy Project (5MW).
§
Établissement
d’un partenariat avec Plasco Energy Group, en vue de la réalisation d’un projet
de démonstration d’une installation de gazéification produisant 85 tonnes
par jour.
Principales prochaines
étapes
§
Adoption
de mesures pour faciliter la mise en œuvre de l’usine de démonstration Plasco
(deuxième et troisième trimestres de 2007).
§
Présentation
d’un rapport au CUE en ce qui a trait à l’approche à adopter pour l’évaluation
détaillée des méthodes d’élimination des déchets (troisième trimestre de 2007).
§
Présentation
d’un rapport au CUE en ce qui a trait aux résultats du processus d’acquisition
visant les matière organiques séparées (troisième trimestre de 2007).
§
Présentation
d’un rapport au CUE en ce qui a tait à l’atteinte des objectifs de 40 % et de
60 % en matière de réorientation des déchets (troisième trimestre de
2007).
§
Présentation
d’un rapport au CUE en ce qui a trait aux résultats de l’étude sur les déchets
IC&I (quatrième trimestre de 2007).
§
Exécution
du plan de gestion des déchets résiduels (2008).
§
Exécution
du plan de gestion des sites d’enfouissement (2008).
§
Début
de l’évaluation environnementale pour un ou plusieurs nouveaux sites
d’enfouissement des déchets (2009).
Ce rapport vise à décrire plus longuement où en
est le plan, ainsi que la mise en œuvre de ces initiatives de gestion des
déchets et autres initiatives connexes.
BACKGROUND
Residents,
businesses and institutions in Ottawa
generate approximately 1M
tonnes of waste each year. Waste
generation in the city is
increasing at a greater rate than
population growth,
so the waste
management challenge is growing. For the past several years, Solid Waste
Services (SWS) has been developing an
Ottawa’s
Integrated Waster
Management Master Plan (IWMMP) to
guide short and long term
waste management. To
date the following planning documents have been prepared:comprises four documents, completed between 2002 and 2004 :
§
Integrated Waste Management Master Plan, Phase I
Report, 2002 – contains high-level policy recommendations regarding the
fulla range of waste management issues;
§
Phase II Report on Program Design for Short &
Medium Term, 2003 – identifies options for the collection, processing, and
disposal of residential organics and recyclables;
§
Phase II Report on 3Rs and Other Waste Diversion
Issues, 2004 – contains
recommendations for improving the existing residential diversion program; and
§ Phase II Report on System Options for the Longer Term, 2004 – examines alternative waste processing and disposal technologies.
Many
of the recommendations contained in the above reports have been acted upon,
however, much remains to be done.
The objectives of this report are to:
§ Review the principles and main direction of the Integrated Waste Management Master Plan;
§ Overview the achievements to date;
§ Outline the status of current major solid waste initiatives; and
§ Outline key next steps and action items for the next two years.
Integrated
Waste Management Master Plan – Principles & Direction
Ottawa’s Integrated Waste Management Master Plan and solid waste industry best practices are rooted in the theory of the hierarchy of waste and waste management, as shown in Figure 1.
Figure 1: Hierarchy of Waste & Waste Management
The premise of the model is two fold. First, that waste minimization trumps all else—individuals, businesses, and institutions must examine and rethink their consumer and disposal habits; and, that manufacturers must act as stewards for the waste packaging and other materials that they produce.
Second, that wastes with residual value as containers (e.g. bottles), manufacturing inputs (e.g. aluminum and fibre), or as an organic fertilizer (e.g. food waste), should be removed from the waste stream and processed for use, thereby displacing the need to extract equivalent natural resources from the environment and lessening environmental impacts of human consumption and waste.
In the late
19980’s
Ottawa introduced a blueack
box program, then leaf and yard waste composting, and finally the blue blackox box
two-stream program. In 2001,
Council approved a pilot for the collection and processing of household kitchen
organics: Compost Plus+. In 2002
and 2003, extensive public consultation was undertaken to enable consensus
around preparation of the Integrated Waste Management Master Plan.i The resulting Plan outlines an approach for
improving programs already in place, and the steps required to make progress in
implementing the hierarchy of waste model, namely:
§
Increase diversion within existing programs to
achieve 40%.
§
Implement a citywide SSO program
to achieve 60%.
§
Reduce garbage limits and frequency of pick-up to
achieve the above targets..
§ Examine means for extracting any remaining resources from the waste stream (i.e. from mixed wastes originating from high density residences).
§ Examine means for harnessing the caloric (energy) value contained in the balance of the waste stream.
§ Secure long term capacity for the disposal of residual wastes (that which remains following implementation of any or all of the above processes.)
Document 1 describes in detail the policy recommendations
contained in all four IWMMP documents and summarizes their current
implementation status.
The following is a summary of recent Council
direction on these matters, some of which allow the City to make progress on
several fronts. The Discussion section
of this report speaks to each specific initiative. Attachment 1 describes in detail the policy recommendations
contained in all four IWMMP documents and summarizes their implementation
status.
Enhancing Diversion Programs
§Amend Solid Waste By-law to reduce set-out limit to
3 bags per week.
§Retain 3 personnel to promote compliance with Solid
Waste By-law in the field.
§Undertake
comprehensive education campaign to heighten compliance with blue & black
box programs.
§Undertake
Industrial, Commercial & Institutional (IC&I) waste 3R study and plan.
Source Separated Organics (SSO)
§Draft
the solid waste collection contracts to enable the separate collection of
organics.
§Apply
to the Federation of Canadian Municipalities’ Green Municipal Enabling Fund for
grants and loans to support implementation.
§Solicit
interest from vendors of organics processing and marketing.
§Achieve
60% residential diversion from landfill by end of 2008 through the above and
related promotional and educational measures.
Energy from Waste
§Develop & Implement a Landfill Gas to Energy
Strategy.
§Develop
agreement with Plasco Energy Group to construct a Plasma Waste Conversion
evaluation plant.
§Issue
a Request for Expression of Interest (REOI) to examine technologies for
managing both residential and ICI waste.
Long-term Disposal Capacity
§Secure
expansion of Trail Waste Facility (TWF).
§Secure and retain landfill capacity for disposal of
waste within Ottawa.
§Issue
a Request for Expression of Interest (REOI) to examine technologies for
managing both residential and ICI waste.
Achievements to
Date
Since completion of the IWMMP, staff have undertaken studies and implemented various measures in accordance with direction received from Council. Key achievements to date include the following:
Enhance
Waste Diversion
§
Launched “Rethink Garbage” campaign in 2006, which is material specific.aimed
at achieving the 40% through increasing awareness of all 3Rs: reduce, reuse, rethink…and
only then recycle.
§ Revised the Household Hazardous Waste (HHW) program to include 10 mobile depot dates.
§
Reduced bag limit to 3
items per/ week
effective January 2007.through
amendment to Waste
Management By-law.
§
Received
budget approval to increase staff
to facilitate increased
diversion, customer communications
and compliance.
§ Introduced “Yellow Bag” program for Non-Residential Establishments (NRE).
§ Commenced IC&I 3R study; phase 1 consultation completed.
Implement
SSO Program
§ Ongoing delivery of the Compost Plus+ pilot
§
Commissioned co-processing of
organics and leaf & yard waste
pilot at Trail Waste Facility in 2006
to handle Compost
Plus+ pilot materials.
§
Issued RFQ for SSO in 2006. RFP for detailed prices issued in early March 2007.
§ Secured $8.25M in FCM funding support and capital reserves in place.
§
Ensured current
that collections contracts
allows for source separated organics
program.
§ Continued monitoring of Compost Plus+ pilot and testing of various implementation options.
Secure
Long term Disposal Capacity
Landfill
Capacity
§ Obtained Certificate of Approval amendment for Trail Waste Facility (TWF) expansion of 8.2M cubic metres.
§
Responded to Draft Terms of Reference for the proposed
Carp and Navan landfill expansions,
with and continued monitoring and input to
the Environmental Assessment
(EA) process..
Energy
from Waste
§ Completed IWMMP Phase II report on Technologies.
§ Issued a Request for Expressions of Interest (REOI) for Waste Management Technologies to verify the scope of technologies available in market place.
§ Commissioned and now operating Trail Road Gas to Electrical Energy Project (5MW).
§ Entered into a demonstration project partnership with Plasco Energy Group for 85 tonne per day gasification facility.
Key
results associated with the above work were the following:
§ A reduction in greenhouse gas (GHG) emissions from Trail Waste Facility (TWF) with operation of the Gas to Electrical Project.
§
Ten mobile depots
to allowed residents to properly
dispose of 859 tonnes of household hazardous waste was diverted from landfill in 2006.
§
Diverted 27 tonnes of electronic wastes were diverted from landfill between
the City depot and WM’s depot in 2006ii
§ Diverted 17,690 tonnes of blue box recyclables from landfill in 2006.
§ Diverted 50,249 tonnes of black box recyclables from landfill in 2006.
§ Diverted 35,233 tonnes of leaf and yard waste and kitchen waste from landfill in 2006.
§ Six (6) firms were pre-qualified to submit prices for implementation of the SSO program.
§ RFP for SSO implementation issued.
§
Plasco demonstration project under construction;
commissioning to start,
expected to operate in June 2007.
§ The City has secured an 8.2M tonne expansion at TWF, extending the life of the landfill between 10 and 30 years.iii
§ Confirmed preliminary list of waste management technologies available in the market place.
The following Discussion section provides greater detail regarding the status and results of the City’s more significant projects.
DISCUSSION
Like other
large municipalities across Canada, Ottawa faces the challenge of managing
increasing volumes of waste in an environmentally and fiscally responsible
manner. The City is addressing this
challenge through the studies identified in Figure 2, each of which contributes
to answering the following questions:
Issues Activities
|
§
How
much waste can reasonably be diverted and what are the best means to divert
waste? § How much residual waste will
remain post-diversion? § How much disposal capacity is
required over the long term? |
§
IWMMP
Phase1 and 2 reports
(completed) §
Residential
w §
Rethink
Garbage Campaign §
SSO
Program Implementation §
IC&I
3R Study and adoption of IC&I Waste 3R Strategy. |
|
§
What
are the best means of disposing
of residual wastes? |
§
Phase
2 IWMMP report
(completed) §
Plasco
gasification demonstration project. §
REOI
from technology vendors (completed) §
Review
of Waste Disposal Technologies §
Carp
& Navan EAs |
|
§
How
and where should we secure long term disposal capacity? |
§
Develop
Residual Waste Management Plan §
EA(s)
for new Waste Disposal Facility(ies) |
Figure 2:
Solid Waste Initiatives
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2006 |
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Rethink Garbage Campaign |
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IC&I 3R Strategy |
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SSO Program |
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Review of Waste Technologies |
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Residual Management Plan |
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Landfill Management Plan |
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EA for Waste Facility(ies) |
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Plasco Demonstration Project |
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Navan EA |
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Carp EAiv |
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Design & Construction |
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Implementation |
The followings sections provide an update on the
status of each of these initiatives.
Rethink Garbage Campaign
Ottawa generates almost 330,000 tonnes of residential waste per year. Figure 3 illustrates the contents of the residential waste stream.
Figure
3: Characterization of Ottawa’s
Residential Waste Stream
Source: SWS, 2004 residential waste audit
Provincial
regulationv and best practices dictate that municipalities implement
separate collection of recyclables and leaf and yard material from the
residential waste stream in an effort to divert waste from landfill. At present, Ottawa is obligated by
regulation to remove the following products from residential waste prior to
disposal::
|
§ aluminum food and beverage cans § glass bottles and jars for food and beverages § steel food and beverage cans |
§ newsprint § polyethylene terephthalate bottles for food and beverages § Leaf
& yard material |
§ 2 more items from a list of 12 items, of which Ottawa picks-up boxboard, cardboard, magazines, and telephone directories.
|
Figure 4
illustrates trends in the residential diversion rate. An improvement inThough
the diversion rate improvement
were noticed inoccurred with the amalgamation of solid waste
programs commencing in 1996vi; however,
the diversion rate has effectively plateaued since 2002.
Under
the current collection program,
there is an opportunity to divert
a further 7% of the waste,
and an additional
20% through implementation of an,
indicating a
need to optimize the current diversion programs to increase capture of
materials, and expanded
the scope of materials collectedprogram
(e.g. source separated organics.)
Implementing an successful
organics program and combining it with bi-weeklyvii
residual garbage collection could see the diversion rate as
high asreach the
City’s target of 60%. ,
as the
reduction
in residual collection will drive more recyclables and organics into their
appropriate containers.
Figure
4: Trends in Ottawa Residential Waste
Diversion
The Rethink Garbage campaign was launched in April 2006, and focuses on
increasing resident knowledge of the three R’s as well as the hierarchy of
waste. The program promotes a fourth
R—“Rethink” garbage, to help residents understand their part in waste
management. Communication materials
promote waste reduction through altering purchasing habits, reusing items,
taking advantage of services like the Take it
Back program, and increasing the capture of recyclable
materials in the blue and black boxes.
The 2007 campaign will continue
with: the
release of a video and 3 R’s
curriculum for elementary school children, the endorsement of the Ontario
Deposit-
Rreturn Pprogramviii, continued continued
public education on the three
3R’s and, the SSO program scheduled to roll
out in 2008.
Source Separated Organics Program
Organics constitute over 35% of the residential waste stream. Ottawa implemented a pilot Compost Plus+ program in nine communities in 2001, and established a timeframe of 2008 to rollout the program on a citywide basis. All steps required to enable implementation have been undertaken or are well underway. A detailed update on the status of the SSO project and next steps towards its implementation are being tabled under a separate report to Committee.
Industrial, Commercial & Institutional
(
IC&I) Waste 3R Study and
Strategy
Ottawa’s IC&Industrial, Commercial and Institutional
sectors generate approximately 70% of the waste in the city, and it is
estimated that approximately 80% of that waste is landfilled. The waste composition of IC&I waste
differs from that of household (residential), as Figure 5 illustrates.
Figure
5: Typical Ontario IC&I Waste
Characterization
Source: Ontario Waste Management Association
Recognizing the significant impact of IC&I waste on the city’s landfills, and as recommended in the IWMMP, Council directed that an IC&I Waste 3R Strategy be developed. The purpose of the Strategy is to identify means by which the City can influence, facilitate or direct increased diversion of IC&I waste from landfill. The strategy to be adopted by Council later this year will identify IC&I diversion objectives, which measures the City will pursue to achieve those objectives, the costs and timing for their implementation, and the impact on long term residual waste disposal needs and the projected life of area landfills. Details regarding the scope and workplan for this project were presented under separate cover to the Planning and Environment Committee on March 9, 2007.
Source
Separated Organics Program
Organics constitute over 35% of the entire
residential waste stream. Ottawa
implemented a pilot Compost
Plus+
program in nine communities in 2001, and established a timeframe of 2008 to
rollout the program on a citywide basis.
All steps required to enable implementation have been undertaken or are
well underway. A detailed update on the
status of the SSO project and next steps towards its implementation are being
tabled under separate cover immediately following this IWMMP report on March
27, 2007.
Plasco
Demonstration Project
Construction of the Plasco Trail Road Energy From
Waste facility was initiated in 2006, and is nearing the commissioning stage.
The facility is intended to convert solid waste to combustible
"syngas" through a gasification process, with the syngas being used
to power a series of generators for energy production and sale to Hydro Ottawa.
Waste slag material produced by the gasification
process will
be reused as aggregates for road construction or concrete production. It
is anticipated that the EFW facility will be ready to begin testing on
solid waste in mid 2007. This
pilot scale facility is planned
to
receive up to 85 tonnes per day of waste during the two year testing period,
with the City holding an option for the construction of a 225 tonne per day
facility should pilot testing
prove
successful. More than 90% of the waste to gas plant
is now in place with final integration and electrical work being completed. This plant is expected to produce initial gas in early May,
using a prepared simulated waste feed stock. Gas from regular MSW is expected
to be produced in test quantities in late May. The Jenbacher power plant now
has one of the five engines in place. That engine is expected
to produce electricity from syngas in late May and from syngas made from MSW in
early June. The remaining four engines will
be
installed during May and June. The total
plant
is expected to be operating in start-up mode during June and to increase its
operating time during the summer months. It is expected
that the full
plant
will be operating on a 24 hour 7 day basis before the end of the summer.
Review of Waste Management
Technologies
In
accordance with the IWMMP Phase I report recommending that alternative waste
technologies be examined, the IWMMP Phase II report
was prepared in
2004 entitled Report
on System Options for the Longer Term
was
prepared in 2004. The report contained the results of an
environmental scan of new and emerging technologies that could be considered
for long
term implementation.
Technologies were categorized in the report as physical, biological, thermal
or chemical processes.
In
2006, staff was directed to issue a Request for Expressions of Interest (REOI)
for Waste Management Technologies to ensure that the full range of technologies
had been identified. The REOI closed in
the fFall
of 2006, and the submissions have undergone review. In summary, no new technologies were identified that had not
already been identified in the 2004 report.
A total of 10 submissions were received: five firms proposed waste disposal technologies, and five
proposed technologies to process and reduce residual waste volumes comprising
the following technologies:
|
§ Mass Burn Incineration § Gasification § Biomass Combustion |
§ Solid Recovered Fuel § Aerobic Digestion § Mixed Waste Processing |
§ Fluidized Bed Flash Pyrolysis § Aerobic Composting. |
Referencing the Hierarchy
of Waste & Waste Management,
the City is assessing the additional waste management tools and technologies
suitable for Ottawa. A
report on the results of the REOI is currently being prepared. Staff will be tabling a report at Planning
& Environment Committee in the s
Spring of 2007 that outlines a proposed approach for
evaluating the list of technologies, including a public consultation
process. Referencing
the Hierarchy of Waste & Waste Management, the The review will focus on the
processing of mixed waste, Energy from Waste (EFW) technologies, and waste
disposal technologies, and will be used to:
§ Determine whether each technology has been “proven” to achieve its stated objective to reduce or dispose of mixed wastes and residuals;
§ Assess the size, scope, and success of its implementation elsewhere;
§ Determine the ability of each technology to handle residential as well as various IC&I waste streams; and
§ Develop a short list of technologies that would achieve the City’s objectives without posing a significant risk of failure.
Accordingly,
gasification, such as the method employed by Plasco Energy Group, will
be included in this review. The results of this study will
be a short list of technologies to be approved by Council to undergo detailed
evaluation.
Residual
Management
Plan
Based upon the IC&I
3R Strategy
approved by Council, and the foregoing Review
of Waste Management Technologies,
staff will be in a position to conduct a detailed assessment of the need for residual
disposal capacity, and the alternative methods for meeting that need. Analyses will include the results of the
Plasco Demonstration Project,
which
will be operating during the course of the study. The
Residual Waste Management Plan
adopted by Council will set out one or more approaches for the long-term
disposal of Ottawa’s residual waste and a plan for its implementation. Triple bottom-line (economic, environmental,
and social) costing analysis will be used to help identify the best suite of management
approaches and technologies to manage the City’s waste over the long-term, including both residential and IC&I.
Landfill
Management Plan
Landfill space will continue to be required over
time seen
with gasification or other residual waste processing technologies. A Landfill Management Plan will be developed concurrent to the Residual Management Plan that essentially mirrors the alternatives
considered by the latter. Ultimately,
the City will need to manage its two municipal landfills (Trail and Springhill)
to ensure that they can receive the residual waste resulting from
implementation of Council’s preferred suite of mixed waste and EFW
technologies. The Landfill
Management Plan
would include examination of the need to expand existing facilities, establish
new facilities, renegotiate agreements with private service providers, or
otherwise alter management practices[I1] to meet Council’s directive.
Plasco Demonstration Project
Construction
of the Plasco Trail Road Energy From Waste (EFW) facility was initiated in
2006, and is nearing the commissioning stage.
The facility is intended to convert municipal solid waste (MSW) to
combustible "syngas" through a gasification process, with the syngas
being used to power a series of generators for energy production and sale to
Hydro Ottawa. Waste slag material produced by the gasification process may
be reusable as aggregate for road construction or concrete production during
the pilot.
The pilot scale facility is to receive up to 85 tonnes per day of waste during the two year testing period, with both Plasco and the City holding an option for the construction of a 225 tonne per day facility or greater, if pilot operations prove successful. More than 90% of the EFW facility is now in place with final integration and electrical work on going. At the time of writing, one of five Jenbacher engines was in place and expected to produce electricity from syngas using a simulated waste feedstock in late May; and from syngas made from MSW in early June. The remaining four engines are to be installed during May and June. Plasco expects the facility to be operating on a full-time basis (24 hour, 7 day per week) before the end of the summer of 2007.
EA for Waste Facilities:
(Landfill or processes?)
Based upon the processing and disposal method(s)
approved by Council, staff will commence an Environmental Assessment (EA) for the proposed works. Currently, EAs
often take four or more years to complete depending upon thecomplexity, technology, and the extent of public
consultation required.
Following the EA, the City will be required to
obtain a Certificate of Approval for the detailed design before construction
can begin. This
process can extend for
approximately 3
years or more
before the City will be able to commission a new or expanded waste disposal facility.[i] [I2] Accordingly, it is important that diversion
efforts continue to be enhanced to ensure that the City maintains sufficient
disposal capacity until new residual process capacity is secured.
Carp
& Navan Landfill Expansions
The
City of Ottawa generates approximately 1 million tonnes annually from the
residential and IC&I sector. The landfill material was a residual waste, arising
from
what is not recycled or otherwise diverted through the 3R waste reduction
strategies. The Carp and Navan landfills provide a significant
landfill capacity for IC&I sector, with Carp providing an additional 1/3
landfill capacity for the
residential
sector in Ottawa.
The City of Ottawa’s current
landfill capacity situation will require alternatives
to landfill waste processing technologies before 2011. It
is anticipated that the
timelines required
for
full implementation of alternative technologies for residual waste management will require several years for full implementation. It
is important for
the
City to
proceed
with evaluating and implementing a
revised alternatives
to the landfill management scheme to adequately address the
expected solid waste tonnage generated in the City of Ottawa and implement
appropriate waste
reduction and processing technologies to minimize the residual waste in both
the residential and IC&I sectors. If we assume the existing diversion rates in both
the residential and IC&I sectors, the Trail Road Landfill facility will be
fully utilized in approximately 10 years, assuming no further landfill
expansion occurs in the City. Figure 6, provides a visual snapshot of the
existing capacities of Ottawa landfills, without the implementation of
alternative technologies to process or reduce the current waste stream.
The
City’s current initiatives are intended to provide Council a suite of
strategies and programs to address the long term waste processing and landfill
requirements of the City. It will be
through a combination of recycling, reuse, waste reduction technologies and
residual waste management that the City can achieve a long term, sustainable
waste management strategy.
In
the short-term, the City will require landfill capacity through the utilization
of the existing City landfills until full implementation of alternative
technologies are approved and implemented in the City to address the residual
solid waste material generated in the City.
As
mentioned in this report, staff are actively involved in assessing the
available and emerging technologies in both the residential and IC&I
sectors for solid waste processing and reduction, which will determine the
residual landfill management plan required to meet the City’s needs.
Residual Waste Management Planix
Based upon the IC&I 3R Strategy approved
by Council, and the Review of Waste Management Technologies, staff will
be in a position to conduct a detailed assessment of the need for residual
disposal capacity, and the alternative methods for meeting that need. Analyses will include the results of the
Plasco Demonstration Project, which will be operating during the course
of the study.
The Residual Waste Management Plan adopted
by Council will set out one or more approaches for the short
and long term
disposal of Ottawa’s residual waste and a plan for its implementation. Triple bottom-line (economic, environmental,
and social) costing analysis will be used to help identify the best suite of
management approaches and technologies to manage the City’s residential and
IC&I waste.
Resulting
Waste Management Projects that require Establishment, Change or Expansion of
Waste Facilities
Based
upon the waste processing
and residual disposal
method(s) approved by Council, staff will commence an Environmental Assessment
(EA) for one or more projects and resulting facilities. Currently, public sector waste EAs
take four or more years to complete. The
Provincial Government recently completed consultations
on a draft Waste
Management Project Regulation that
has the potential to significantly
improve approval times. The
draft regulation includes
a project classification system under
which a proposed facility may
be exempt from EA approval, require an Environmental Screening Report,
or require an
individual EA depending upon the size and type of facility
proposed, amongst other factors.x Projects
requiring Environmental Screening or an individual EA would continue to require
extensive public and agency consultation.
Following
EA approval, the City will be required to obtain a Certificate of Approval for
the detailed design before construction can begin. This process would
further delay commissioning
of a new or expanded waste
facility by at least one year, or more depending upon
the specific project. It
is optimistically estimated that
a new technology approved
by Council at the end of 2007
would not be fully commissioned until 2010
or beyond. Accordingly,
it is important that waste diversion efforts continue to be enhanced to ensure
that the City maintains sufficient disposal capacity until such
time as new capacity is secured.
Carp & Navan Landfill EAs and the City’s
Current Landfill Capacity
The
City of Ottawa generates approximately 1 million tonnes of waste annually from
the residential and IC&I sectors.
What is not recycled or otherwise diverted through the 3R waste
reduction strategies is considered residual waste, and is primarily disposed of
at local landfills.xi The Carp and Navan privately owned landfills
provide significant landfill capacity for the IC&I
sector, with Carp providing 30% of the landfill
capacity required by Ottawa’s
residential sector.
The
Carp and Navan Landfills have always played an important role in ensuring
overall residual waste disposal capacity for the City. Due to the lengthy timelines required to
implement mixed waste processing and thermal technologies, landfills will
continue to be required in the near future.
As such, staff will continue to monitor the EAs of both landfills and
provide comments on their processes and results.
If
neither private landfill
secures an expansion, or significant waste reduction cannot be
addressed through thermal technologies, Ottawa will face a
short fall in disposal capacity, thus necessitating alternative management
schemes such as amendment to the Trail Road C of A for increased daily
allowance or waste export, potentially
as soon as 2011
(Figure 6, Capacity Shortfallxii). Under this scenario, and assuming existing
diversion rates in both the residential and IC&I sectors, both of the
City’s landfills (Trail
and Springhill) will be fully utilized in approximately 10
years. Figure 6 plots
the waste landfill and diversion tonnages in
the Ottawa area against projected
waste generation rates.
Figure
6: Projected Waste Disposal Capacity
It
is anticipated that it will take several years for approval and full
implementation of alternative technologies for residual waste management. Therefore, it is important that the City
ensure the efficient use of existing
landfill space while enhancing and implementing
waste reduction and processing technologies to minimize the residual waste in
both the residential and IC&I sectors, as outlined in the previous
sections.
Landfill
Management Plan
Per
the Hierarchy of Waste and Waste Management, landfill disposal will
still be required as a disposal method even after implementation of one or more
mixed waste processing or thermal technologies. A Landfill Management Plan will be developed that
essentially reflects the
landfilling requirements of the alternatives
contained in the Residual
Management Plan.
Ultimately, the City will need to manage its two municipal landfills (Trail and Springhill) and consider use of private landfill capacity to ensure sufficient final disposal capacity. The Landfill Management Plan would include examination of the need to expand existing facilities, establish new facilities, renegotiate agreements with private service providers, or otherwise alter management practices to meet Council’s directive.
Next
Steps
The
City’s current initiatives are intended to provide Council with
a suite of strategies and programs to address the short
and long term waste minimization,
diversion, processing and disposal
requirements of the City. Key deliverables
scheduled
for the next two years are the following:
§
Facilitate implementation of Plasco demonstration
plant (Q2-3, 2007);
§
Report to PEC on approach for detailed evaluation
of waste disposal methods (Q3, 2007);
§
Report to PEC on the results of the SSO procurement
process (Q3, 2007);
§
Report to PEC on status of achieving 40% and 60%
diversion targets (Q3, 2007);
§
Report to PEC on results of IC&I study (Q4,
2007);
§
Undertake Residual Waste Management Plan (2008);
§
Undertake Landfill Management Plan (2008);
§
Commence Environmental Assessment for one or more
new waste facilities (Q1, 2009).
In
the short to mid term,
Ottawa
will continue to require
use of
public and private landfill facilities to manage the City’s
residual waste. As well,
the City must continue to pursue
waste minimization and diversion options
to reduce the volume of residual waste generated by residents, businesses, and
institutions.
Figure 6:
Projected Waste Disposal Capacity
ENVIRONMENTAL IMPLICATIONS
There are no
immediate environmental implications of this report. This report simply demonstrates the complexity of issues to be
considered and scope of work to be undertaken to ensure
a sustainable waste management over the mid to long term.
RURAL IMPLICATIONS
There are no immediate impacts on the rural area.
CONSULTATION
/ PUBLIC NOTIFICATION
The Environmental Advisory Committee received the above update in December 2006 and is participating in several of the initiatives.
FINANCIAL IMPLICATIONS
Capital reserves are available to undertake all of the studies mentioned, but not necessarily all of the works that may arise from those studies. Accordingly, each study will examine the economic implications of all options under consideration and how they can be funded in a sustainable manner.
SUPPORTING DOCUMENTATION
Document 1 – Integrated Waste Management Master Plan, Recommendations and Their Status - French version may be provided upon request
DISPOSITION
The Utility Services Branch will continue to implement the initiatives approved by Council, and bring forward recommendations for next steps towards implementation of the IWMMP as set out in this report.
i A Public
Advisory Committee was struck consisting of 18 members representing
residents. Many meetings and workshops
were held with the general public to allow input at various stages of the IWMMP
development process.
Notices were published in community papers, and sent
to Community Associations and other major stakeholders, in addition to public
booths at various retail mall locations and some community centres.
ii The
recycling of electronics is in its infancy.
The industry is not yet established and reliable.
iii Life of the
TWF depends upon the following factors:
Provincial and Federal regulations regarding packaging, and landfills
and diversion programs; implementation and success of an SSO and other waste
diversion programs; the expansion of other landfills inside and outside of the
City; and the development of one or more EFW facilities.
iv The proponents, not the City, are carrying
out these EAs. However, the City has an
important rolel
to play as the host municipality and to ensure that the concerns of local
residents are appropriate
heard and addressed during the EA and subsequently during
implementation of any approved expansions
and/or waste disposal capacity options which may include incineration
as a thermal degradation technique.
v Environmental Protection
Act, Ontario Regulation 101/94:
Recycling and Composting of Municipal Waste.
vi Increased
diversion rates in the late 1990’s
is largely attributable to the collection of leaf
& yard waste.
vii Reducing
the frequency of residual waste collection is a proven approach to encouraging
greater diversion.
viii This
is a good first step in product stewardship by an Ontario crown
corporation. Such leadership is desired
on a variety of fronts, such as electronic waste.
ix This
includes EFW technologies.
x Options
under consideration include classification of waste management projects based
on the type of waste to be used, the facility size, the extent to which
potential impacts are known and mitigation measures readily available and, in
some cases, the ability of the planned facility to recover EFW.
xi The
City owns the Trail Waste Facility and Springhill Landfill. Private landfills in the City are the Waste
Management of Canada Corporation
Carp Landfill, and the Waste Service Inc. Navan Landfill. A portion of waste is also exported to the
nearby Moose Creek Landfill located east of the City.
xii All
landfills, including Trail Waste Facility, have maximum daily allowances by the
Ministry of Environment in
their
Certificate of Approval. This is
reflected in the chart by the flat lining of capacity available from 2011
to 2015.