1. source separated organics – EVALUATION, diaper disposal and bI-weekly collection IMPLEMENTATION

TRI DES MATIÈRES ORGANIQUES À LA SOURCE – ÉVALUATION, ÉLIMINATION DES COUCHES JETABLES ET MISE EN PLACE DE LA COLLECTE TOUTES LES DEUX SEMAINES

Committee recommendation

No Committee Recommendation.

Recommandation du Comité

Aucune recommandation du Comité.

Documentation

1. Coordinator, Planning and Environment Committee report dated 8 August 2008 (ACS2008-CCS-PEC-0017).

2. Extract of Draft Minutes, 18 August 2008.

Report to/Rapport au :

Planning and Environment Committee

Comité de l'urbanisme et de l'environnement

and Council / et au Conseil

8 August 2008 / le 8 août 2008

Submitted by/Soumis par : Robert Tremblay, Committee Coordinator /

Coordonnateur de comité

Contact Person/Personne ressource : Albert Shamess, Director/Directeur

Solid Waste Services / services de gestion des déchets solides

(613) 580-2424 x25873, Albert.Shamess@ottawa.ca

City-wide/ À l’échelle de la Ville

Ref N°: ACS2008-CCS-PEC-0017

SUBJECT:	source separated organics – EVALUATION, diaper disposal and bI-weekly collection IMPLEMENTATION
OBJET :	TRI DES MATIÈRES ORGANIQUES À LA SOURCE – ÉVALUATION, ÉLIMINATION DES COUCHES JETABLES ET MISE EN PLACE DE LA COLLECTE TOUTES LES DEUX SEMAINES

REPORT RECOMMENDATIONS

That the Planning and Environment Committee consider the following motions for recommendation to Council:

1. That garbage collection frequency change to bi-weekly garbage collection commencing one year after organics curbside collection has been fully implemented including evaluation of success.

2. That the above recommendation be amended to include that City Staff conduct a full evaluation of the organics program six months after initial implementation with a report back to Planning and Environment Committee that:

i) Specifically identifies any problem areas, including diaper disposal, and makes recommendations as to how these issues will be addressed;

ii) Recommends an optimal start date for the City of Ottawa to move to bi-weekly residual garbage collection.

RECOMMANDATIONS DU RAPPORT

Que le comité de l’urbanisme et de l’environnement examine les motions suivantes à des fins de recommandation au conseil :

1. Que soit modifiée la fréquence de la collecte des ordures afin qu’elle se fasse toutes les deux semaines, et ce, un an après que la collecte au porte-à-porte des matières organiques ait été pleinement mise en place et ait fait l’objet d’une évaluation de succès.

2. Que la recommandation ci-dessus soit modifiée afin que le personnel de la Ville puisse procéder à une évaluation complète du programme de collecte des matières organiques six mois après sa mise en place, et présente au comité de l’urbanisme et de l’environnement un rapport :

ii) identifiant précisément tous les points posant problème, y compris l’élimination des couches jetables, et formulant des recommandations sur les mesures à prendre pour résoudre les problèmes soulevés;

ii) recommandant une date optimale à laquelle la Ville d’Ottawa devrait commencer la collecte des déchets toutes les deux semaines.

BACKGROUND

Planning and Environment Committee considered a report providing an update on facility, implementation timing, and program design for Source Separated Organics on May 27, 2008. The issue of diaper disposal and bi-weekly collection was deferred at Council.

The following referral motion pertaining to the subject was carried on July 9, 2008:

BE IT RESOLVED THAT the diaper disposal and bi-weekly collection discussion as it pertains to Source Separated Organics (including Council Motion No. 38/3 and Recommendation 2 of Planning and Environment Committee Report 31A, Item 3) be referred to the Planning and Environment Committee.

DISCUSSION

Richard Hewitt, Deputy City Manager of Public Works and Services, provided information to Council in a memorandum dated 9 July 2008, attached as Document 1.

The following motions were referred from Council:

Motion No. 38/3

WHEREAS a full public consultation has not been conducted on the Source Separated Organics program,

AND WHEREAS serious issues involving diaper disposal and bi-weekly collections were expressed by residents during a ward-focused organics pilot program in Ward 10,

THEREFORE BE IT RESOLVED THAT Committee recommendation #2 be amended to include that City Staff conduct a full evaluation of the organics program six months after initial implementation with a report back to Planning and Environment Committee that:

iii) specifically identifies any problem areas, including diaper disposal, and makes recommendations as to how these issues will be addressed;

ii) recommends an optimal start date for the City of Ottawa to move to bi-weekly residual garbage collection.

Recommendation 2, Planning and Environment Committee Report 31A, Item 3

2. That garbage collection frequency change to bi-weekly garbage collection commencing one year after organics curbside collection has been fully implemented including evaluation of success.

FINANCIAL IMPLICATIONS

As per Report Source Separated Organics – Update on Facility, Implementation Timing, and Program Design (ACS2008-PWS-SWS-0002), if Ottawa implements bi-weekly residual garbage collection, the resulting increase in overall recycling rates and associated revenues due to increased recovery of materials is estimated to be $400,000 per year, and a yearly savings in residual garbage collection costs of $2.7M.

CONSULTATION

Public Works and Services staff are aware of this referral and will respond to any questions at the meeting. The memorandum and departmental report attached as Documents 1 and 2 provide the staff position on this matter.

Solid waste services are in the process of developing a full public education and promotion campaign as part of the roll out of the SSO program.

This item will be advertised in the local dailies as part of the Public Meeting Advertisement on Friday preceding the Planning and Environment Committee meeting.

SUPPORTING DOCUMENTATION

Document 1 Memorandum from the Deputy City Manager of Public Works and Services

Document 2 Source Separated Organics – Update on Facility, Implementation Timing, and Program Design (ACS2008-PWS-SWS-0002) Held on file with the City Clerk

DISPOSITION

Public Works and Services will implement any further direction directed by Committee and Council.

DOCUMENT 1

M E M O / N O T E D E S E R V I C E
To / Destinataire	Mayor and Members of Council		File/N° de fichier: File Number
From / Expéditeur	Deputy City Manager of Public Works and Services
Subject / Objet	Diapers and Bi-Weekly Update		Date: 09 July 2008

This memo will provide further information to Council with regards to report ACS2008-PWS-SWS-0002 Source Separated Organics – Update on Facility, Implementation timing and program design, and the following motions of Committee and Council.

MOTION NO. 38/3

Moved by Councillor D. Deans

Seconded by Councillor M. McRae

WHEREAS a full public consultation has not been conducted on the Source Separated Organics program,

AND WHEREAS serious issues involving diaper disposal and bi-weekly collections were expressed by residents during a ward-focused organics pilot program in Ward 10,

THEREFORE BE IT RESOLVED THAT Committee recommendation #2 be amended to include that City Staff conduct a full evaluation of the organics program six months after initial implementation with a report back to Planning and Environment Committee that:

i) specifically identifies any problem areas, including diaper disposal, and makes recommendations as to how these issues will be addressed;

ii) recommends an optimal start date for the City of Ottawa to move to bi-weekly residual garbage collection.

MOTION NO. 38/4

Moved by Councillor M. Bellemare

Seconded by Councillor D. Deans

That Motion No. 38/3 and Recommendation 2 (i.e. “That garbage collection frequency change to bi-weekly garbage collection commencing one year after organics curbside collection has been fully implemented including evaluation of success;”) be deferred for consideration until the July Council meeting in order for staff to report on contractual issues.

DEFERRAL CARRIED

OPTIMAL START DATE FOR BI-WEEKLY GARBAGE COLLECTION

The current Solid Waste Residential Curbside Collection contracts were drafted in 2005, with a contract start date of June 2006. It was envisioned at that time to start an organics collection program in the spring of 2008. Therefore the contracts were drafted using this date for the expected program implementation, roll out and phase in. The current collection contracts include the ability for the City to implement bi-weekly collection of residual waste or to maintain weekly collection through the life of the contract. They also include a requirement for the City to provide at least eight (8) months notice in advance of SSO program implementation on the timing of program launch and the service level for residual waste collection.

One of the fundamental service level decisions required of Council and necessary for the Contractors to prepare for the implementation of Source Separated Organics collection, is that of frequency of collection for residual waste.

At original contract award, (November 2005), Council chose to remain with weekly collection of garbage with the implementation of organics collection. Subsequent motions of Council directed staff to resubmit the option and timing for bi-weekly garbage collection.

The Solid Waste Collection contractors have raised concerns about uncertainty in the program rollout and are concerned about the truck requirements and their ability to provide the service.

The frequency of residual waste (garbage) collection has an impact of truck requirements for the contractors, and the delay in program implementation, means they will now have a shorter time to cover the costs for the purchase of new trucks than expected. They have also expressed concern over further delays in decisions relating to bi-weekly residual waste collection and the change from weekly to bi-weekly much later than they anticipated. These concerns are due to the difficulty in sourcing additional trucks for the short term over which they would be needed.

Implementation of bi-weekly residual waste collection has an impact on organics participation and capture, as well increasing overall diversion by 10 and 15%. There is a direct correlation between the increased diversion and the number of trucks required to perform each of the collections.

The organics collection program is scheduled to commence in the fall of 2009 with a recommended start of bi-weekly residual waste collection after a phase in period. The contractors have advised that a phase in period of 6 months from the start of program rollout could be accommodated, provided the 6 months is mainly outside of peak leaf and yard waste season, as they would have extra vehicles available to cover the need for weekly service. The number of trucks required to provide City wide service will not be available on a short term lease basis and purchasing vehicles for a short term would not be feasible.

Essentially this means that in order to ensure with a reasonable degree of certainty that proper service levels can be maintained the maximum phase in period that should be considered is 6 months.

As previously noted, the contract requires that the City of Ottawa provide the contractors with a minimum of eight (8) months notice to acquire the trucks to provide the enhanced level of service. However, timing for tendering, order and delivery of the vehicles can be unpredictable and time requirements of 12 months or longer are possible. Since further program delays to the program launch are of significant concern the contractors need to be provided with as much notice as possible in order to be suitably prepared. That, in turn, means that the decision on bi-weekly versus weekly collection of residual waste should be made now.

Therefore, staff are recommending, that based on implementation of organics in the fall of 2009 a move to bi-weekly residual waste collection occur by March 2010, in order to provide contractors with the opportunity to adequately prepare and plan for program implementation and allow residents time to adjust to the program change prior to the warm weather season. Alternatively, for the reasons outlined above, weekly garbage collection should remain in place for the duration of the current collection contracts, until 2012.

DIAPERS AND INCONTINENCE PRODUCTS - CONCERNS WITH BI-WEEKLY GARBAGE COLLECTION FREQUENCY

One of the stated concerns with a move to a bi-weekly collection of residual garbage, is the concern for the handling of diapers. Solid Waste staff have investigated the handling of diapers in municipalities that have bi-weekly garbage collection, and are proposing that once bi-weekly collection of residual waste is in place to implement a program modeled after one offered by Region of Durham.

THE DURHAM PROGRAM

The Region of Durham has implemented a program that allows families to apply for additional waste collection based on the following circumstances:

1. Residents who require the use of diapers or incontinence products, as a result of a medical condition; and,

2. Households with three (3) or more children under the age of three (3).

Upon acceptance of the application, residents are provided with an allocation of bag tags to be used with clear plastic bags to be set out on garbage day, or they can be dropped off at any one of the Durham transfer stations.

As per Durham’s report to its Works Committee in May 2007, regarding Additional Waste Collection Services for Residents with Extraordinary Circumstances Related to the Use of Diapers and/or Incontinence Products. 61 families were using the extra service out of a population of 561,258.

OTTAWA PROPOSAL

With the introduction of weekly Source Separated Organics collection and alternate week recycling collection, the remaining garbage for disposal is significantly reduced. The handling of diapers has been raised as a concern when garbage collection frequency moves to bi-weekly (every second week).

It is recommended that when bi-weekly collection of residual waste starts, Solid Waste Services offer an additional collection of diapers and incontinence products to those households who apply and qualify for service, similar to the Region of Durham and based on the following suggested criteria:

1. Residents who require the use of diapers or incontinence products, as a result of a medical condition; and,

2. Households with two (2) or more children under the age of three (3).

Upon acceptance of the application, residents would be provided with an allocation of bag tags to be used with transparent plastic bags to be set out on garbage day, on the non-garbage collection week. Solid Waste Services would then implement a separate collection for those registered homes. Final program criteria, requirements and costs would be developed in association with planning for the change to bi-weekly service.

Should you have any questions or comments please contact Albert Shamess, Director of Solid Waste Services.

Original signed by

R.G. Hewitt

cc: Executive Management Team
Albert Shamess, Director Solid Waste Services

SOURCE SEPARATED ORGANICS – EVALUATION, DIAPER DISPOSAL AND BI-WEEKLY COLLECTION IMPLEMENTATION

TRI DES MATIÈRES ORGANIQUES À LA SOURCE – ÉVALUATION, ÉLIMINATION DES COUCHES JETABLES ET MISE EN PLACE DE LA COLLECTE TOUTES LES DEUX SEMAINES

ACS2008-CCS-PEC-0017 CITY WIDE/À L'ÉCHELLE DE LA VILLE

Referred by Council on July 9, 2008 / Renvoi du Conseil du 9 juillet 2008

Email correspondence from Robert Behrend, dated July 10, 2008, was received and is held on file with the City Clerk.

Albert Shamess, Director of Solid Waste Services, provided two PowerPoint presentations (held on file with the City Clerk) that touched on collection issues and organic waste management technologies.

Mr. Shamess, assisted by Anne-Marie Fowler, Manager of Solid Waste Operations, responded to questions from councillors, clarifying the following:

· Typically it costs more to process Source Separated Organics (SSO) than what is recovered in collection costs.

· Council previously approved the SSO program and the contract is in place. If the City wishes to pursue a better alternative that becomes available, the contract contains a cancellation clause with a financial penalty. The penalty is significant if the contract is cancelled in the first 10 years because of infrastructure development costs.

· Flexibility exists in the contract to look at other technologies with the contractor (Orgaworld). The City will be working with the contractor to evaluate the processes and procedures that are employed at the facility for improvements.

· With respect to odors, a Certificate of Approval is required for air emissions from the Ministry of the Environment. The facility will include a comprehensive odor control system that involves bio-filtration and scrubbing. Air inside the building is collected and treated prior to discharge to remove odors.

· The facility in Western Québec takes a mix of bio-solids and organics, which is not the case in Ottawa because the mix of materials comes with a high risk of failure. The technology employed is significantly different and the odor control system in Ottawa will be more complex, comprehensive and robust.

· The contractual requirements with Orgaworld require the City’s approval prior to accepting any other material, which must meet the same quality standards.

· The diaper program would include incontinence products. People would be required to apply and criteria would be determined. The Region of Durham had 150-200 families participating in a similar program with lower than expected participation, which declined over time.

· One private company that provided diaper recycling is currently in receivership.

· Registration for the diaper/incontinence program is a means to determine where to pick up and to provide the supply of bags or tags needed for off week collection. Costs are estimated at $200,000 to be recovered based on current per ton fees. Diapers represent 1.5 to 2 per cent of the waste stream. The diapers would be collected similarly to the current practice for leaf and yard waste.

· Other municipalities initiated pilot projects for clear bags. Similar pilot programs could be looked at once the SSO program is implemented in Ottawa.

· Degradable paper bags that fit inside the green box can be purchased at several retail outlets. In other municipalities, entrepreneurs have started up receptacle cleaning services.

· The $2.7 million in collection savings (as a result of bi-weekly collection) is offset by an overall increase in solid waste management due to the costs of the SSO program. The cost of collection for SSO is lower per ton as the material is heavier than residual waste.

· The current solid waste collection costs are $15 million for garbage and $15 million for recycling. The SSO program will cost $8 million, but with a reduction in other collection costs, it would represent a net impact of $2.5 million. The net savings for bi-weekly collection is $1 million. (All figures are annual.)

· The contractors provided a different per ton price estimate depending on the residual garbage pick up frequency. The lower price option for all solid waste collection involves the implementation of bi-weekly residual waste collection.

· The multi-residential sector will not be included in the original implementation of the SSO program, but would be included in a second phase.

· The cost for waste diversion programs is part of the mill rate as a broad based benefit to the community.

· Research was undertaken on the differences in diversion when comparing weekly and bi-weekly residual waste collection. The Region of Durham is split and offers both collection options. Durham has found an additional 13 per cent overall diversion with bi-weekly collection. Durham is also building a mass burn incinerator for residual waste, while continuing diversion programs. Participation rates in areas with bi-weekly collection range from 75 to 90 per cent. Rates are higher when programs are introduced and they have been in place for a longer period of time.

· On an on-going basis, staff evaluate recycling programs to determine if a stable long-term market exists for additional material. The Environmental Plastics Institute recently announced the existence of a facility, which accepts Styrofoam. Transportation costs and the recovery rate will be analyzed to determine the appropriateness of adding this and other items to the blue box.

· The number of garbage bags permitted per week was reduced from five to three in 2006. This issue could be looked at as part of the overall implementation of the SSO program over the next year.

· Some municipalities who introduced SSO with weekly residual garbage collection are now investigating a move to bi-weekly collection. The oldest SSO programs were implemented 15 years ago in Nova Scotia with bi-weekly residual waste collection.

· Weekly residual garbage collection would require additional educational and information efforts, as bi-weekly collection allows for more of an incentive to participate in the SSO program.

Councillor Holmes indicated she would move a motion to proceed with bi-weekly residual collection six months following implementation of the SSO program to avoid additional costs and ensure participation. She noted that the six months provides a phase-in time for residents to realize how little garbage will remain as a result of an organics program. She added the motion would also support the creation of an inclusive program for diaper and incontinence pick-up for those families that need such a service.

Councillor Hunter suggested the need for discussion on the funding of waste diversion programs (mill versus service rate) and how revenues received by recycling are shared. Mr. Shamess confirmed that Council previously directed staff to address service to rural residents.

Councillor Hunter stated he received three emails when this matter was in the news the week before. He suggested asking residents to analyse their waste to determine what is left after materials are placed in the green, blue and black boxes.

Councillor Hunter also touched on the motion referred from Council with respect to the evaluation of success. He questioned what would occur if the program were deemed not to be successful. Councillor Hume clarified the differences between what is proposed by staff, the motions referred by Council and new motions presented at today’s meeting.

With respect to the incontinence and diaper program, Councillor Wilkinson suggested staff also investigate pick-up of certain items that require more frequent collection, such as dialysis supplies. She also said that environmental impacts are not expressly noted in the report with respect to weekly versus bi-weekly residual garbage collection (e.g. CO2 reductions). She furthermore pushed for the promotion of cloth diapers to assist with diaper disposal issues.

Chair Hume noted that the Province has announced funding for e-waste and expanded household special waste. Mr. Shamess indicated that pilot program announcements would be forthcoming as part of evaluations for the 2009 Budget. With regard to household special waste, he added the Province announced that the program would be fully funded by producers.

Councillor Bellemare raised concerns with the proposed diaper/incontinence program, notably the inability to estimate the number of potential participating households and the registration requirement. He stated the proposal is overly bureaucratic and logistically challenging.

Councillor Harder advised that she would be moving a motion to continue weekly residual garbage collection until 2012. She reiterated her support for the SSO program, noting she has confidence that the citizens of Ottawa will adapt to the change. She touched on the unknowns associated with the proposed diaper program and the need for time to educate people to ensure buy-in. On the diaper issue, she added engagement of long-term care and daycare providers is a necessity.

Councillor Monette spoke in support of Councillor Harder’s motion, noting people are paying taxes for garbage pick up and expect it on a weekly basis. He suggested the 2012 timeframe would allow sufficient opportunity to ascertain if the program will work without penalizing residents with a cut to garbage services.

Councillor Desroches suspected the costs for the proposed diaper program are underestimated. He questioned the benefit of implementing bi-weekly residual waste collection in spring 2010, as the start period will be the most critical phase of this project for it to be successful. Mr. Shamess responded that the March target is two months before leaf and yard pick up and the typical increase in the volume of waste, which in majority is attributed to organic waste. With the introduction of the SSO collection on a weekly basis, the level of service will essentially be the same for the seasonal increase in waste.

Councillor Feltmate touched on the environmental implications of weekly versus bi-weekly residual garbage collection, as well as long-term costs associated with the requirement for additional landfills or alternative expensive methods for dealing with garbage. Mr. Shamess indicated the implementation report discussed in June 2008 did make reference to the deferred cost of assuming the long-term maintenance and liabilities associated with the Trail Road Landfill. The report also attempted to quantify the costs for the development of a new landfill.

Councillor Feltmate also questioned how deferring implementation of bi-weekly residual garbage collection would be beneficial to residents, as it will not reduce costs nor encourage people to participate in the SSO program. She noted the citizens of Ottawa are intelligent and will adapt, adding she receives numerous emails calling for the City to do more.

The Committee then heard from the following public delegation.

Mark Scharfe, Ramsayville Community Association, raised concerns on the proposed location of the SSO processing site at Rideau and Hawthorne Roads. The site is adjacent to the three quarries that require Take Water permits from the Province. He added the area, which is serviced by wells, includes one of the biggest dairy operations in the City, as well as grain elevators, an industrial park, the Meadows Golf Course, greenhouses, farms and residential homes. Mr. Scharfe explained that the former City of Gloucester by-law directed that no industrial use should be permitted that requires water in any processing operation or that has as a bi-product water-borne waste requiring municipal waste treatment. He stated this prohibition was left out of the Comprehensive Zoning By-law.

Mr. Scharfe explained that the proposed site could handle approximately 150 thousand tons specifically reserved for the City’s organics program at a rate of $89 per ton. He explained that a few years back, he placed cattle on the Duncan Farm at Hawthorne Road and lost one large animal to “black leg”, which is caused by anthrax spores in the soil. He cautioned the Committee on the impact of the proposed SSO processing site on human health through contamination of the land. He also touched on drainage issues in the area. In closing, he reiterated opposition to the proposed processing facility.

Following the public delegation, Councillor Holmes formally presented her motion. Councillor Hunter noted his opposition to the program, but stated that bi-weekly residual garbage collection is the most cost effective option for its implementation.

Councillor Doucet also spoke in support of the Holmes’ motion, commenting on the previous political delays in moving forward with a SSO program.

Councillor Hume said citizens have adapted to changes in collection over the years with the introduction of the blue and black box. He noted it would be very difficult to site or fund an incinerator or new landfill.

Moved by J. Harder:

That Planning and Environment Committee reject garbage frequency change to bi-weekly at this time;

That other options to encourage SSO compliance be explored; and

That the City of Ottawa maintain weekly residual waste collection until the end of the current contracts (2012).

LOST

YEAS (5): M. Bellemare, S. Desroches, J. Harder, B. Monette, S. Qadri

NAYS (5): C. Doucet, D. Holmes, G. Hunter, P. Feltmate, P. Hume

Moved by D. Holmes:

That the City of Ottawa move to bi-weekly residual waste collection within six months of SSO Implementation (by March 2010);

That a separate program for curbside collection of diapers be developed to compliment the by-weekly residual garbage collection; and

That staff develop a list of additional products and materials that could be added to the supplemental program.

LOST

YEAS (5): C. Doucet, D. Holmes, G. Hunter, P. Feltmate, P. Hume

NAYS (5): M. Bellemare, S. Desroches, J. Harder, B. Monette, S. Qadri

The Committee directed staff to prepare a policy report on how diversion and garbage programs are funded and how revenues are shared.