3. Ottawa’s
Waste Plan – Phase 1: Vision, Guiding Principles, Goals, Objectives and Targets
Plan de
gestion des déchets d’Ottawa -- Phase 1 : Vision, buts, objectifs et
cibles
COMMITTEE RECOMMENDATIONS
That Council approve:
1.
The following vision statement for
Ottawa’s Waste Plan: "By 2042,
Ottawa will have room in its municipal landfill because as a community we
improved our rates of reducing, reusing and recycling, and managed our assets
wisely."
2.
The guiding principles, goals,
objectives and targets set out in Document 1, which received broad public
support.
RECOMMANDATIONS
DU COMITÉ
Que
le Conseil approuve :
1.
L’énoncé de vision suivant pour le Plan de gestion des
déchets de la Ville d’Ottawa :
« D’ici ŕ 2042, il y aura de la place dans les
sites d’enfouissement municipaux, car en
tant que communauté, nous aurons amélioré nos taux de réduction, de
réutilisation et de recyclage des déchets, et géré nos biens judicieusement. »
2.
Les principes directeurs, les buts, les objectifs et
les cibles largement appuyés tels que décrits dans le présent rapport et
établis dans le Document 1.
DOCUMENTATION :
1.
Deputy City
Manager, Infrastructure Services and Community Sustainability report dated 15 November 2011 (ACS2011-ICS-ESD-0036);
2. Extract
of Draft Minute 15 November 2011, follows the French report.
Report to/Rapport au :
Environment
Committee /
Comité de
l’environnement
November 15, 2011 / le 15 novembre 2011
Submitted by/Soumis par : Nancy Schepers, Deputy
City Manager /
Directrice
municipale adjointe
Infrastructure
Services and Community Sustainability /
Services
d’infrastructure et Viabilité des collectivités
Contact
Person/Personne-ressource :
Dixon Weir, General Manager/Directeur général
Environmental Services /
Services environnementaux
(613) 580-2424 x22002, Dixon.Weir@ottawa.ca
City-Wide / Ŕ l’échelle de la Ville |
Ref N°:ACS2011-ICS-ESD-0036 |
SUBJECT: Ottawa’s Waste Plan – Phase 1: Vision, Guiding Principles, Goals, Objectives and
Targets
OBJET : Plan de
gestion des déchets d’Ottawa -- Phase 1 : Vision, buts, objectifs et
cibles
REPORT RECOMMENDATION(S)
That Environment Committee recommend that
Council approve:
1.
The following vision statement for
Ottawa’s Waste Plan: "By 2042,
Ottawa will have room in its municipal landfill because as a community we
improved our rates of reducing, reusing and recycling, and managed our assets
wisely."
2.
The guiding principles, goals,
objectives and targets set out in Document 1, which received broad public
support.
RECOMMANDATION(S)
DU RAPPORT
Que le Comité de
l'environnement recommande au Conseil d'approuver :
1. L’énoncé
de vision suivant pour le Plan de gestion des déchets de la Ville
d’Ottawa :
« D’ici ŕ
2042, il y aura de la place dans les sites d’enfouissement municipaux, car
en tant que communauté, nous aurons
amélioré nos taux de réduction, de réutilisation et de recyclage des déchets,
et géré nos biens judicieusement. »
2. Les
principes directeurs, les buts, les objectifs et les cibles largement appuyés
tels que décrits dans le présent rapport et établis dans le Document 1.
Assumptions and
Analysis
The
City is developing a Waste Plan to guide management of recyclables and garbage
over the next thirty years. The plan is
needed to realize both the long-term and the short to mid-term stewardship, sustainability,
governance and financial goals established by Council and contained in the 2010-2014 Term of Council Priorities.
Development
of Ottawa’s Waste Plan is identified specifically as Strategic Initiative 27 in
the 2010-2014 Term of Council Priorities,
under the Strategic Objective ES3 – Reduce Environmental Impact. The plan will
also contribute to the Strategic Objectives of making sustainable choices and
aligning strategic priorities with Council’s tax and user fee targets.
This
report addresses Phase 1 of the waste planning process: establishment of the
plan’s vision, guiding principles, goals, objectives and targets. The next two phases, to be completed in 2012,
will assess ways to achieve these outcomes and propose an implementation plan
and budget for the first ten years.
In
October 2011, a Discussion Paper (see
Document 2) was released setting out a variety of issues to be addressed by the
plan. These issues range from the pressures of increasing population and waste
generation to providing quality customer service and the protection of public
health and the environment.
Public
feedback on the Discussion Paper was
obtained through a combination of workshops with key stakeholders, public
events held across the city, and an on-line questionnaire. Key stakeholders felt that the recommended
approach was realistic and would move the city towards its diversion goals. In summary, there is broad community support
for the leadership role Council has taken on waste management and the draft
vision, guiding principles, goals, objectives and targets as outlined in
Document 1.
These
included:
§ Following the
waste hierarchy;
§ Minimizing waste
generation;
§ Maximizing waste
diversion;
§ Reserving
municipal landfill capacity for residential residual waste; and
§ The City leading
by example.
Furthermore,
public feedback yielded direction on the following matters:
§ Public Education
– The most frequently heard comment during stakeholder consultations was the
need to enhance public education, particularly to change behaviour and explain
the value of taking action, and the consequences of inaction.
§ Managing Waste Locally
– Nearly 90 per cent of website respondents and three quarters of those
attending public events felt it important to find local solutions. Over 70 per cent felt the City should take a
leadership role in exploring opportunities for regional waste management.
§ Managing Business
and Institutional Waste – Nearly three quarters of event attendees and just
over half of website respondents felt that these sectors should retain
responsibility for the management of their waste, but indicated a desire for
the City to increase its role. In addition, two out of three respondents felt
it important that the City have access to waste statistics from these sectors.
Adoption
of the vision, guiding principles, goals, objectives and targets, set out in Document
1, will provide the City with a sound policy foundation upon which to evaluate
alternative management approaches for the short and mid-term during the next
phase of the waste planning process.
It
will also provide stakeholders, including other levels of government, with an
understanding of the City’s values and approach to waste management, and place
the City and Council in a leadership position on municipal waste management
long-term strategy development.
Financial
Implications:
There
are no financial implications associated with this report. Any costs and
financial implications will be identified in Phase 2 of the plan.
Public Consultation:
The
recommendations presented in this report were developed using input received
from key stakeholders and members of the public. Refer to the DISCUSSION
section for details of the consultation activities carried out during Phase 1
of the planning process.
BACKGROUND
Ottawa
is expected to grow by 300,000 people over the next 30 years, and with this growth,
total waste generation is projected to increase from 340,000 to 450,000
tonnes/year.[1] The City needs a plan to guide solid waste
management over this period, and to make progress towards achieving the
national capital area’s vision of zero waste, as set out in Choosing Our Future.
Ottawa’s
Waste Plan will build on a number of key decisions Council made that have
significantly increased the curbside diversion rate, which remained fairly
constant at around 32 per cent for the past decade. These include
implementation of the Green Bin program, which saw the curbside residential
diversion rate jump to 44 per cent, and more recently, Council’s decision to
move to bi-weekly garbage collection that will take effect November 2012 and is
expected to increase this rate to 53 per cent by the end of 2013.
Other
waste diversion and management changes approved by Council in recent years
include:
§ Recycling
facilities at Trail Waste Facility were upgraded in 2009;
§ The Blue Box
program was expanded to include a wider variety of materials in 2011; and
§ Phase-in of
blue, black and green bin programs in all City buildings is to be completed by
2014.
These
Council decisions have allowed the City of Ottawa to move from one of the
lowest waste diversion rates in Ontario to one of the best diversion rates in a
few short years, and development of Ottawa’s Waste Plan will build on this
success.
Still,
there are challenges to be met. The activities identified above will go a long
way towards minimizing residual waste from the residential sector and city
facilities, however, they do not mitigate the total volume of materials being
generated, or address the on-going need for public education; gaps in the
regulatory environment; collection, processing and disposal issues; and waste
generated by local businesses and institutions.
While
several of these matters are outside the control of the City, they have direct
bearing on how Ottawa manages its waste, and they are areas where the City can
exercise influence. Accordingly, this
plan addresses not only matters over which the City has direct control, such as
residential waste management and the municipal landfills, but also provides a
framework that will allow the entire community to play a meaningful role in the
minimization and management of waste.
DISCUSSION
Development
of Ottawa’s Waste Plan is being carried out in three phases.
During Phase 1
(July-October 2011)
§ Residential and
industrial, commercial, and institutional (IC&I) waste projections were developed
by material type.
§ Targeted
consultations were held with key stakeholders to identify issues and develop a
30-year vision. Approximately 200 people
were invited with over 60 participating in half-day workshops (see Document 3
for list of participants.)
§ Waste plans were
obtained from other jurisdictions to identify alternative approaches.
§ Provincial
documents were reviewed to confirm regulatory and other requirements.
§ Municipalities
were approached in eastern Ontario and west Quebec to assess the local waste
management environment, with 32 responding including the cities of Gatineau and
Cornwall.
§ A Discussion Paper was released for
comment that identified a range of issues and proposed the draft vision,
guiding principles, goals, objectives, and targets of the waste plan.
§ Release of the Discussion Paper was promoted through a
PSA and advertisements in local papers, was posted on the City’s website, and
copies distributed to all City libraries.
§ Public feedback
was obtained via both key stakeholder and community consultation events and an
on-line questionnaire. Over 650 responses were received on the City’ website
and another 200 via iPads at local events (see Document 4 for questionnaire and
analysis of feedback). Thirty stakeholder groups participated in the
fall consultations (see Document 5 for the list of participants.)
§ Results were
reviewed and changes made to the draft policies, as recommended herein.
Phase 2
(December 2011-June 2012) will examine a variety of options for achieving the
Plan’s vision, goals, objectives and targets.
Phase 3
(July-November 2012)
will set out a detailed short-term (10-year) implementation plan and requisite
budget to achieve recommended 2015 and 2022 targets.
ANALYSIS
Document
2 contains the Discussion Paper: Goals
and Target Setting Ottawa’s 30-Year Waste Plan, which formed the basis of
phase one consultations. The paper
outlines key issues to be addressed by the plan, including:
§ Waste
minimization and diversion;
§ Asset and
financial management;
§ Management of
social and environmental impacts;
§ Customer service;
§ Provincial
relations; and
§ Data sharing and
reporting.
In
summary, responding stakeholder groups and the general public indicated strong
support for the draft vision, goals, objectives and targets recommended on
these matters.
The
Discussion Paper and on-line
questionnaire also tabled three policy questions to the public:
1.
Should
Ottawa’s waste be managed locally?
2.
Should
the City take a lead role in investigating opportunities for regional waste
managment?
3.
Who
should manage business and institutional waste?
The
following sections explore these subjects and provide the rationale for two
additional goals and related objectives.
Managing Waste Locally
At
present, almost all residential waste generated in Ottawa is processed and
disposed of in Ottawa[2],
while most institutional, commercial and institutional (IC&I) waste is
exported, much of it to northern New York state. Of all of the facilities located within
Ottawa to transfer, process and dispose of waste, only two are owned by the
City, though most provide or have previously provided services to the City.
Nearly
nine out of ten short questionnaire respondents and more than three in four
website respondents said that local waste management solutions were important
or somewhat important to them.
Furthermore, over 70 per cent of respondents to both questionnaires felt
the City should show leadership in developing local facilities for locally
generated recyclables. There was also strong support for preserving City-owned
landfills for residential residual wastes.
The
extent to which the City can pursue this direction is limited in part by market
and financial realities. One key
variable is the ability to secure materials both inside and outside of
Ottawa. When questioned about waste
facilities and capacities, over 55 per cent of the 32 municipalities that
responded to Ottawa’s questionnaire indicated that they administer dual
recycling program similar to Ottawa’s, and 16 per cent deliver an organics
program. In addition, 75 per cent of the
32 municipalities stated that they own a landfill, with most of those
facilities predicted to reach capacity in less than 30 years, i.e. within the
life span of this waste plan.
For
these reasons, the public was asked how important it is that the City assumes a
leadership role in exploring and planning regional waste facilities, with just
over 70 per cent of respondents indicating it is somewhat important or
important to them. Given the potential
opportunities and benefits of managing waste on a regional basis, and strong
community support for the development of local markets and facilities for
recycling, the following additional goal was added: Manage waste locally.
Managing Industrial, Commercial and Institutional
(IC&I) Waste
Over
85 per cent of on-line respondents indicated that their workplace had some form
of waste recycling, with respondents reporting the following programs in
effect:
§ 95 per cent
collect paper and/or cardboard;
§ 78 per cent
collect plastics;
§ 88 per cent
collect bottles and/or cans; and
§ 20 per cent
collect food wastes.
There
are systemic challenges facing local businesses and institutions, particularly
amongst large institutions, the food industry, and the construction and
demolition sector (C&D), such as the following:
§ Lack of
knowledge regarding the options available or expertise on how to implement
them;
§ High cost of
diversion collection and processing;
§ Lack of local
processing facilities for certain materials;
§ Generation of
special wastes or wastes in quantities that pose operational challenges; and
§ Limited
financial resources.
Almost
75 per cent of respondents felt that local businesses and institutions should
retain primary responsibility for the management of their waste. However, when asked whether the City should
increase its role in the management of IC&I waste, over 65 per cent of
website respondents felt it somewhat important or important. Furthermore, over 70 per cent felt it
somewhat important or important that the City take a leadership role in
developing local facilities and markets for recyclable materials. On this basis, the following additional goal was
added: The City actively supports
waste diversion by local businesses and institutions.
Other key findings of phase one
that will prove instructive during the next stage of the planning process
include the following.
§ Almost 40 per
cent of website respondents indicated that they cannot reduce the amount of waste they generate (e.g., by buying
less or reusing more), with over 30 per cent confirming this sentiment despite
knowledge of the cost to establish a new landfill. And 20 per cent of respondents indicated that
they would achieve a reduction in waste by recycling/composting more. Unfortunately, recycling and composting do
not reduce the total volume of waste to be managed; therefore total waste
generation will likely continue to climb without reductions in the packaging of
goods, the introduction of mechanisms that facilitate reuse, and changes in
public attitudes.
§ Between 25 and
78 per cent of website respondents indicated that they do not recycle one or more of the following materials: a variety of
food tubs, milk cartons, juice boxes, glass bottles, bleach containers,
clamshell packaging, plastic egg cartons, empty aerosol cans, empty paint cans,
aluminum foil, take-out tins and pastry trays, and plastic planting trays. This represents significant potential for
increased diversion amongst residents. However, when asked how easy it would be to
add one or more of these “lost” materials to their recycling bins, in many
cases few respondents indicated a willingness to add certain products.[3] The underlying causes of this behaviour must
be addressed if the City is to achieve its blue box capture rate targets.
§ Of the 32
municipalities that responded to the Ottawa survey, 38 per cent indicated that
they are considering implementation of a green bin program. Twenty-eight
percent responded that they own at least one transfer station. And, almost all indicated that existing third-party
contracts end by 2018. If there is
political will amongst the various municipalities, opportunities may exist for
financially viable and environmentally sound regional waste solutions over the
mid-term.
Next Steps
Phase
2: Strategies to Achieve Goals and Targets
The purpose of phase 2 is to determine HOW we can
achieve the objectives, for example:
For
each of the goals and objectives approved by Council, a range of tools,
infrastructure and technologies will be identified and evaluated to determine
which are most appropriate for the short to mid-term. Options
will be evaluated in consultation with the public, and will include:
Infrastructure
requirements, such as transfer stations and drop-off depots, will be
identified, as well as technologies required in the short to mid-term.
Draft
results will be tabled in spring 2012 for approval.
Phase
Three: Develop Short-Term Implementation Plan
The purpose of phase 3 is, to develop a short-term (10-year) implementation plan to achieve the recommended 2015 and 2022 targets, which will include:
RURAL
IMPLICATIONS
There
are no rural implications.
CONSULTATION
The
recommendations presented in this report were developed using input received from
key stakeholders and members of the public. Refer to the DISCUSSION section for
details of the consultation activities carried out during Phase 1 of the
planning process.
COMMENTS
BY THE WARD COUNCILLOR(S)
Not
applicable.
LEGAL
IMPLICATIONS
There
are no legal impediments to implementing the recommendations in this report.
RISK
MANAGEMENT IMPLICATIONS
Development
and implementation of a waste plan is a key means of mitigating short and
mid-term risks to the City arising from the challenges of waste management.
FINANCIAL
IMPLICATIONS
There
are no financial implications associated with this report. Any costs and
financial implications will be identified in Phase 2 of the plan.
ENVIRONMENTAL
IMPLICATIONS
Adoption
and implementation of Document 1 will help further achievement of the City’s
environmental goals as set out in Choosing
Our Future and Ottawa’s Environmental
Strategy.
TECHNOLOGICAL
IMPLICATIONS
There
are no technical implications.
STRATEGIC
PRIORITIES
Development
and implementation of a waste plan is listed as Strategic Initiative 27 in the
2010-2014 Term of Council Priorities under the Strategic Objective ES3 – Reduce
Environmental Impact. The plan will also contribute to the Strategic Objectives
of making sustainable choices as set out in Strategic Initiative GP3 and
aligning strategic priorities to Council’s tax and user fee targets.
SUPPORTING
DOCUMENTATION
Document 1- Ottawa’s Waste Plan: Phase 1 Recommendations
Document 2 – Discussion
Paper: Goals and Target Setting for Ottawa’s 30-Year Waste Plan
Document 3 – Memorandum: Summary of Workshop Discussions, City of Ottawa Waste
Management Plan, September 1, 2011, Golder Associates
Document 4 – Ottawa’s Waste Plan, City of Ottawa, Draft Report, 2011-222, Nanos
Research, November 9, 2011 (issued
separately)
Document 5 – Phase 1 Stakeholder consultations: Summary
Report and Key Findings from Workshops, October 2011, PACE Public Affairs
and Community Engagement
DISPOSITION
ESD
to examine options for implementing the goals, objectives, and targets adopted
herein during Phase 2 of the waste planning process.
[1] Residential waste only. Business and institutional waste is expected to grow by an estimated 30 per cent.
[2] Exceptions include residential hazardous wastes and special wastes managed by local vendors and manufacturers under the City’s Take It Back program and Waste Diversion Ontario (WDO) programs.
[3] For example, of 651 website respondents, 171 indicated that they do not place margarine tubs in the blue box. Of those, only 19 indicated it would be easy to add it to their diversion routine. Similarly, of the 169 that said they do not place milk cartons in the blue box, only 25 indicated it would be easy to do so in future. Further work is needed to determine if these results are merely a reflection of buying habits and how respondents interpreted the survey, or of barriers in attitudes or other matters that inhibit increased diversion.