Introduction
This is a report on Stakeholder Workshops
held in support of the development of the City of Ottawa’s 30-Year Waste Plan. The workshops were designed to seek
validation by participants of the draft discussion paper developed by the
City’s Environmental Services Department that outlines a long-term vision for
Ottawa’s waste plans, and sets out a number of goals and targets required to
implement that vision. Specifically, the
purpose of the sessions was to gauge whether participants felt: (a) the City was
moving in the right direction; (b) the paper accurately captured the interests
of the various stakeholder sectors; and (c) whether it accurately captured the
aspirations of Ottawans regarding future waste management.
The long-term Waste Plan is scheduled for
adoption in 2012.
Background
The City’s consultation program for Phase
1 of the Waste Plan commenced in August 2011, with a series of initial
workshops held with stakeholders to gather feedback on waste management
practices within Ottawa. A Discussion
Paper was drafted using feedback received, which was made available for public
comment between October 11 and November 1, 2011.
In conjunction with the Paper being
released to the general public, three stakeholder workshops were also held to
solicit specific feedback on the vision, goals, objectives and targets proposed
in the Discussion Paper.
The targets in the Discussion Paper were
addressed by mean of individual questionnaire, whose compilation is not in this
report. The City’s Phase 1 consultation
also included a web-based public questionnaire, which workshop participants
were encouraged to complete on site with communication devices provided by the
City. The results of this public
questionnaire will be tabulated by the City.
Feedback from the stakeholder
workshops, independent submissions and the general public will be used to
finalize the staff report that will be presented to the City’s Environment
Committee on November 15, 2011.
Approach
Invites were sent to approximately 200
waste sector stakeholders that had been identified by City staff and invited to
the preliminary workshops in August, requesting their participation at one of
three workshops held on October 25, 26 and 27, 2011. The draft Discussion Paper was attached to
the invitation and the participants were asked to read it in advance.
The workshops were structured to allow participants to work
together as a plenary group, led by a facilitator, with opportunities for small
group discussions with the guidance of a table host. The workshops more specifically reviewed the
vision statement, goals and lists of “how to achieve” statements that were
contained in the draft Discussion Paper.
A copy of the Workshop Agenda can be found in Appendix ‘A’.
A total of 44
participants attended the workshops.
They represented all facets of waste handling, including: private
landfill owners and waste treatment or disposal businesses, commercial and
governmental landlords, public and private housing projects, school boards and
hospitals, environmental groups and waste consultants, as well as small
business owners and representatives. A
small number of residents also attended.
City staff from the Environmental Services Department were also present
to offer support on technical matters. A
list of participating organizations can be found in Appendix ‘B’.
A wide range of
comments and input was collected, as summarized on the following pages.
What We Heard
This section of the Report summarizes the
key trends taken from the input received. Emphasis has been placed on the ideas and
comments that relate directly to the Discussion Paper: Goals and Target Setting for Ottawa’s 30-Year Waste Plan.
High Level Comments: Is the porridge too hot, too cold, or just right?
Following a presentation overview on the draft
Discussion Paper, participants were asked to rank the draft vision statement,
on a scale of 1-5, where:
o
‘1 means the vision statement goes too far,
is too aggressive
o
‘2’ means you are generally unhappy with
the vision
o
‘3’ means you are generally happy with it,
but have some reservations
o
‘4’ means that it is great as is
o
‘5’ means that the vision statement
doesn’t go far enough, is not aggressive enough.
The results of the ranking exercise are presented
in the table below:
Date |
1 |
2 |
3 |
4 |
5 |
Total |
25th |
0 |
0 |
3 |
4 |
4 |
11 |
26th |
0 |
0 |
0 |
10 |
11 |
21 |
27th |
0 |
0 |
5 |
6 |
1 |
12 |
TOTAL |
0 |
0 |
8 |
20 |
16 |
44 |
Note: Some
persons at the October 25th workshop initially gave a low or very
low score of ‘1’ or ‘2’ to the vision statement. Following a clarification of the ranking
criteria, 4 persons who initially voted scores of ‘3/2/1’ changed their score
to a ‘5’. They had voted a low score to
indicate that they felt the vision statement did not go far enough. For example, they would set the target year
further in the future than 2042, so that the City owned landfill sites fill
even more slowly than stated in the Discussion Paper, because even more waste
is reduced, diverted, recycled and so on than the degree proposed by the
Discussion Paper.
A plenary discussion
ensued as to why participants ranked the vision the way they did. Stakeholder commentary falls into two broad
camps:
Roughly half of the
participants fall into each camp. The
“realistic” camp stated sentiments such as, ‘the Discussion Paper is moving in
the right direction’ or ‘this is a reasonable approach’ or ‘a realistic
balance’ which aims to increase adherence to the ideal of the waste pyramid and
thus keep City-owned landfills open until at least 2042.
The “more ambitious”
camp indicated the City’s targets and programs should be more aggressive than
stated in the Discussion Paper. They are
of the opinion that much more can be done to refuse, re-use, reduce, recycle
and recover, so that the volume of residual waste is significantly less and the
municipal landfills are filled even more slowly than proposed in the Discussion
Paper. A small number also suggested
that they would be in favour of a “zero waste” approach, even if only as a
motivating slogan which is not intended literally.
It is important to
note that none of the stakeholders consulted were of the opinion that the
Discussion Paper as a whole goes too far, is too demanding or should be more
cautious. Given that the Discussion
Paper is predicated on enhanced performance in virtually all areas of waste
management and disposal, this is significant.
(That being said, there were reservations about, and in a few instances
opposition to, some of the specific actionable items in the How To lists for
each Goal.)
Participants
were then asked to comment on the eight draft goals listed in the Discussion
Paper. None of the participants
suggested any change to the wording or the import of the eight Goal statements,
as outlined in the table below. There
was very little comment on the actual wording of the Goal statements. Once one accepts the premise of the vision
statement, as stated or modified, the Goals were considered obvious or
“motherhood”.
Discussion Paper Goals |
Overall Comment |
Goal #1: Generate less waste |
All participants agreed with the goal statement |
Goal #2: Optimize waste diversion |
All participants agreed with the goal statement |
Goal #3: Reliable,
safe and affordable municipal waste services |
All participants
agreed with the goal statement |
Goal #4: Ensure customers have a high degree of
satisfaction with the City’s waste services |
All participants agreed with the goal statement |
Goal #5: Asset optimization, financial
accountability, and risk management in all aspects of program design and
service delivery |
All participants agreed with the goal statement |
Goal #6: The Province increases its regulatory and
financial leadership in waste management |
All participants agreed with the goal statement |
Goal #7: Regular assessment and reporting on the
City’s waste programs and services |
All participants agreed with the goal statement |
Goal #8: Access to data affecting waste management
in Ottawa |
All participants agreed with the goal statement |
There was significant
constructive commentary on improvements to the lists of “How To Achieve” statements
(bullet points) that accompany each goal in the Discussion Paper. Many bullet points were fully supported or
were commented on in a minor way.
Suggestions for improvement were made to many other bullet points. The only bullet points which resulted in at
least some disagreement were in the area of bilingual and culturally adapted
services or programs; and in reaction to proposals to extend municipal control
which could replace or displace the private sector. It is noteworthy that none of the bullet
points in the How To lists were rejected outright by a plurality of
participants.
Three broad
issues were raised more frequently than others. These have been organized into the following
categories, with a fourth category to capture the balance of the comments:
1.
Residential
2.
Industrial, Commercial
and Institutional (IC&I)
3.
Public Education
4.
Other Issues.
1. Residential
The great majority of
stakeholder participants approved of those aspects of the Discussion Paper that
address the curbside residential waste system, which is a Municipal
service. The primary area noted for
improvement is multi-residential buildings and communal recycling and garbage
facilities for these residences.
Key
Observations Distilled from the Participant Comments:
·
Almost none of the
suggested improvements to the Discussion Paper were about the curbside
residential waste collection system operated by the City. The content presented in the Discussion Paper
was seen as realistic for the residential component, on the whole. There was support for progressive targets to
reduce residual waste disposal moving forward.
·
Suggestions were made
to improve the recycling and waste minimization rates in apartment buildings,
condominiums and similar multiple unit or communal facility arrangements. Some called for better public education,
others for enforcement and still others for financial incentives to make
improvements to the facilities. Finally,
suggestions were also directed at practical implementation, such as best
practice in signage.
2. Industrial, Commercial
and Institutional (IC&I)
This was the area most
often singled out as a structural weakness in the Discussion Paper. Many participants indicated that the City
could not formulate a coherent thirty year waste plan when it does not even
have data on the IC&I waste stream.
The reason for this situation is that it is a private sector
responsibility under a provincial jurisdiction, which means there is no requirement
for the data to be reported to the City.
As such, improved data availability was widely supported by
stakeholders. Perhaps due to the absence
of data on which to make an analysis, there was mixed opinion about whether the
City should or should not become an IC&I service provider. There was moderate support for the City being
“more involved” in IC&I, but no consensus on what that involvement would be
(beyond the initial step of getting access to the data). One proposal that was submitted was for the City
to adopt a by-law mandating the IC&I sector to increase its recycling
efforts.
Key
Observations Distilled from the Participant Comments:
·
The City has no firm
knowledge of the amount of materials handled by the IC&I sector, as
currently, there is no reporting of this data.
·
The City has no legal
way to access IC&I data. Provincial
cooperation is required to access reliable data.
·
Since there is limited
data on waste quantities or flow for the IC&I sector, there is no ability for
the City to monitor the targets outlined in the Discussion Paper. Private landfill capacity and usage is not
known.
·
Unless required by
law, private firms are not willing to release information, especially when it
reveals trade secrets to their competitors.
3. Public
Education
The single most
frequently mentioned and most widely supported improvement
to the Discussion Paper would be the need to include public education. Attitudes to recycling, to consumer demand
for reduced packaging, to the reuse of durable goods, and similar behaviours,
are seen as a question of societal values.
As such, information about the value of action and the consequences of
inaction were seen as necessary. In
addition, some form of leadership, of inducing behavioural change, is felt to
be key.
Various forms of
public awareness campaigns, citizen and stakeholder involvement, demonstration
of best practices and investing in visible innovation were mentioned frequently
and on virtually all topics. For some
participants, engaging the public includes reporting back to them on the Waste
Plan progress. Other participants noted
that in the national capital, the federal government has a leadership role to
play, as landlord and employer.
Key
Observations Distilled from the Participant Comments:
·
Awareness and
education should be integrated into all the Goal statements, whereas they are
scarcely present in the draft Discussion Paper.
·
Public education needs
to be on-going and requires both a long-term and a multi-faceted approach. Examples include informing new residents,
reaching parents through children at school, involving citizens and groups, as
well as landlords.
·
Local leadership is
important; it is more effective when supported by external leadership and
public information campaigns (ex. provincial, national).
·
Public education
should not be seen as an option, an extra or an add on; it needs to be included
in the core funding and as an integral part of the solution.
4. Other Issues
Among the other relatively significant
issues raised are the following: making it easy for the public to make the
right choice; city facilities need to set the example; contamination in the
waste stream; triple bottom line accounting; use of new technologies and
innovation; and provincial and federal regulations.
Key
Observations Distilled from the Participant Comments:
·
Making it easy for the
public to make the right choice: This point was
addressed from several angles, such as making appropriate receptacles available
for recycling, clear signage, financial assistance to landlords of
multi-residential buildings and public education. Conversely, not doing so perpetuates bad
habits and creates the impression that this is not a priority for broader
society. It relates to the issue of
public education, by making it easy for the public to find good information on
what to do, and to facilitate behavioural change.
·
City facilities need
to set the example: Public facilities
such as recreation centres and community centres should conform to the highest
standard. In so doing, they also
contribute to public education.
·
Contamination in the waste
stream: This is a more narrowly focused point
than the preceding ones, but it is a significant drag on the efficiency and
hence the cost and effectiveness of the recycling system. It is about the contamination of clean recycling
materials with organic wastes in particular.
It relates to the issues of public education, of multi-unit residential
collection, and of making it easy for the public to make the right choice.
·
Triple bottom line,
short and long-term affordability: There was general
agreement that the waste management system needs to be “affordable”. A number of participants noted that this should
include the consideration of long-term costs, not just short-term. Terms used include life cycle costing, full
cost accounting, and similar other references.
Some participants noted that a “triple bottom line” should be used;
i.e., in determining what is the true cost of action – or inaction – in
environmental and social terms, as well as the traditional financial
measurement.
·
New technologies and
innovation: Considering that the waste plan has a
thirty year time horizon, some participants were of the opinion that more
allowance should be made for new technologies and innovation.
·
Provincial and federal
regulations and enforcement: It is clear that the
rules – and their enforcement – by senior governments, are important to local
success in achieving the waste plan goals.
Most participants were of the opinion that the City should be involved
in efforts toward rule change and enforcement, some felt this was not the best
use of City time and resources, and others on principle would not include
strategies which are outside the City’s control in a municipal document.