City of Kingston Report to Environment, Infrastructure and Transportation Policies Committee Report Number EITP-19-009

To: Chair and Members of the Environment, Infrastructure and Transportation Policies Committee From: Peter Huigenbos, Acting Commissioner, Community Services Resource Staff: Paul MacLatchy, Environment Director, Real Estate & Environmental Initiatives Date of Meeting: August 6, 2019 Subject: Options for Single Use Plastics Reduction

Executive Summary:

This report provides recommendations in response to Council’s June 26, 2018 motion requesting information on the status of single use plastic (SUP) management within Kingston and options for local actions to reduce SUP waste and litter. Staff have examined SUP use and waste patterns, public opinions on the SUP issue, the impacts of SUP on the environment and municipal waste management, and what other jurisdictions are, or are planning to do, with respect to SUP reduction. A recommendation is provided for options to show municipal leadership through the removal of SUPs from the Grand Theatre and INVISTA Centre and through examination and potential amendment of municipal event policies and service agreements. Public engagement on a potential municipal by-law to limit the distribution of certain SUP items is also recommended as is continued support for successful SUP reducing programs such as Sustainable Kingston’s Summer Challenge Program.

Recommendation:

That the Environment, Infrastructure and Transportation Policies Committee recommend to Council:

That staff be directed to remove municipally supplied single use plastics from the Grand Theatre and INVISTA Centre operations by mid-2020, and other municipal facilities in subsequent years, and incorporate related costs into future operating and capital budgets; and

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That staff be directed to undertake a review of municipal policies that are known to generate the use of non-essential single use plastic products on municipal property, such as, but not limited to, the Special Events Policy, and review the service agreements the City has with organizations and partners that deliver services for opportunities to eliminate or reduce non- essential single use plastic products, and bring forward recommendations to Council or Committee for amendments as appropriate; and

That staff be directed to prepare for the possibility that Federal or Provincial controls on single use plastics may not occur and undertake a public engagement with residents, businesses and other key stakeholders on the matter of a potential municipal by-law or other methods to eliminate single use plastic retail shopping bags and polystyrene convenience food containers from distribution in Kingston; and

That staff report back to the Environment, Infrastructure and Transportation Policies Committee by mid-2020 on the results of the public engagement and a recommendation regarding the implementation of a potential by-law including the estimated financial impact to implement and enforce a by-law; and

That staff continue to support the work of Sustainable Kingston and others to enhance awareness of the single use plastic issue in the community and increase participation in related challenge programming to reduce and eliminate single use plastics; and

That staff will continue to support learning and awareness of the single use plastic issue and options for single use plastic reduction through the City’s website, communication channels, and through employee engagement and training.

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Authorizing Signatures:

Peter Huigenbos, Acting Commissioner, Community Services

Lanie Hurdle, Interim Chief Administrative Officer

Consultation with the following Members of the Corporate Management Team:

Jim Keech, President & CEO, Utilities Kingston Not required

Desirée Kennedy, Chief Financial Officer & City Treasurer

Sheila Kidd, Commissioner, Transportation & Public Works

Deanne Roberge, Acting Commissioner, Corporate Services Not required

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Options/Discussion:

Background - At their June 26, 2018 meeting, City Council approved a motion to request that staff assess the options for reducing litter and waste created by single-use plastics (SUPs) in Kingston and report back to the Environment, Infrastructure and Transportation Policies (EITP) Committee with recommendations as follows: Therefore Be it Resolved That Council direct staff to provide a report with recommendations in 2019 to the Environment, Infrastructure and Transportation Policies Committee meeting regarding the current status of single use plastics management in Kingston and options for local action to reduce litter and waste created by the use and disposal of single use plastics in Kingston.

SUPs are plastic items that are typically used only once before being discarded. SUP products include things like straws, cutlery, cups, bags, product packaging and containers that are often used by grocery, food and beverage retailers. These products are offered for customer convenience while also lowering costs by moving responsibility for management of used container materials from industry to the consumer. Certain forms of SUPs are particularly problematic from an environmental sustainability perspective because they are inherently designed to be discarded after use, with limited reuse or recyclability options. Additionally, many types of SUPs (cigarette butts, plastic straws, stir sticks, party cups, etc.) end up as litter due to their size and form of use. Once in the natural environment, SUPs are unsightly, expensive to remove, and pose a physical and chemical threat to wildlife and our own food supply. This report provides an overview of the single use plastic issue within Kingston, examines how other governments are addressing the issue, and provides options and recommendations on actions that demonstrate leadership in the reduction of SUPs at the local level.

The Environmental Problem with Single Use Plastics - The negative environmental impacts associated with SUPs have been widely reported, including the unsightliness of plastic litter on our roads, parks, fields and waterfronts. Additionally, each piece of plastic produced is derived from petroleum, which is energy intensive and creates unwanted greenhouse gas emissions during raw material extraction, refining, manufacturing and transportation. While this is the case for many consumer products, the short lifespan of single use items exasperates the problem as items are created, used, discarded to waste and then replaced with new SUPs in a non-virtuous cycle. The carbon footprint of an item can be reduced over its useful lifespan and the impacts to the natural environment by replacing single use plastics with paper-based or compostable plastic items, or with more durable materials that can be reused, or which are more cost- effective to recycle. In addition to the problems of litter, energy use and emissions, a further impact of SUPs once they are discarded is that many enter our oceans, lakes and rivers and can harm wildlife through entanglement or ingestion. Further, as plastics in the environment age they mechanically disintegrate into smaller and smaller pieces, making them ingestible by smaller and smaller organisms, which allows plastic to infiltrate further into the food chain and pollute our own food sources. Eventually, plastics are broken into such small fragments that they become virtually

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Page 5 of 14 impossible to remove from the environment and continue to accumulate in the ecosystem. In fact, it was recently reported1 that by 2050, the weight of plastic wastes within our oceans may equal that of its fish.

The Recycling Problem with SUPs - SUPs pose challenges to municipal recycling programs, including Kingston’s blue and grey box recycling program. The small size and mixed plastic nature of many SUPs means that they must be discarded into the garbage stream. In addition, small and light SUPs that are accepted in the recycling program are susceptible to becoming litter on windy days, or lost into the garbage stream as they move through recycling sorting equipment that is not well equipped to handle such small and light weighted items. Certain types of SUPs (especially plastic film for shopping and produce bags, and Styrofoam) are efficiently collected by Kingston’s residential recycling program. However, there is a financial burden as these materials generate very little revenue and are costly to collect and sort at the City’s recycling plant. Plastic film and Styrofoam have limited end markets because of the level of effort and energy required to re-process these kinds of plastics into new products. Also, given the nature of their typical uses, usually light weight and used to carry food, many end up collected as litter and/or too soiled for recycling and disposed of in landfills.

In late 2017, China stopped accepting recyclables and other wastes from North America. This significantly reduced the availability of end markets for plastic films (i.e. shopping bags, plastic wrap over water bottles). The North American processing facilities that Kingston relies on to take our plastic film are overwhelmed with the amount that is generated by consumers, and it has become difficult to find an end market. Recently there has been no revenue generated when the City’s Solid Waste Services Department ships plastic film to an end market. On several occasions, the City has given away the plastic film for free, with the shipping paid for by the end market. It should be noted that the City has never been able to generate enough revenue from the sale of plastic film to recover the costs of collection and processing for end markets; these recent trends have increased the financial losses further.

Similarly, the market for Styrofoam has been weak since the start of the blue box program in Ontario in the late 1980s. Despite this weakness, the City has collected Styrofoam in the blue box for several years, but in 2016 coloured Styrofoam, often used in meat and produce trays, was removed as an acceptable item in order to comply with end market demands. The City has been able to continue to process white Styrofoam at the City’s facility to meet the quality standards of the end markets in North America, but seldom has revenue been realised. For the past two years, the City has been fortunate to find an end market in Indiana, USA, which is willing to accept the Styrofoam. The City pays for the shipping fees but does not receive any revenue from the sale of these materials.

1 Washington Post, January 20, 2016

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SUPs in Kingston - In response to Council’s motion regarding the SUP issue, the scope of the 2018 Kingston Curbside Waste Audit was amended to include a specific category for single use plastics within the waste and recycling streams sampled. For the purpose of the audit, single use plastics were defined as the following types of material:

 Beverage and party cups  Cup lids  Coffee/hot beverage stoppers  Straws  Stir sticks  Cutlery  Take-out food containers  Food wrap  Shopping bags  Produce bags

The 2018 waste audit showed that approximately 60% of single use plastics consist of plastic film (wrap and bags) and that the Kingston households in the sample generated an estimated 8.1 kg per household per year of single use plastics. The audit showed that approximately 60% of the discarded SUPs were placed in the garbage stream for landfill disposal with the remainder placed out for recycling. The results of the audit indicate that approximately 1.2% by weight of the overall waste stream is comprised of single use plastics.

The category for single use plastics in the audit did not include plastic water or beverage bottles as recycling is readily available for this particular item at the household level and often within commercial and public spaces. However, despite these items being recyclable, the energy used to produce and process them as recycling is considerable and should still be a target for the City to reduce.

There is no data available to estimate the amount of single use plastic being generated by the industrial, commercial and institutional sectors although it is well know that SUPs are prevalent within certain specialized operations such as medicine (for infection control and sterility) and restaurants (to accommodate delivery/take out and reducing cleaning effort). It is also important to recognize that many local businesses and organizations are already leading by example. Early adopters of plastic reduction like Black Dog Hospitality, The Screening Room, A&W Restaurants, the LCBO, the Boho & Hobo Store and many others either have taken steps to replace SUPs with other types of materials or provide products that can be reused.

Due to their light weight, small size and frequency of use away from the home, single-use plastics often never make it into any waste collection system – ending up as litter. A one-time observation of litter at several Kingston waterfront areas in 2018 confirmed the presence of single-use plastics and showed a prevalence of cigarette butts (the filter material is a plastic) and plastic fragments (derived from broken down plastic containers). Single-use plastics placed

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Page 7 of 14 at the curb for recycling can become litter when blown from open bins, or while boxes are moved from the curb to truck, or while being hoisted into the truck from the side containment hopper.

Municipal, Provincial and Federal Government Approaches - Municipalities across Canada and some provinces have implemented programs to reduce the prevalence of single-use plastics. Many municipalities in British Columbia, Alberta, Manitoba and Quebec currently have some form of ban on disposable plastic bags. Controls on plastic bags and other forms of single-use plastics are also being considered by Toronto and Edmonton. Prince Edward Island and Newfoundland and Labrador have enacted province-wide bans on the free distribution of plastic shopping bags and require retailers to charge a minimum fee per bag. Vancouver is putting in place strong controls on many forms of single-use plastic including straws, take-out food containers, cups, cutlery and bags. Most municipal controls in place are bans on the free distribution of plastic shopping bags. They typically specify a film thickness below which bags are subject to the ban, and most require a minimum fee to be charged for shopping bags. Many provide exceptions for specialty uses where alternatives are more difficult for consumers and retailers to use.

The government of Canada has indicated its intention to take measures that will reduce single- use plastics. In 2018, Canada became one of five G7 signatories to the Ocean Plastics Charter. Canada has further committed to reduce SUPs by 75% by 2030 within its own federal operations.

More recently, the federal government announced a ban on harmful single-use plastics as early as 2021 under the Canadian Environmental Protection Act, as well as taking other steps to reduce SUP waste. This ban would also ensure companies, which manufacture plastic products or sell items with SUP packaging, are responsible for managing the collection and recycling of this waste. The Federal government has also announced more specialized actions including working with industry to prevent and retrieve abandoned, lost or discarded fishing gear, which is a major contributor to plastic debris in the ocean.

A summary of SUP reduction controls from other jurisdictions is provided as Exhibit A.

Ontario - In March 2019, the province released a discussion paper on reducing litter and waste which included recognition of the need to reduce plastic waste. Ontario invited input from citizens and business owners on the discussion paper with comments accepted through the Ontario Environmental Registry until April 20, 2019. The discussion paper proposed action in the following four areas:

 Reducing and diverting food and organic waste from households and businesses.  Reducing plastic waste.  Reducing litter in our neighbourhoods.  Increasing opportunities for the people of Ontario to participate in waste reduction efforts.

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With respect to plastics reduction, the discussion paper contemplates the possibility of measures that include deposit return systems for plastic beverage containers, and bans or other restrictions on specific types of single-use plastics. With the province announcing their intention to implement measures to reduce plastic waste, Ontario municipalities will need to consider how best to proceed with local level programs.

Bill 82 (Single Use Plastics Ban Act)2, a private members bill introduced by Kingston’s MPP Ian Arthur, passed first reading on March 18, 2019. The bill proposes to amend the Resource Recovery and Circular Economy Act (2016) by requiring the Minister of the Environment, Conservation and Parks to make amendments to current strategies and include a plan that identifies measurable reduction targets and sets out timelines for the immediate reduction and eventual elimination of the distribution and supply of SUPs. More specifically, the bill calls for the immediate elimination of plastic straws and drink stirrers; expanded polystyrene foam food and beverage containers; plastic bags; items made from oxo-degradable or oxo-fragmentable plastics (conventional plastic materials with artificial additives that do not biodegrade); disposable coffee cups; and plastic water bottles intended for single-use.

In Bayfield Ontario, a village on the eastern shore of Lake Huron with a population just over 1,100, there is a committee of 12 community members, named Blue Bayfield, that have successfully led the village’s transition to be the first Plastic-Free Community (PFC) in North America. The implementation of their strategy has included installing bottle refill stations across the village, collaboration with restaurants and retailers to eliminate plastic bottles and promoting sustainable hydration at the beach with a “hydration tricycle” equipped with signage and compostable cups.

The City of Peterborough is also working to establish a community working group similar to Kingston’s own Working Group on Climate Action, aimed at developing options for encouraging the reduction of SUP use in the community. In Kingston, Sustainable Kingston is already doing this type of programming through its Plastics Free Summer Challenge discussed later in this report.

Kingston Opinions - From March 22, 2019 to April 29, 2019, the City of Kingston solicited opinions through the City’s Get Involved online public engagement website that saw the City’s Single Use Plastics project webpage receive 1,700 visits, with 124 ideas submitted to answer the question “How will you reduce your SUP usage?” The submitted ideas reflected a variety of approaches associated with action by:

 City of Kingston;  Individuals and consumers;  Private businesses; and  Unique and innovative ideas.

2 Ontario Ministry of the Environment, Conservation and Parks, Bill 82, Single Use Plastics Ban, March 18, 2019.

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Among the most common actionable ideas put forward by respondents were:

 Banning or regulating single-use plastics at the municipal, provincial or federal level;  Increasing the use of re-usable products (water bottles, bags, straws and other plastics);  Cooking food at home using locally sourced produce was also prevalent; and  Deposit return systems for bottles.

A summary of the City’s Get Involved campaign on Single Use Plastics is provided as Exhibit B.

National Opinions - A national poll conducted by Nanos Research in July, 20193 on behalf of The Globe and Mail asked the questions:

1. Do you support or oppose a total ban on single-use plastics such as cutlery and straws? 2. Would you be willing to pay or not pay 1%, 2% or 5% more for everyday items such as coffee cups if they were more environmentally sustainable?

Results of the poll indicated approximately 80% of Canadians and Ontarians support or somewhat support a plastics reducing ban at the national level and approximately 75% of Canadians and Ontarians would be willing to pay between 1% and 5% more for single use plastic substitute products.

Public Calls for Action - In April 2019, students from Elginburg and District Public School delivered a petition to Council with 1,500 signatures calling for the City to ban the manufacturing and commercial use of plastic bags and coloured polystyrene. The petition also called for an increased demonstration of leadership at the community level to eliminate SUPs. Staff have taken this petition into consideration in developing the recommendations of this report, most specifically in the recommendation for staff to report back to the Committee on the potential implementation of a municipal ban on plastic retail shopping bags and polystyrene convenience food containers.

Plastics Free Summer Challenge - Sustainable Kingston’s first annual Plastics Free Summer Challenge was held in Kingston from June 26 - August 3, 2018. The event challenged Kingston citizens and businesses to eliminate or reduce all single-use plastic items from the workplace for the entire summer. The aim of the program was to encourage people to become more conscious about single-use plastics and to begin adopting practices that support reduction, reuse and recycling. Promotion of the Challenge was done via messaging on the Sustainable Kingston (SK) website, social media posts, physical signage, and staff presence at events and email. The City’s Communications & Customer Experience Department supported the SK program through the City’s website and social media channels. Program performance from 2018 included:

3 Nanos Research, RDD dual frame hybrid telephone and online random survey, June 29th to July 4th, 2019, n=1000, accurate ±3.1 percentage points plus or minus, 19 times out of 20.

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 278 participants  Registered businesses included SK, the Boho and Hobo store, Queen's Alumni Relations & Annual Giving - Volunteer Relations & Reunions Unit, YMCA of Kingston, and LUSH;  113 page views on SK event page (people can register more than one person when filling the online form out);  Facebook reach: 3,515 people; and  Award of one challenge prize (zero waste starter kit) donated by a local business (Boho and Hobo).

The challenge is back for its second year, running from July 4th to September 4, 2019. This year aims to motivate not only businesses, but also individuals and groups to choose compostable, recyclable and re-usable containers, such as water bottles, cutlery, etc. in order to reduce SUPs across the community. The campaign advocates for small changes in people’s behavior so that a lasting change can be made.

So far this year (2019) there has been a significant increase in participation by the community:

 500 participants  206 completed registration forms  13 organizations/businesses registered

Options for Additional Municipal Action to Reduce SUPs - Staff have examined options available for SUP reduction and the trajectories of potential regulation at the federal and provincial levels and recommend an approach that contains the following areas of activity and action:

1. Demonstrate Municipal Leadership in SUPs Reduction a. Eliminate SUPs from the Grand Theatre and INVISTA Centre by Q3, 2020. The removal of municipally supplied SUPs from key municipal facilities will publicly demonstrate the importance the City place’s on environmental stewardship and the methods available to anyone considering similar steps. Staff have identified the Grand Theatre and the INVISTA Centre as two facilities where the elimination of municipally supplied SUPs is likely feasible by mid-2020 and where such targets will have the greatest impact.

Staff have examined how the National Arts Centre in Ottawa recently enacted a strategy for SUPs elimination and has developed and identified similar opportunities for replacement of SUP products with third-party certified compostable items that can be accepted by the organic waste composting facility run by Tomlinson Organics on Joyceville Road. SUP items that staff expect to replace include cups, stir sticks, straws, cutlery, food plates and trays. Beverages currently provided in plastic bottles within these facilities may be able to be replaced entirely or in part through the provision of fountain drinks at concessions or by switching to aluminum, carton or glass contained items within vending machines.

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Tomlinson’s organic processing facility is an important component of Kingston’s waste diversion system and staff will work with Tomlinson to make sure that materials certified as compostable are compatible with their current process. This is especially important as more organizations and households consider these products as a method to reduce their SUP waste and as the Province considers how to divert more organic waste away from landfill.

The use of several of these SUP replacement items will require the establishment of an organics collection system within each facility which will provide the added benefit of diverting organic food and paper towel waste from landfill disposal. Staff expect there to be some increase in cost to purchase items and services such as replacement consumable products, equipment for organics collection, signage, and the third-party collection and management of organics. Staff intend to support the adoption of these new systems within City facilities through the potential introduction of volunteer ‘waste ambassadors’ as a pilot project during special events and high use periods.

While staff are confident that SUPs can be removed from municipal operations at these facilities, it will be an ongoing challenge to discourage facility users from bringing SUPs into the facility. Detailed SUP reduction strategies will be developed for each facility and any significant resourcing requirements will be included within 2020 capital and operating budget submissions.

Once SUP reduction programs have been developed and implemented for the INVISTA Centre and the Grand Theatre, other municipal facilities (Leon’s Centre, Artillery Park, etc.) could be included within the program.

b. Remove SUPs from events and for sale at municipal facilities: The City not only provides numerous events where SUP products are used but also provides facilities (roads, parks and buildings) where others host events and provide services on behalf of the City. Staff recommend a review of municipal policies that are known to generate the use of non- essential SUP products on municipal property, such as, but not limited to, the Special Events Policy, and review the service agreements the City has with organizations and partners that deliver services to identify opportunities to remove or eliminate SUP products. Policies or service agreements identified with the highest potentials for SUP reduction will be assessed for potential amendments with recommendations brought back as necessary to Council or Committee.

2. Control Local Distribution of SUP Products a. A SUP Control By-Law: While it is likely that the federal government, or possibly the provincial government, may bring in legal restrictions on the distribution of SUP products, there is no guarantee of this. The City of Kingston can manage this uncertainty by taking steps to prepare for a municipally led control on certain SUP products. Staff recommend that the City undertake a public and stakeholder engagement exercise. This will help determine levels of support for restricting plastic retail shopping bags and

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polystyrene convenience food containers from retail distribution in Kingston and to receive information from affected stakeholders on how to implement such restrictions in order to ease the conversion for local businesses and support compliance. The program would also be used to prepare Kingstonians for the potential regulations being brought forward at the federal level. In order to receive meaningful feedback, staff will need to develop a draft terms of reference for a potential SUP control by-law before initiating consultations.

b. Support existing successful programs: Staff recommends continuing to support the efforts of Sustainable Kingston in raising awareness of the importance of SUP elimination in our community and continuing to solicit participation from local business. This would be a continuation and possible expansion of SK’s Plastics Free Summer Challenge Program and would continue support for recognition of individuals and businesses, and support for business to business challenges.

3. Support Learning and Recognize SUP Reduction Successes a. Awareness of the SUP issue and especially of the options available to reduce SUP use is critical to generating the kind of individual action that the community will need to make significant reductions in SUP purchase and use. Information will continue to be provided by the City and Sustainable Kingston about the local environmental, climate and financial impacts associated with SUP use and disposal, and recognition of programs, businesses and organizations that have taken measures to reduce SUP use. Information and recognition would be provided via the City’s website as well as within social media channels.

b. Additionally, information will be provided to City employees via online training, incentives and other means to raise awareness of the SUP reduction objectives of the City and how employees can reduce SUPs during their workday. A minor amount of budget will be required to implement an internal program in 2020 and would be included within 2020 operating budget submissions if existing budget cannot be reallocated.

Existing Policy/By-Law:

By-Law Number 2014-5 “Solid Waste Management By-Law” is the existing by-law that identifies the level of service and details regarding the use of waste and waste diversion programs and facilities.

In 2008, the matter of banning plastic grocery bags was brought before the Environment, Infrastructure and Transportation Policies Committee (Report Number EITP 08-011) and a recommendation to not pursue a ban and to support voluntary reduction initiatives was carried.

In 2009, (Report Number EITP 09-014) subject to certain operational requirements, City Council endorsed a policy restricting the provision of single use bottled water within City-run facilities.

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Notice Provisions:

Not applicable

Accessibility Considerations:

Single use plastics are often used in products that provide assistance to those with disabilities. While most single use plastic products are items of convenience, consideration must be included to not restrict access to products that may be required for those who require them for daily living.

Financial Considerations:

There will be costs to achieve SUP reduction goals for the Grand Theatre and INVISTA Centre. Staff estimate that Grand Theatre operating costs associated with the purchase of SUP replacing consumable products (cups, straws, cutlery, etc.) will be approximately $5,000 per year. Operational cost at the INVISTA Centre are expected to be less as most SUP consumables targeted for replacement will be from the concession that is operated by a private vendor. Costs for explanatory signage supporting the collection of organic waste are also expected at both facilities. Capital costs of approximately $10,000 are required for the purchase of organic resource receptacles and associated signage within the Grand Theatre and the INVISTA Centre.

Additional impacts on operating revenues and costs will be refined as more detailed SUP reduction plans are developed. Costs for Grand Theatre and INVISTA Centre SUP reduction activity in 2019 will be borne by existing budgets as possible, and added to future operating and capital budget submissions beginning in 2020.

Costs to implement a meaningful stakeholder consultation on the matter of a potential SUP control by-law are expected to be in the order of $10,000. Coverage of these costs will be provided by existing approved budgets.

Contacts:

Paul MacLatchy, Environment Director 613-546-4291 extension 1226

Heather Roberts, Director, Solid Waste Services 613-546-4291 extension 2701

Other City of Kingston Staff Consulted:

Luke Follwell, Director, Recreation & Leisure Services

Colin Wiginton, Cultural Director

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Exhibits Attached:

Exhibit A Single-Use Plastic Reduction Initiatives in Other Jurisdictions

Exhibit B Get Involved Report – Reducing SUPs

86 Exhibit A Research Report Reducing Single-Use Plastics

1.0 Research Status

• Newfoundland & Labrador – was not able to make contact; research came from web resources. • P.E.I. – spoke to John Hughes, Special Projects Director, Environment Department • City of Montreal – Sylvie Mayer, Planning Advisor, Environmental Services • City of Victoria – Marika Smith, Sustainable Waste Management Specialist, Engineering & Public Works • City of Halifax – spoke to Shannon Betts, Policy Analyst, Solid Waste Resources • City of Vancouver – was not able to make contact; research came from extensive web resources. • City of Calgary – all information has been pulled from a report released this week on a single-use plastics reduction strategy.

2.0 Jurisdictional Research 2.1 Which materials/products have been banned/controlled?

Municipality Banned/Controlled Products Newfoundland Retail plastic bags. PEI Retail plastic bags. • Retail plastic bags as of 2018 o Conventional plastic shopping bags (a thickness of less than 50 microns) Montreal o Oxo-degradable, oxo-fragmentable, biodegradable shopping bags, whatever their thickness]. • Seeking to ban single-use plastic items as of 2020 (straws, Styrofoam cups, disposable cutlery and grocery-store food packaging for meat, fish and vegetables). • Retail plastic bags (Checkout Bag Bylaw) – businesses are only permitted to charge $0.15 for a paper bag; $1 for a reusable bag (going up to $0.25 for paper bags and $2 for reusable bags) Victoria

87 Exhibit A From Marika Smith: • Next 3-5 years: will be looking into other single-use plastics • Chose alternatives because they are better for litter and are less harmful when leaking into the environment, even though they are more resource-intensive to produce • Initially proposed a comprehensive single-use plastic reduction strategy, which included a voluntary reduction program targeting the consumption of plastic bags, utensils, cups, containers, straws and other waste items. Halifax • However, staff wrote a report to Environment committee, which rejected this voluntary approach and instead directed staff to create a by-law banning plastic bags o By-law coming in December, but it hasn’t been voted on yet. • Plastic and paper shopping bags • Polystyrene foam cups and take-out containers Vancouver • Disposable hot and cold drink cups • Take-out food containers • Disposable straws and utensils Suggested items from their May 2019 report: • Plastic bags • Plastic stir sticks Calgary • Plastic disposable straws • Plastic utensils • Take-out containers • Disposable cups (hot and cold beverage)

2.2 What was the process/timeline for consultation with the public and affected stakeholders?

Municipality Public & Stakeholder Consultation Process/Timeline Online survey. Results can be found here. 87% were in favour of the ban. Industry stakeholder consultations Newfoundland focused on how long businesses and the industry will need to adjust. Implemented provincially. The Plastic Bags Reduction Act was a private members bill – it did not come from PEI Department of the Environment. There was minimal consultation with industry and the public. They just did some internal consultations, and there was modest consultation with the Retail Council of Canada. 88 Exhibit A

After the Act was passed, the implementation of the Act was forwarded to the Department of the Environment, who consulted with restaurant industry, the chamber of commerce, Retail Council of Canada, etc. and major players in tourism industry. • Single-use plastics ban – consultations to occur in 2019 and 2020. By-law will be presented in the Spring of 2020.

From Sylvie Mayer: • In 2015, Montréal mandated its Standing committee on water, the environment, sustainable development and major parks to hold a public consultation to study the implications and impacts of banning single-use shopping bags in retail stores over its territory. The purposes of the consultation were to hear the opinion of citizens and stakeholders concerned, and to analyze the impacts of banning those types of bags. The Montreal briefs from the citizens and stakeholders concerned allowed the Standing Committee to conclude with an effective and clear decision. In December 2015, the committee issued its recommendations in favour of adopting a by-law to ban certain types of shopping bags. The Executive Committee endorsed this recommendation and the City Council took note of it. • You can find information about the public consultation (in French). On August 23, 2016, the city adopted the By-law prohibiting the distribution of certain types of shopping bags in retail stores (16-051). Montréal is thus joining a global movement to take action to protect the environment. The ban for merchants offering light plastic bags to consumers took effect on January 1, 2018. A grace period for compliance was granted through June 5, 2018. Feedback was incorporated into the final bylaw which was adopted by Council on January 11, 2018. Bag pricing changes, a list of exemptions and a phased-in approach to enforcement were some of the key changes resulting from this engagement. In February, a focus group was held with local businesses. Feedback from this session informed the development of the Retail Toolkit.

Retailers who support a bag ban stated these key views: Victoria • Many customers were inspired by the shop’s sustainable bag practices • Few customers expressed negative views when surprised to find no plastic bag options at the checkout counter • A voluntary bag ban created support for more sustainable business practice.

89 Exhibit A Advocates from the community and the region offer the following key views: • A ban on single-use plastic bags is required now to help shift community and business quickly to a more sustainable future; • Education and awareness are key requirements to ensure a smooth transition, and they are willing to support City engagement efforts; • Unintended consequences can be avoided if business and community work hard to adopt this new habit of using reusable bags and by placing an adequate fee on paper bags.

From Marika Smith: • Intensive 6-month period in 2017  12-13 targeted stakeholder group meetings (food services, retail, etc.) • 1-2 open houses and town halls • Major concerns from food industry have been detailed here. Marika Smith cautioned us to consider these objections carefully. Engagement has been conducted in meetings with the retail and restaurant association sectors in the development of this report. Multi-stakeholder and community engagement has not taken place. • See Appendix B for the results of a City of Halifax survey distributed to industry stakeholders. Halifax

Next consultation will be with other municipalities within the province (to form a common by-law template to streamline by-law policies around plastic bag bans) Vancouver Major workshops with ~100 industry stakeholders and the public. Stakeholders: • Citizens • Food establishments • Retailers • Health institutions • Specialized care facilities Calgary Q3-Q4 2019: • Conduct engagement and research • Consult with select jurisdictions • Consult with City business units and other orders of government

90 Exhibit A Q1 2020: • Prepare draft single-use items reduction strategy

Q2 2020: • Obtain stakeholder feedback and draft strategy

Q3 2020: • Prepare and present final single-use items reduction strategy to Council

2.3 What is the implementation plan for monitoring and enforcing these regulations, as well as for increasing public and stakeholder awareness to ensure compliance?

Municipality Monitoring & Enforcement Increasing Awareness/Education

Newfoundland [Could not obtain information.] [Could not obtain information.]

A person who • Consumer Q&A Sheet (a) contravenes a provision of this Act; • Business Fact Sheet (b) consents to, allows, or permits an act or thing to be done contrary to this Act; or (c) neglects or refrains from doing anything required to be Awareness is high. In 60 days leading up to July done by a provision of this Act, is guilty of an offence and 2019, province has facilitated public education liable on summary conviction to a fine sessions, attended home shows, and has taken out (d) in the case of a corporation, of not less than $100 and not ads. PEI more than $10,000; and (e) in the case of an individual, of not less than $50 and not more than $500. Multiple and continuing contraventions (2) Each occurrence of a contravention of a provision of this Act, and each day or part of a day on which a contravention continues, constitutes a separate offence.

Act was passed in June 2018. Doesn’t come into force until

91 Exhibit A

Municipality Monitoring & Enforcement Increasing Awareness/Education July 2019. Once it comes into force, there is a six-month transition period in which the province will work with businesses to use up remaining supply of plastic bags, train their staff, source alternatives such as paper bags. 18-month period between passing of Act and final phase of implementation. Plastic Bags Ban: From Sylvie Mayer: • Any municipal employee responsible for the application • Montréal has developed a communication of this by-law. plan in various areas. • For an individual, the first offence will result in a fine of • For the community (customers and retailers) $200-$1000; $300-$2000 for subsequent offences o A web page dedicated • For a corporate, the first offence will result in a fine of o Posts on social networks $400-2,000; $500-$4,000 for subsequent offences o Publicity on metro network • Montréal has some 11,000 retail stores. From Sylvie Mayer: Some of them are members of Sociétés de • The boroughs enforce the law (Montreal is made up of développement commercial. But the majority Montreal 19 boroughs). When a borough receives a complaint are independent. about a non-compliance, a municipal inspector is o We send information by email to the mandated to visit the retail store and measure the Sociétés de développement thickness of the bags. commercial in order to inform their members. • Between January and May 2018, a green brigade met retailers to inform them of the new regulation and give them an awareness toolkit (poster, stickers, pamphlets, a copy of the By-Law). One-year “phased-in approach” to enforcement (will clarify Communications and Management Strategy over phone) • Build consumer and business education and awareness FIRST… Victoria From Marika Smith: o Via Partnering • Still in first year of review o Using best-practice and lessons • Trying to keep it as an education-based by-law learned from other municipalities; 92 Exhibit A

Municipality Monitoring & Enforcement Increasing Awareness/Education • They have the authority to give out fines but they’ve o Focus on tourism as well been using a friendly ‘check-in’ approach • Define ideal sustainable reusable bag design • Checks in to 100s of random establishments to see if specifications to support retailer procurement they’re complying decisions • 98% of establishments are compliant • Advocate up and across • Will be shifting to more of a complaint based approach • Partner and collaborate to address the City’s with by-law, but took a more collaborative approach single-use materials waste issues with businesses at the start • Avoid excessive cotton bag adoption though • Also ensuring that all bags are reaching regulated awareness /education information standards • Avoid retailer bag surplus waste / sunk costs • Only get a fine right now on the 3rd strike through proper planning, recycling and • The by-law has been very well-received and is going awareness very smoothly • Review, improve and report. • Improved signage and education The impact of regulatory approaches requires an elevated • Initiate an education campaign for residents level of enforcement, compliance monitoring, reporting and and the ICI sector focused on the reduction administration by local governments as well as for of single-use plastics businesses. • Already have a strong education and communications program In talking to other jurisdictions, a complaint-driven approach • Halifax Staff goes to businesses, community, was most used for compliance matters. Many jurisdictions schools, etc. issued extensive outreach and education prior to the • Staff provides outreach to community groups implementation of bans. Halifax has found through • Staff will be formulating an expansive jurisdictional research that enforcement wasn’t an issue communications plan because of the preliminary education and awareness campaigns. • Developing a public education campaign via • By-law requirements for straws, plastic and paper social media to raise awareness as part of a Vancouver shopping bags, disposable cups and utensils to be wider initiative to promote behaviour change presented to Council in November. related to bringing reusable bags, cups, utensils and other items.

93 Exhibit A

Municipality Monitoring & Enforcement Increasing Awareness/Education • Provide educational materials to stakeholders • Education is the most commonly supported action by stakeholders and the public

From Marika Smith: • They also have single-use plastic working group. They are doing quarterly conference calls, and we can hop on those calls. • N/A. Intent to develop a strategy was just revealed. • N/A. Intent to develop a strategy was just Calgary revealed.

2.4 Which budgetary and other resources have been deployed to implement these bans/controls?

Municipality Financial & Other Resources Newfoundland [Could not obtain information.] Implementation budget of $100,000 to communicate to industry and the public. It also helps transition the sourcing PEI of the alternatives to non-single-use plastic bags. From Sylvie Mayer: Montreal • Awareness toolkit: about $15,000 • Green brigade: about $55,000 ($4 per retail store) • No budget figure Victoria • Spend about $25,000 on community engagement (e.g. printing those business toolkits) • They were advised that they could carry out the implementation for a lot less The financial implications of a by-law to prohibit the use of plastic bags is unknown at this time but will be Halifax determined during the development of the regulatory framework (by-law). However, the City’s (now defunct) voluntary waste reduction strategy was estimated to cost $200,000 annually. Financial and resource requirements will be developed for consideration by City Council as part of the annual Vancouver budgeting process.

94 Exhibit A The citizen research, engagement and communications required for the project is estimated to cost $250,000 to Calgary $300,000, including staff time.

95 Exhibit A 3.0 Review of Alternatives to Plastic Bags

3.1 Canadian Plastics Industry Association • “Given that scientific and economic studies around the world demonstrate that in most cases plastic packaging, plastic shopping bags and some single-use plastics are a better environmental choice when managed properly, bans are not the answer but rather managing them at their end of life is.” • Alternatives can have up to 4x the impact • Claim that 93% of plastic bags are reused and recycled

3.2 Stanford Magazine, Paper, Plastic or Reusable?, September 2017. • Paper bags are biodegradable and easy to recycle or compost. But producing them in quantity requires a lot of water, fuel and cut-down trees. • Cloth bags are typically made from cotton, a particularly pesticide-intensive and water-guzzling crop. • The standard grocery store plastic bag is made from high-density polyethylene (HDPE). There is no way around the fact that plastic is derived from petroleum. Petroleum is a finite resource, and as it becomes increasingly limited, obtaining it becomes increasingly damaging to the environment.

“Reputation aside, single-use plastic bags have the smallest carbon footprint, at least in terms of single-bag production. But that’s only the beginning. How we use and dispose of bags matters even more.”

• Two of the most important considerations for the eco footprint of a bag (or any other item) are whether we reuse it and, if so, how many times. o An exhaustive Environment Agency (U.K.) report from 2011 found that paper bags must be reused at least three times to negate their higher climate-warming potential (compared with that of plastic bags). o A cotton bag would have to be reused 131 times to break even with a plastic bag, in terms of the climate impact of producing each bag. o Single-use plastic bags are also often reused. • Which bag is the most “sustainable”? o It really depends on how many times you’re going to use it and, especially with plastic, how carefully you dispose of it once its useful life is over. Use the bags that you’ll reuse the most.

The BBC also corroborates this information: https://www.bbc.com/news/business-47027792

96 Exhibit A

• Paper bags lack durability and are not as easily reusable. • However, paper is more widely recyclable, while plastic bags can take between 400 and 1,000 years to decompose.

The bottom line: producing plastic bags results in a lower carbon footprint than other options, while alternatives, such as paper bags, are easier to recycle/compost. Plastic bags do not cause too much harm sitting in a landfill (according to the NYT), but they can take centuries to decompose and can significantly contribute to increases in litter.

97 Exhibit A Appendix A: City of Halifax’s Jurisdictional Review of Regulatory Approaches to Single-Use Plastics

Jurisdiction Program Description Program Notes • Ban on traditional plastic shopping bags (less than 50 microns • Promotes use of thicker thick), oxo-degradable, oxo-fragmentable or biodegradable plastic bags to get over plastic bags. threshold. • Exemptions for restaurants and bags used for hygienic • May not necessarily reduce Montreal purposes, dry-cleaning or bags that contain advertising overall plastic consumption. material (i.e. door to door). • Encourage voluntary charges for other types of bags that will be offered in stores as an alternative. • Regulation initiated to encourage behaviour change • Ban on single-use bags that are made of less than 2.25 mils • Intent of the regulations was (.571 millimeter) thick polyethylene; and/or pulp or paper to reduce litter. There has • Includes, but is not limited to: been a visible improvement o a door hanger bag designed to hold flyers, coupons or since the regulations were other advertisements and intended to be left on the implemented. doors of homes; • Implementation required one Wood Buffalo, AB a decorative paper or plastic gift bag where such bag is dedicated FTE in Fort (Fort McMurray) o being used to transport goods; McMurray over one to two o a biodegradable bag composed of, in whole or part, years. Population 62,000. biodegradable plastic, oxo-biodegradable plastic, PLA- • Very few retailers chose to starch, polylactide, or any other plastic resin composite use thicker bags. that is intended to degrade at a faster rate than non- biodegradable plastic film. Recycling of plastic bags managed through drop off depots, or return

to retail as part of the provincial EPR program. Plastic bags not

included in curbside collection programs. Recycle BC and the RCC British Columbia BC has EPR developed a resource guide to help retailers reduce plastic waste

through best practices. Recycle BC launched a #BringYourOwnBag

campaign. • Single-use Item Reduction Strategy approved by council in • Gives businesses the Vancouver, BC May 2018, following an in-depth two-year consultation process. opportunity to be innovative (DELAYED) Forms part of the city’s long-term Zero Waste 2040 strategic and develop a method that

98 Exhibit A vision. The city will prohibit businesses from serving prepared works for their type and size food in polystyrene foam cups and take-out containers of business. effective November 1, 2019. Plastic drinking straws will be • Businesses will be required to prohibited and single-use utensils may only be offered on track and report the number request. City staff will report back to Council in December 2018 of bags they distribute, with recommendations on accommodating accessibility and regardless of the option they inclusion needs. choose. • Businesses will be required to submit a plan on how they will reduce plastic and paper single-use bags in their operations. This can be through not offering bags, charging a fee (retained by the business) or another approved approach (i.e. discounts or loyalty program for using reusable). • The Vancouver strategy does not impose an immediate ban on plastic bags, however the city will further evaluate the need to specify the amount of fees that businesses must charge, or introduce a ban on plastic and paper bags in 2021-2025 if reductions are not achieved. Hospitals and community care facilities are exempt from the strategy. • Ban on single-use plastic checkout bags. • Fee on paper bags limits their • Businesses may provide: use, but still gives a lower o paper checkout bags for a minimum charge of 15 cents cost option to a reusable bag. per bag (rising to 25 cents on July 1, 2019). • Ban implemented following o reusable checkout bags for a minimum charge of $1 per two years of consultation. bag (rising to $2 in 2019). • Ban was challenged by the Victoria, BC • These fees should be stated on customer bills. Canadian Plastic Bag • Intent of the by-law is to reduce the creation of waste and Association, but was upheld associated municipal costs, to better steward municipal in BC Supreme Court. property, including sewers, streets and parks, and to promote responsible and sustainable business practices that are consistent with the values of the community. • Province wide approach, with passing of the Plastic Bag • First province-wide approach. Reduction Act on June 12, 2018. Ban to take effect July 1, • Levels the playing field for 2020, mandating fees and prescribing alternative bags. retailers. Prince Edward • Less confusing for Island Checkout bag prohibition consumers having province- • Except as provided in this Act, no business shall provide a wide regulation. checkout bag to a customer. • Exemptions for small paper • Exception: A business may provide a checkout bag to a bags and bags used to 99 Exhibit A customer only if: package loose items and (a) the customer is first asked whether, and confirms other miscellaneous that, the customer needs a bag; products. (b) the bag provided is a paper bag or a reusable bag; and (c) the customer is charged a fee of not less than (i) 15 cents for a paper bag, (ii) $1 for a reusable bag. • Introduced the 3Rs Regulations in 1994 containing provisions • Feedback from provincial for businesses to submit plans outlining ways they will reduce staff indicates these waste and what their disposal plans are. requirements were not very • “A waste reduction work plan required under this Regulation effective. Ontario shall include, to the extent that is reasonable, plans to reduce, • Prior to the recent provincial reuse and recycle waste and shall set out who will implement election, the former each part of the plan, when each part will be implemented and government committed to what the expected results are.” review these regulations • Consumers pay 25 cents for each single-use retail bag. • Generates between • This money goes into the Environment Fund to cover the $400,000-$600,000 per year. program’s administrative costs and create new waste reduction • Since the start of the and recycling initiatives. program, 30 million bags • All retailers must register to submit fees. have been kept out of Northwest • Northwest Territories landfills Territories Litter was the driving force behind developing the regulations, including plastic bags blowing into the Arctic Ocean. and off the land. • Requires a much higher level of administration. • 70% reduction in the number of bags distributed in NWT.

100 Exhibit A Appendix B: City of Halifax’s Consultation with Industry Stakeholders

101 Exhibit B

June 2019

Get Involved Kingston - Reducing the use of single-use plastics: Project Summary Report

From March 22nd to April 29th, 2019, the Reducing the use of single-use plastics (SUPs) project page had 1.7k visits, with 124 ideas submitted to answer the question, how will you reduce your SUP usage? These ideas have been analyzed, and grouped by common theme in this summary report to eliminate repetition. The ideas are grouped by actions to be undertaken by the City of Kingston, actions to be undertaken by businesses, actions to be undertaken by individual consumers, and unique and innovative ideas and programs.

Among the most common ideas were banning/regulating single-use plastics and increasing the use of re-usable water bottles, bags, straws etc.

Suggested actions for the City of Kingston:

• Ban single-use plastics o Retailers/industry will find alternatives o Make SUPs as expensive as biodegradable and reusable • City of Kingston introduces commercial recycling and or composting program o Financial incentives for business recycling and composting o Impose tax on use of SUPs at restaurants – unless BYO containers accepted or compostable/biodegradable container offered • Educate people on what is not recyclable to reduce recyclables contamination o Focus more on Reduction and Reuse – Recycling as a last resort • City Council meetings should only use reusable cups and bottles • Remove car/parking related Incentives for Council & Staff – replace with transit pass incentives for Council & Staff • Remove all vending machines in municipal buildings and replace with water fountains • Increase number of clean and hygienic public drinking fountains • No bottles sold at public venues - offer refill stations o Offer discount for BYO cup at City run venues • Create Belle Park community Garden – reducing purchases of plastic packaged produce • City subsidies for local farmers • Set-up plastic conversion system in Kingston to turn plastic into fuel as Nova Scotia did • Discounted biodegradable dog waste bags sold by the City • Include animal waste to be composted in green bin

102 Exhibit B

June 2019

• Collaborative opportunities between local environmental experts, local businesses, and City officials to develop creative strategies to reduce SUPs need to be available. • City subsidies for local farmers to promote local food

Suggested Actions for Individual Consumers:

• Carry reusable bags, utensils, straws, drink containers/water bottles and food containers o When shopping buy in bulk and bring your own containers including mesh bags for produce • Buy fresh food and cook at home • Ask for no extra plastic packaging, straws, cutlery etc. when taking fast food home or ordering at Cafés o Bring reusable containers for leftovers when dining at restaurants • Keep boxes in trunk of car – use to sort groceries directly out of the shopping cart eliminating plastic bags • Switch to bar soaps / no-plastic deodorant • Organize residents to refuse the purchase of single-use plastics • Stop buying cheap plastic toys in favour of experiences • Use innovative ideas to reuse SUPs:

Repurposed cup, cookie tray, and yogurt containers

103 Exhibit B

June 2019

Suggested Actions for Businesses:

• Introduce compostable/paper take-out containers and paper bags at no extra cost to consumer • Mandatory promotion of re-usable bags at grocery stores • Encourage use of BYO containers at restaurants and bulk food stores

Unique and Innovative Ideas & Programs:

• Creation of sustainable alternative products such as a "party box" with reusable plates, cups & cutlery, fabric table cloths and pennant banner, with paper lanterns to replace balloons • Reusable cup pilot - Cafés across Kingston to offer reusable coffee cup for $5 with $5 back upon return, eliminating the need for disposable cups • Spaghetti (uncooked) as stir sticks Cafés • Cash for plastic buy-back program - $/lb of plastics • Make plastic bottles/single use plastics refundable when returned ($0.25 per bottle) to improve recycling rates

104