Public Works & Infrastructure Committee
Geoff Rathbone, General Manager, Solid Waste Management Services Introduction
Solid Waste Management Services is responsible for: Managing approximately 1 million tonnes of waste annually
Collecting, transfer, processing and disposal of municipal waste
Managing waste diversion programs
Managing household hazardous waste programs
Providing transfer station loading services to private sector customers and the Regional Municipality of Peel
Disposal services to York Region, City of Guelph, City of St. Thomas and other Municipalities in vicinity of Green Lane
Collecting litter from public right-of-ways; and
Perpetual Care of 161 closed landfill sites with Technical Services
2 SWMS – Client Base
Approximately 450,000 single unit homes
452,000 multi-unit homes
20,000 small commercial/institutional
6,000 litter/recycle bins / 1,000 Special Events Per Year
City Agencies, Boards, Commissions and Divisions
Private commercial and industrial waste accepted at Transfer Stations and Landfill
3 SWMS Assets - Facilities and Equipment
Total Value of Managed Assets - $500 Million
7 Transfer Stations 6 with Household Hazardous Waste (HHW) Depots Green Lane Landfill 1 Material Recovery Facility (MRF) 1 SSO (Green Bin) Processing Facility 1 Durable Goods Reuse/Recycle Centre 4 Collection Yards and 1 Litter Collection Yard 161 Former Landfills 780 Vehicles/Heavy Equipment
4 Services and Programs
Program Collection Blue Bin Recycling Bi-weekly Green Bin Weekly Waste Bi-weekly Leaf and Yard Waste Bi-weekly, (March-Dec.) White Goods - Large Appliances Bi-weekly
Durable Goods (e.g. mattress, porcelain Bi-weekly and plastics) Electronics Bi-weekly
HHW Depot and Toxic Taxi (call-in) Environment Days 44 Drop-off Events- 1/Ward (Spring-Fall)
5 2011 Recommended Operating Budget by Service Gross Expenditure (in Millions)
Gross Expenditure - $342.6M
6 2011 Revenue Sources ($342.6M)
Internal Recoveries & Other $8.0M, Paid Commercial Waste 2% $17.9M, Other External Revenue WDO Funding 5% $14.7M, $3.8M, 4% 1%
City of Toronto - Waste Fees $39.0M, 12%
Sale of Recyclable Materials $19.6M, 6% Volume Based Rate Revenue $239.6M, 70%
Includes all Service Level Changes and excludes New and Enhanced
7 Staffing Trend – Approved Positions 2003 - 2010
1450 1421.1
1383.8 1400 1342.6 1339.6 1350 1326.6 1324.1 1310.5 Parks – 56 FTEs 1300 1285.8
1236.1 1250
1200
1150
1100 2003 2004 2005 2006 2007 2008 2009 2010 2011 Recom.
Key Points:
• Year 2004: Increase to 24 hour Operations at all Transfer Stations & start of the SSO (Green Bin) Program • Year 2004 – 2006: Continued roll-out of the SSO Program • Year 2006: De-centralization of Program Support, Communications, IT, Finance & Administration • Year 2007: Re-Centralization of Program Support , Communications, IT, Finance & Administration • Year 2009: Launch of Volume Based User Fee Program – One-time temporary staff added • Year 2011: Increase of 56 FTEs related to the transfer of the waste & recyclable collection in City parks from Parks & Recreation
8 Opportunities & Lifestyle Challenges
Printed Paper and Packaging Generation Projection
10-year projected Increase or Decrease
Paper -18%
Plastics +17%
Metal Stable
Glass -50%
Paper Packaging -13%
9 SWMS Mission
Mission Statement: To be a leader in providing innovative waste management services to residents, businesses and visitors within the City of Toronto in an efficient, effective and courteous manner, creating environmental sustainability, promoting diversion and maintaining a clean city.
10 Path to a 70% Diversion Plan
2001, Council adopts Waste Diversion Task Force goal of 100% diversion by 2010
2005, Council adopts the Multi-Year Business Plan. Established new waste diversion goals of 60% by 2010
2006, David Miller’s mayoral platform and mandate includes a 70% diversion goal by 2010
2007, Council adopts the Target 70 Plan 70% diversion by 2010 Utility style funding model
11 Target 70 Initiatives
Source Separation Initiative (Diversion Gain) 1. Source Reduction Initiatives 2. Green Bin Organics in Apartments/Condos 3. Enforcement Mandatory Diversion By-law 4. Behavioural Change 5. New Materials for Recycling 6. Improved Recycling Capacity 7. Reuse/Disassembly of Durable Goods for Recycling 8. Townhouse Collection 9. Biogas Composting Facility Physical Biological Processing of Mixed Residential Waste
12 Target 70 Progress
1. Source Reduction Initiatives In-Store Packaging - 5¢ charge per shopping bag Prohibit the sale and distribution of bottled water at Civic Centres December 2008 Proposals for source-reduction initiates for hot drink cups take out food packaging on hold pending Waste Diversion Act amendment process
2. Green Bin Organics in Apartments/Condos Over 1,800 buildings invited to participate to date Currently 435 City serviced buildings are on the Green Bin program Representing 20 % of all City Serviced buildings By the end of 2012, this roll-out will be completed
13 Target 70 Progress
3. Enforcement Mandatory Diversion By-law Single-family audits show a blue bin participation rate of 94% and a Green Bin participation rate of 87% Currently developing with Municipal Licensing and Standards a compliance program for multi-residential recycling participation and contamination
4. Behavioural Change Financial driver – Implemented volume based user pay systems for multi-residential and single family households in 2008
14 Target 70 Progress
5. New Materials for Blue Bin Recycling Added plastic retail bags and foam polystyrene in 2008 Planning to add mixed rigid (Thermoform) plastics 2012 Working on adding all other plastic film, small scrap metal items and hot food and beverage paper containers
6. Improved Recycling Capacity Replaced blue boxes in single family households with larger blue bins (4 sizes) program implemented in 2008 weekly recycling can be implemented as required Provide in-unit containers (bin or bag) to multi-family units, commenced in 2009
15 Target 70 Progress
7. Reuse/Disassembly of Durable Goods for Recycling Durable goods collection started City wide in 2009. Material is sent to one City operated reuse centre for sorting and consolidation to increase reuse and recycling
Currently recycle for scrap metal, porcelain, clean wood, electronics, mattresses and box springs and large household plastics (e.g. lawn furniture, toys, etc.)
Potential recycling markets for carpet
Work with charities to co-ordinate advertising (furniture/textiles)
16 Target 70 Progress
8. Townhouse Collection Added all 30,000 townhouses to the curbside collection program. Completed conversion in 2009 Eliminated pile collection Recycling participation up
9. Biogas Composting Facility for Mixed Waste 150,000-300,000 tonnes/yr (tpy) facility being considered (Further details later in presentation.)
17 Accomplishments
Increased the overall residential diversion to 47% 60% single-family and 20% multi-residential 94% participation in the blue bin and 87% participation in the Green Bin program 50% reduction in plastic retail bag generation in Toronto
Reduction in residual waste sent to landfill Currently approximately 60-70 trucks sent to landfill / day Down from peak of 142 trucks/day in 2001
18 Accomplishments
Self-funding program since 2008 Includes self-funded capital for diversion and landfill infrastructure
Implemented separate collection of electronic waste at curbside
Further “greening” of the fleet reducing the use of diesel fuel
New 75,000 tonnes/year Green Bin processing facility under construction at Disco Transfer Station
19 Target 70 Landfill Impact
Achievement of Target 70 plan extends landfill life 2026 with no new diversion 2034 with 70% diversion by 2014
20 Disposal
Tonnes of Waste Disposed (000's) 1,800 1,700 1,600 1,500 1,400 1,300 1,200 1,100 1,000 900 800 700 600 500 2010 2011 2002 2003 2004 2005 2006 2007 2008 2009 Projected Estimate Tonnes 1,678 1,072 877 750 709 670 668 578 565 555
The total tonnes of waste being disposed is decreasing with the implementation of various recycling/diversion initiatives.
21 Diversion
The residential diversion rate will continue the trend upward with the implementation of the volume- based rate structure for single and multi- unit residences as well as other diversion initiatives. 22 New Infrastructure to Support Strategic Direction
1. Green Bin Program Processing 2. Biogas Composting Facility 3. Durable Goods Recycling Centre 4. Landfill Improvements
23 New Infrastructure to Support Strategic Direction
1. Green Bin Processing
Currently collect 120,000 tonnes of Green Bin organics annually
One-third processed at City’s Dufferin Facility remainder at private composting facilities
Construction of new capacity facility at Disco Transfer Station
Expansion of Dufferin Organics Facility
24 New Infrastructure to Support Strategic Direction
1. Green Bin Processing
SSO tonnage is expected to increase to 160,000- 170,0000 tpy
Council direction on SSO processing 2/3 Public Ownership/Contractor Operated (120,000 t) Disco 75,000-90,000 tpy Dufferin 30,000-50,000 tpy
1/3 Private sector owned/operated facility (50,000 t)
Current External Contractors
4 private contractors throughout Ontario 25 New Infrastructure to Support Strategic Direction Green Bin Processing Facility and Biogas Recovery the Disco Transfer Station
26 New Infrastructure to Support Strategic Direction
Green Bin Processing Disco Biogas Facility Timeline
Timeline Q1/11 – Q1/12 Q1/13 - Q1/14
Dufferin Phase 1 Repairs Shutdown for Operational Facility Operational Phase 2
Disco Excavation Operational
Construction
27 New Infrastructure to Support Strategic Direction
2. Biogas Composting Facility for Mixed Waste
Background
Attaining Target 70 requires new infrastructure to process and treat residual waste
In 2008, SWMS with the Citizen Based Residual Waste Working Group evaluated the preferred site and technology for residual waste processing: Considerations included: ability to manage 150,000 t/yr and divert 75,000 t/yr from landfill 8-10 new % points of diversion
capital & operating costs
compliance with Ontario environmental standards and definition of diversion
proven operating history of technology
space for the facility and existing land use for site and surrounding area;
site accessibility and servicing (e.g. water, wastewater, energy); and
time to implement 28 New Infrastructure to Support Strategic Direction
2. Mixed Waste Processing Technology – Technology/Site Selection Process
Full range of technologies evaluated, including, mechanical, biological and thermal treatment
All City-owned solid waste sites considered
Satisfied that the considerations were met the study recommended Mechanical and Biological Treatment Technology (MBT) operating on City-owned property adjacent to Green Lane Landfill site
29 New Infrastructure to Support Strategic Direction
2. Mixed Waste Technology Selection Process
Additional Biogas Composting Energy from Waste Considerations Facility Ministry Definition of Yes No Diversion EA Required No Yes All Residue to Green Yes No Lane Landfill Operational within 5yrs Yes No Requires Change in Yes No Compost Guidelines
30 Comparison of Green Lane, Mixed Waste Processing and Energy From Waste Costs
Capital Annual Electricity $ Value of Lifetime $/Tonne Operating Share of Net Cost Capacity Recovered Electricity Capacity Capital Cost/Tonne Electricity Cost/Tonne (mW) Revenue
Green $220 M 800,000 12 mW $11.4 M/Yr 15,200,000 t $14.50 $33.50 $2.00/t $46.00/t Lane Landfill
Mixed $115.5 M 140,000 2 mW $1.75 M/Yr 150,000 tpy $33.00 $90.00 $3.60/t $120.00/t Waste x 25 yrs Processing =3,750,000 t
Durham $272 M 140,000 13 mW $8.6 M/Yr 140,000 tpy $77.50 $121.00 $61.50/t $137.00/t EFW x 25 yrs = 3,500,000 t
Peel EFW N/A 160,000 7 mW $7.0 M/Yr 160,000 tpy Privately $110.00- Ø $110.00- Private x 25 yrs owned. $120.00 120.00/t Capital. = 4,000,000 t Cost of Cost of Capital Capital in included in Operating Operating Cost. Cost.
31 Transfer and Residual Waste Processing and Disposal Flow Diagram
1. Current – Residual Waste to Landfill
Single Family
Transfer Landfill Multi family station
2. Proposed - Residual Waste/Biosolids to Processing Facility
Biosolids Recycling
Single Family
Biogas Class B Transfer Composting Compost Station Facility Multi family
32 Landfill New Infrastructure to Support Strategic Direction
2. Biogas Composting Facility
Next Steps Select Option A or Option B, mid-2011 Option A – City-owned Facility: 3 consortia have pre-qualified and been short listed for the RFP Issue RFP to design, build and operate facility early 2012
Option B – Willing host search under way Issue Request For Pre-Qualification early 2012
33 New Infrastructure to Support Strategic Direction
3. Durable Goods
Currently one (1) Reuse Centre in TEDCO property
The long-term plan is have up to three (3) Reuse Centres
Commissioners
Dufferin
Bermondsey Timeline to commence construction 2012-2013
34 New Infrastructure to Support Strategic Direction
4. Landfill Infrastructure Challenges if Target 70 Goal is Not Reached
Very limited long-term capacity in the Province to accommodate the City’s needs Recent agreements with Province and Michigan have stopped the shipment of municipal waste into the state
Timing to conduct an Environment assessment is 10+ years With no guarantees that an EA will be approved No new landfill approved in the Province since Halton Region landfill in the 1980’s $80-$100 M siting cost
Recent Ministry EA decisions indicate MOE requirement to incorporate aggressive waste diversion plans in order to be approved
35 Waste Diversion Act
Ontario Waste Diversion Act, 2002 came into effect June 2002
Allows for the implementation of Stewardship/extended producer responsibility (EPR) programs
Requires the Stewards brand owners, first importers or retailers to bear the physical and/or financial responsibility for ensuring proper management of products and packaging at end of life cycle
36 Waste Diversion Act – Stewardship Funding Currently 4 stewardship programs:
Packaging and printed material - blue box waste
Municipal Hazardous and Special Waste
Waste Electrical and Electronic Equipment
Used Tires
37 Waste Diversion Act – Stewardship Funding
Packaging and Printed Paper:
Fund 50% of the net provincial costs of municipal recycling programs
Since 2004 Toronto has received approximately $55 M from industry steward funding
Funding primarily offsets collection, processing, promotion and some capital costs
38 Waste Diversion Act – Stewardship Funding
Municipal Hazardous and Special Waste:
MHSW Program launched July 2008 and to date Toronto has received approximately $1.5 M Stewards pay for Phase 1 material representing 70% of the total MHSW costs (e.g. paints, solvents, oil, etc.)
Phase 2 Material will be funded by the MOE representing 5% of the costs ( e.g. fluorescent lights, pharmaceuticals, rechargeable batteries)
Phase 3 Material will be funded by the City representing 25% of the costs (all other hazardous material e.g. some solvents, fertilizers etc.)
39 Waste Diversion Act – Stewardship Funding
Waste Electrical and Electronic Equipment: Industry 100% responsible for the costs of transportation/processing designated waste electronics (computers, televisions, cameras, cell phones, etc.)
City receives approximately $220.00 per tonne to cover the cost of collecting the material Approximately 60% of City cost
Used Tires: Industry 100% responsible for the costs of processing transportation and collection costs The City receives $88.00 per tonne which covers the full cost to operate the depot program
40 Waste Diversion Act – Stewardship Funding
Waste Diversion Act 2002, and the Blue box program plan are currently under review by the MOE
Toronto supports the designation of additional materials the City manages for stewardship programs, such as: Branded organics (diapers, paper towels) Bulky items (furniture, mattresses) All electronic waste Construction and demolition waste Litter (gum, tobacco, packaging)
41 2010 Solid Waste Management Services – Residential Curbside Collection Costs
$78 Million $38 Million $40 Million $8 M $30 Million*
DISTRICT 1 DISTRICT 2 DISTRICT 3 DISTRICT 4
65,000 Units 165,000 Units 117,000 Units 114,000 Units
Existing Contracted Out Area
Proposed Contracted Mid 2012
Service Provided by Public Sector
* Estimate that 20% of $30 Million will be saved = $6.0 Million 42 Contracting Out Overview
On February 7, 2011 the City of Toronto provided notice to the Toronto Civic Employees' Union (TCEU), Local 416, of its intention to recommend a competitive bid process for three areas of work currently carried out by TCEU members
The proposed services under consideration are: all daytime, residential curbside collection west of Yonge Street to the Etobicoke border (approximately 165,000 homes) an increase to City-wide litter vacuum operations (from 25% to approximately 50%) litter /recycling collection within Toronto City parks. In these three service areas, it is anticipated that about 300 positions would be affected
There is an Expected savings of approximately 20% ($8 M)
A detailed report will go forward to the PWI meeting in April 2011
43 Strategic Plans
Key Priorities:
to achieve an overall diversion rate of 70%
to secure long term waste disposal capacity
to ensure sustainable, self-funding of operating and capital requirements for existing and new diversion programs
44
Solid Waste Management Services
MISSION To be a leader in providing innovative waste management services to residents, businesses, and visitors within the City of Toronto in an efficient, effective and courteous manner, creating environmental sustainability, promoting diversion and maintaining a clean city. Service Efficiency Sustainability Providing outstanding customer service Ensuring maximum efficiency in Promoting diversion to ensure the service delivery security and sustainability of our disposal resources Focus on improving customer service, increasing Review organizational structure and service plans to Prepare a mid-term plan for the security and customer satisfaction and decreasing overall ensure maximum efficiency in service delivery sustainability of Green Lane Landfill customer complaints
Work collaboratively with other divisions that Review internal processes and the way service is Develop a long term disposal security plan, including support our service delivery to improve provided to identify opportunities to streamline the investigation of a full range of disposal and communication, processes and service delivery operations and create efficiencies processing methods Investigate, invest in and use technology to improve Work collaboratively with other divisions to identify Pursue 70% diversion target through a focus on communication, processes and service delivery opportunities for consolidation of services to create multi-residential customers and development of a efficiencies and improvements in service delivery mixed waste facility Communication Utilize a multi-channel communication approach to promote and market our services to customers
Investing in our People Develop a "People Plan" to prepare for our future skills and knowledge needs
45 Strategic Options
No New Stay on Target Diversion 70 Track
2012-2010 Flat to Inflation + Utility Rates
Expected Landfill Life 2026 2034
2020 Diversion 50% 70% Rate
46 47 48 Key Tenders on the Horizon and Release Dates
Transfer and Disposal: Green Lane Landfill Landfill contingency capacity (March 2011) Stage 7 excavation and soil stockpile construction (March 2011) Redevelopment of the entrance way and installation of dual scales to accommodate current traffic flow (April 2011) 10 year Engineering Oversight Contract (July 2011) 10 year Site Operations and Excavation Contract (July 2011) Installation of solar collectors on Green Lane Landfill buffer lands (2012) Residential vegetable oil recycling service provider (April 2011) Electronic Waste processing and recycling (May 2011) RFQ for an MHSW service provider (collection and final disposal/processing) from our six MHSW depots (Fall 2011)
49 Key Tenders on the Horizon and Posting Dates
Processing: Sale of Recyclable Materials (On-going) Material Recovery Facility Contract (2011) SSO Digester Solids (2011) OCC collected from nighttime collection (2011) Dufferin MRF retrofit / operating contract (2011) Reuse Centre engineering contract (2011) Construction (2012) Biogas Composting Facility (Fall 2012) Leaf and Yard waste 4-6 contracts (2012) SSO private sector contract for organic material in excess of City’s capacity (2013) Collections: Contracting Collection West of Yonge Street (Summer 2011) Contingency Collection (Summer 2011) Litter/Recycle Collection in City Parks (Sumer 2011) Litter Vacuum Collection 50% of City (Summer 2011) Next Generation Green Bins (Fall 2011-Spring 2012) 50 51