REGIONAL DISTRICT OF NORTH OKANAGAN

COMMITTEE OF THE WHOLE MEETING Wednesday, May 15, 2019 Boardroom - 9848 Aberdeen Road, Coldstream, BC 1:00 p.m.

REGULAR AGENDA

A. CALL MEETING TO ORDER

B. APPROVAL OF AGENDA

1. Committee of the Whole - May 15, 2019

RECOMMENDATION 1 That the Agenda of the May 15, 2019 regular meeting of the Committee of the Whole be approved as presented.

C. DELEGATIONS

D. SPECIAL MEETING MATTERS

1. Waste Drywall Management at Diversion and Disposal Facilities • Staff report dated May 7, 2019 • Solid Waste PowerPoint Presentation

RECOMMENDATION 2 Page 3 - 68 That it be recommended to the Board of Directors staff be directed to develop and implement a recycling program for all drywall cut ends generated by new construction activities received at the Greater Vernon Diversion and Disposal Facility on a full cost recovery basis.

RECOMMENDATION 3 That it be recommended to the Board of Directors staff be directed to develop and implement an education program on how to dispose of waste drywall.

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Committee of the Whole Agenda – Regular May 15, 2019

2. Yard and Garden Waste Management at Diversion & Disposal Facilities • Staff report dated May 7, 2019

RECOMMENDATION 4 Page 69 That the report dated May 7, 2019, titled Yard and Garden Waste Management at Diversion and Disposal Facilities be received for information.

3. Tipping Fees and Solid Waste Management Financial Guiding Principles • Staff report dated May 7, 2019

RECOMMENDATION 5 Page 74 - 80 That it be recommended to the Board of Directors staff be directed to amend the Municipal Solid Waste Management Bylaw to include a five year rates schedule and more simplified product categories.

RECOMMENDATION 6 That it be recommended to the Board of Directors the Solid Waste Management Guiding Financial Principles be amended as presented in the report titled Tipping Fees and Solid Waste Management Guiding Financial Principles and dated May 7, 2019.

E. RESOLUTION TO GO IN CAMERA

RECOMMENDATION 7 That the regular meeting of the Committee of the Whole convene In Camera to deal with matters deemed closed to the public in accordance with the following paragraph of Section 90(1) of the Community Charter: (k) negotiations and related discussions respecting the proposed provision of a municipal service that are at their preliminary stages and that, in the view of the council, could reasonably be expected to harm the interests of the municipality if they were held in public.

F. REPORT FROM IN CAMERA

G. ADJOURNMENT

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STAFF REPORT

TO: Committee of the Whole File No: 4900.01.02

FROM: Community Services Date: May 7, 2019

SUBJECT: Waste Drywall Management at Diversion and Disposal Facilities

RECOMMENDATION 1:

That it be recommended to the Board of Directors that staff be directed to develop and implement a recycling program for all drywall cut ends generated by new construction activities received at the Greater Vernon Diversion and Disposal Facility on a full cost recovery basis.

RECOMMENDATION 2:

That it be recommended to the Board of Directors that staff be directed to develop and implement an education program on how to dispose of waste drywall.

DISCUSSION:

At their April 4, 2018 meeting the Board of Directors passed the following motions:

That staff prepare and submit a recommendation to the Union of BC Municipalities requesting support to add Drywall to the Recycling Regulation list of products to be managed by producers under an Extended Producer Responsibility (EPR) program; and further

That staff prepare and submit a letter to the BC Minister of Environment and Climate Change Strategy requesting Drywall be added to the Recycling Regulation as a product to be managed by producers under an EPR program; and further

That the Waste Drywall Recycling and Disposal report dated April 18, 2018 be received as information.

The attached letter to the Union of BC Municipalities (UBCM) dated May 9, 2018 describes in detail the history of waste drywall management in the RDNO and how the Province has been dealing with the issue (Attachment A). In June 2018 UBCM confirmed receipt of a resolution for their convention agenda from the RDNO regarding our request for support in an Extended Producer Responsibility Program for Drywall (Gypsum). The following resolution was endorsed at the 2018 UBCM Convention:

Whereas the Regional District of North Okanagan has diverted over 1500 tonnes of drywall (gypsum) material per year over the last twelve years;

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And whereas recycling companies will no longer accept waste drywall (gypsum) due to Work Safe BC concerns with asbestos content, causing significant operational issues at Recycling and Disposal Facilities;

And whereas the British Columbia Recycling Regulation requires producers to be responsible for end of life of their products:

Therefore be it resolved that UBCM request the Ministry of Environment & Climate Change Strategy amend the British Columbia Recycling Regulation to include drywall (gypsum), under a new schedule called Construction and Demolition Materials.

A letter was also sent to the Ministry of Environment and Climate Change Strategy (BC Env) on May 9, 2018. Their response is attached to this report (Attachment B). In November and December 2018 staff issued a Request for Quotation and proceeded with the burial of all of the drywall stockpiled at the GVDDF due to issues related to the potential presence of asbestos containing material in the mixed waste drywall stockpile. The quantity disposed was approximately 4,660 cubic metres from three separate stockpiles (based on a drone survey) at a cost of $39,375.

The purpose of this report is to receive further direction from the Board of Directors on management of waste drywall received at RDNO Diversion and Disposal Facilities (DDF). All new drywall cut ends are currently stockpiled at the GVDDF only. All other waste drywall received at the GVDDF, the Armstrong/Spallumcheen Diversion and Disposal Facility (ASDDF) and the Lumby Diversion and Disposal Facility (LDDF) is currently being buried. Management objectives are the following:

1. Minimize environmental impacts (Hydrogen Sulphide Gas emissions) 2. Maximize diversion (extend the life of RDNO DDFs) 3. Minimize illegal dumping of drywall 4. Minimize exposure to friable asbestos in old drywall (maintain worker and public safety) 5. Minimize customer confusion with respect to sorting and separating prior to delivery to a DDF 6. Minimize administration time and cost 7. Collect a fair and reasonable recycling and disposal fee.

Waste Drywall Generation and On-Site Management

Waste drywall is generated through various activities in the RDNO: construction, renovation and demolition of residential, commercial, industrial and institutional structures. During new construction, waste drywall cut ends are generated and are considered to be asbestos free (assuming new drywall is used in new construction). During renovation or demolition, waste drywall is generated that may potentially be older than 1990. Post 1990 waste drywall is considered asbestos free but it can be difficult, time consuming and expensive to accurately determine the age of the waste drywall removed from older structures due to coverings such as paint and wallpaper. Drywall boards are date stamped indicating when they were manufactured. The DDFs receive and charge tipping fees for waste drywall under a number of product categories:

a. Properly Contained in 6 mil poly bags coming from a structure that has been tested for the presence of asbestos and has undergone professional abatement (disposal requires pre- approval by the DDF Operations Manager) Diversion and Disposal Fee = $174/tonne – Controlled Waste

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b. Separated in a self-haul or commercial load (waste drywall of unknown age, has not been tested for presence of asbestos, potentially contains asbestos and is buried following safe work procedures) Diversion and Disposal Fee = $135/tonne – Drywall

c. Mixed in a self-haul or commercial load (waste drywall of unknown age, has not been tested for presence of asbestos, potentially contains asbestos and is buried following safe work procedures when presence noted by operator) Diversion and Disposal Fee = $100/tonne – Refuse (when mixed in a refuse load) $202/tonne – Construction and Demolition Waste (when mixed in a construction and demolition load).

The above application of diversion and disposal fees depends on what the DDF customer discloses to the Scale Attendant with respect to the nature of their load (if tarped/covered), what the Scale Attendant is able to observe and whether or not the load is manifested and has been pre-approved for disposal.

According to Work Safe BC and workers involved in demolition activities, the handling of any material that may contain asbestos must be done in accordance with hazardous waste and work safe regulations, which can include a hazardous materials assessment of the structure and subsequent abatement (if hazardous materials are present) by qualified professionals. Prior to demolition activities it is common for the contractors hired by the owner to require the owner have the structure assessed so as not to put their workers at risk. It is rare for building owners doing the work themselves to assess the hazards prior to generating the waste. It is this latter activity that generates loads of waste materials that have an unknown risk associated, and which have made it necessary for landfill and transfer station owners in the last three years to change the way they manage these materials on site. The Columbia Shuswap Regional District’s (CSRD) policy for accepting waste drywall requires all haulers delivering waste drywall (commercial and residential) to sign a declaration that their load does not contain asbestos before they can unload (Attachment C) and all waste drywall is buried at CSRD landfills. It is Work Safe BC’s responsibility to enforce handling requirements with employers.

Drywall Recycling

New drywall cut ends and used drywall newer than 1990 can be recycled in New Westminster, BC and Calgary, Alberta through New West Gypsum (https://www.nwgypsum.com/corporate-history/). This recycler has been in the waste drywall recycling business since 1985, when the first gypsum wallboard landfill ban was enacted in Metro Vancouver. RDNO has shipped loads of waste drywall to a number of facilities in addition to New West Gypsum since 2005, when recyclable drywall was banned from disposal at RDNO DDFs. These recyclers included Okanagan Gypsum Recycling Enterprises located in Lake Country (2008 – 2013) and an Alberta agricultural facility via Sivan Enterprises (2013 – 2017). The potential presence of asbestos in mixed waste drywall was the reason recycling of waste drywall ended at RDNO facilities in October 2017.

New West Gypsum continues to accept waste drywall under very rigid guidelines after being shut down for a short time in 2016 by Work Safe BC. The City of Kelowna Glenmore Landfill ships new drywall cut ends to New West Gypsum’s Calgary facility at a cost of approximately $125/tonne hauling plus $65/tonne tipping (24 tonne minimum or $4,560/load - 53 foot walking floor trailer). Glenmore Landfill requires that all customers delivering waste drywall (both cut ends and used) to the facility complete a declaration for each load confirming that their load meets New West Gypsum’s guidelines or is non- recyclable. All non-recyclable waste drywall is buried in a monocell at the landfill. Tipping fees for Glenmore Landfill are attached (Attachment D). City of Kelowna’s charges $175/tonne for Gypsum

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drywall source separated, including new cut ends or used gypsum with the paint and/or wall coverings removed.

Recommended Protocols for RDNO Facilities

The following protocols are recommended at this time for managing waste drywall at RDNO DDFs to ensure worker safety, environmental protection and maximum diversion.

Known Asbestos Content

All loads must be manifested and pre-approval is required before delivery. This material is only accepted at the GVDDF and loads or contents must be properly contained (double bagged and sealed in 6 mil poly bags). This waste drywall must be buried immediately in the asbestos disposal area at the GVDDF.

Tipping Fee = $174/tonne – Controlled Waste (Expected to change to $200/tonne in 2020)

Unknown Asbestos Content, Separated or Unseparated on a Load

All loads containing waste drywall from demolition and/or renovation, and declared by the customer, or not declared but observed by DDF staff , either separated or mixed with other refuse, are to be directed to the tipping face at any of the RDNO facilities except Transfer Stations. All drywall delivered under this category must be tipped at the face in accordance RDNO policy, including no RDNO staff accompanies these customers. The material may be buried with regular refuse.

Tipping Fee = $202/tonne – Drywall/Potential Asbestos (Expected to change to $250/tonne in 2020)

This material could potentially contain asbestos. It is recommended that an education and communication program be developed and distributed to inform customers of the hazards associated with waste drywall, including generation of hydrogen sulphide gas and release of asbestos fibers, and how the RDNO prefers to accept this material. Distribution through all building permit application packages would be included.

New Waste Drywall Cut Ends

Loads containing separated new waste drywall cut ends from new construction (not mixed with other refuse) would be accepted at the GVDDF and be directed to the new waste drywall bunker. A declaration must be completed by the waste generator and provided to the Scale Attendant prior to unloading. This declaration will be used to document that all waste drywall stockpiled in the new drywall bunker is recyclable and can be shipped to a recycler.

Tipping Fee = $135/tonne – Drywall/Recyclable (Expected to change to $195/tonne, depending on the cost to recycle)

Due to the additional administration and recycling costs, these loads would be assessed a higher fee than regular refuse but lower than properly manifested waste drywall containing asbestos, and lower than waste drywall with potential asbestos content.

The quantity of recyclable new waste drywall cut ends is expected to be approximately 1,000 tonnes per year. With costs similar to the City of Kelowna’s for shipping and tipping, the annual expenditure

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would be approximately $190,000 and the tipping revenue approximately $195,000. Additional operating expenditures would include loading costs, additional inspection at the new drywall bunker and minor administrative costs for handling declarations at the Solid Waste Operations Office.

LEGAL/STATUTORY PROCEDURAL REQUIREMENTS:

The RDNO has established a local service to regulate, store and manage municipal solid waste and recyclable material by Bylaw 1352, being “Solid Waste Management Local Service Establishment Bylaw No. 1352, 1996”; the RDNO has an approved Solid Waste Management Plan; Section 378 [Options for cost recovery] of the Local Government Act, states that Section 397 [Imposition of fees and charges] of the Local Government Act applies to Regional Districts in relation to their services; and Section 397 [Imposition of fees and charges] of the Local Government Act provides that a Board of a Regional District may, by bylaw, impose a fee or charge payable in respect of all or part of a service of the Regional District. The current Municipal Solid Waste Management Bylaw No. 2806, 2019 sets out definitions, regulations, conditions of use, penalties and fees for managing waste drywall at RDNO DDFs.

EXISTING POLICY:

The RDNO Solid Waste Management Plan, updated in 2017, and submitted to the Province for approval in June 2018, specifies a new disposal target of 350 kg/capita/year within ten years. This requires a reduction in disposal of about 150 kg/capita/year from all sectors: residential, commercial and demolition/construction. The Plan Update also lists the following:

Advocate with senior governments to modify the existing Recycling Regulation (e.g., adjust recovery rates from 75 to 85%) and expand the list of EPR products covered in the regulation (e.g., mattresses, drywall, carpet, textiles). For current and future programs, consider options for creating a “one stop” drop off for EPR products and pursue opportunities to support local efforts—through interregional collaboration or other—for end market management.

FINANCIAL/BUDGETARY CONSIDERATIONS:

Depending on when a new drywall recycling program would be implemented, the current budget of $120,000 may support starting the program in 2019. Any drywall recycling program should be self- sustaining financially with Diversion and Disposal fees covering all associated costs.

PERSONNEL IMPLICATIONS:

Implementing the above listed protocols for waste drywall management, disposal and recycling would require additional inspection to ensure fees are assessed fairly, recyclable drywall standards are maintained and loads are not rejected at the recycling facility.

TECHNICAL REQUIREMENTS:

The scale software at the three RDNO landfills is scheduled for an update in 2019 or 2020. This upgrade would allow new product codes to be established without having to deal with legacy product codes and would simplify the tracking and assessment of fees for all waste drywall categories. Development of declaration forms for use by waste drywall customers will also be required to implement the above listed recommended protocols.

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COMMUNICATIONS CONSIDERATIONS:

If direction is received to proceed with the above protocols, including a waste drywall recycling program, existing customers will be notified of the new requirements (declarations) and all customers will be given at least 120 days notice through advertising and signage.

Attachments: A - Letter to the Union of BC Municipalities B - Letter Response from Ministry of Environment and Climate Change Strategy C - CSRD Drywall Policy and Tipping Fees D - CORD Tipping Fees

Submitted by: Reviewed and endorsed by:

Nicole Kohnert Mike Fox · Manager Regional Engineering Services General Manager Community Services

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Attachment A

REGIONAL DISTRICT NORTH OKANAGAN MEMBER MUNICIPALITIES: ELECTORAL AREAS: CITY OF ARMSTRONG VILLAGE OF LUMBY “B” – SWAN LAKE “E” – CHERRYVILLE CITY OF ENDERBY CITY OF VERNON “C” – BX DISTRICT “F” – ENDERBY (RURAL) DISTRICT OF COLDSTREAM TOWNSHIP OF SPALLUMCHEEN “D” – LUMBY (RURAL)

OFFICE OF:COMMUNITY SERVICES OUR FILE No.: 5380.6.1.2018

May 9, 2018

Mr. Gary MacIsaac Union of BC Municipalities Suite 60-10551, Shellbridge Way Richmond, BC, V6X 2W9

Dear Mr. MacIsaac::

Re: Management of Waste Drywall in British Columbia

At the Regional District of North Okanagan Board of Directors meeting held on April 18, 2018, the following resolution was passed: “That staff prepare and submit a recommendation to the Union of BC Municipalities requesting support to add Drywall to the Recycling Regulation list of products to be managed by producers under an Extended Producer Responsibility (EPR) program.”

As you may know, within the last two years, the management of gypsum wallboard (Drywall) generated by the construction, renovation and demolition sectors in British Columbia, has become a significant problem for local government. This letter provides some background information with respect to the extent of the issues faced by landfill owners, and most importantly is a request for your support to add Drywall to BC’s Recycling Regulation.

Used and new pieces of waste Drywall generated by all sectors, including residential (Res), industrial, commercial and institutional (ICI), and construction and demolition (C&D), from activities such as building renovation, construction, and demolition, has been accepted through various protocols at RDNO Recycling and Disposal Facilities (RDF) since the facilities were opened. The loads arriving at facilities contain Drywall from various activities and contain a variety of Drywall related materials. The following table outlines the types of loads, the source activities and the current management methods used at RDNO facilities to manage these materials currently.

Tipping Source Activity Current Handling Fee Source Separated Drywall – nothing adhered New Construction Stockpiled for possible future recycling $135/tonne Demolition – Pre 1991 Structure Stockpiled for future burial $135/tonne Demolition – Post 1990 Structure Stockpiled for future burial $135/tonne Renovation – Pre 1991 Structure Stockpiled for future burial $135/tonne Renovation – Post 1990 Structure Stockpiled for future burial $135/tonne Source Separated Drywall – tiles, etc adhered New Construction Buried $140/tonne

9848 Aberdeen Road Toll Free : 1-888-550-3700 Coldstream, BC V1B 2K9 Phone: 250.550.3700 Fax: 250.550.3701 E-Mail: [email protected]

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Letter to: Mr. Gary MacIsaac File No.: 5380.6.1.2018 From: Mike Fox, General Manager, Community Services Dated: May 9, 2018 Subject: Management of Waste Drywall in British Columbia Page 2 of 6

Tipping Source Activity Current Handling Fee Demolition – Pre 1991 Structure Stockpiled for future burial $140/tonne Demolition – Post 1990 Structure Stockpiled for future burial $140/tonne Renovation – Pre 1991 Structure Stockpiled for future burial $140/tonne Renovation – Post 1990 Structure Stockpiled for future burial $140/tonne Mixed Load – with other types of waste New Construction Buried $303/tonne Demolition – Pre 1991 Structure Buried $303/tonne Demolition – Post 1990 Structure Buried $303/tonne Renovation – Pre 1991 Structure Buried $303/tonne Renovation – Post 1990 Structure Buried $303/tonne Manifested Load – from a hazardous waste abatement process New Construction N/A N/A Demolition – Pre 1991 Structure Buried (Asbestos Cell) $174/tonne Demolition – Post 1990 Structure Buried (Asbestos Cell) $174/tonne Renovation – Pre 1991 Structure Buried (Asbestos Cell) $174/tonne Renovation – Post 1990 Structure Buried (Asbestos Cell) $174/tonne

A number of attempts have been made to divert Drywall from RDNO landfills over the years. The following table outlines these strategies.

History of Drywall Management in the RDNO Tipping Collection Joint Year Fee Program Details Facilities Mngt ($/tonne) All except <2005 $56 Buried as general refuse No SSTS Amended SWM Bylaw; banned recyclable Drywall; new $187/tonne fee for mixed C&D Waste; RFP & RFQ issued; contract awarded to All except CTS 2005 $130 New West Gypsum – New Westminster (hauling No & SSTS & processing); centralized stockpile at GVRDF; bin rental/hauling contract awarded to local hauler for other sites NWG contract terminated and pilot project 2006- All except CTS $130 agreement issued to local company to conduct No 2008 & SSTS recycling and reuse trials (e.g. agriculture) Joint RFP issued; 5 yr contract awarded to Yes: 2008- All except CTS Okanagan Gypsum Recycling – Lake Country; $135 CSRD, 2013 & SSTS Agri-Trans – Armstrong purchased OGR RDOS (continued to operate in Lake Country Joint RFP issued; awarded 3 +2 yr contract to Sivan Enterprises – Lake Country (transport to 2013- All except CTS Bio-Cycle in Alberta for agriculture); last load $135 Partially 2017 & SSTS delivered Oct/17. No future loads accepted due to potential presence of asbestos (unproven); contract terminated in Jan/18 Stockpiling at GVRDF: 2 old Drywall piles, 1 2017- All except CTS new cut ends pile (potentially recyclable); $135 No 2018 & SSTS ongoing discussions with agencies and neighboring jurisdictions to solve issues;

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Letter to: Mr. Gary MacIsaac File No.: 5380.6.1.2018 From: Mike Fox, General Manager, Community Services Dated: May 9, 2018 Subject: Management of Waste Drywall in British Columbia Page 3 of 6

continue to transport from KTS, LRDF and ASRDF to GVRDF

For more than 15 years, diverting Drywall in the RDNO has been a major part of ongoing initiatives to reduce the amount of construction and demolition waste going to landfills, as specified in RDNO’s original and updated Solid Waste Management Plans (SWMP). The following are excerpts from the SWMPs:

RDNO shall implement certain material bans at all landfills in the Regional District. Material bans would reflect the regional recycling and composting systems as implemented, and could include materials such as certain DLC waste, such as wood, gypsum and land clearing debris (unless the site is a DLC landfill).

RDNO shall (will) require segregation of certain materials at all landfills in the Regional District. Materials to be set aside should include items such as truck tires, large metal objects, white goods, gypsum, plastics, cans and bottles, auto hulks, and wood.

Collection and recycling of difficult wastes such as gypsum, tires, batteries, autohulks, etc. will be reserved for private enterprise.

Examine mechanisms for further diversion of demolition, land-clearing and construction (DLC) waste, including but not limited to, private and public resource recovery parks and partnerships with industry.

Since much of the Drywall is reusable and recyclable, but also potentially a health hazard due to its asbestos content, and an environmental hazard when buried in landfills with other garbage by generating hydrogen sulfide gas, odour and leachate, it is important to manage this material so as to minimize the potential environmental and health impacts and maximize diversion. RDNO’s Greater Vernon RDF Operational Certificate specifies the following in this regard:

“The following waste types and materials are prohibited from being landfilled: - Hazardous Wastes as defined in the Hazardous Waste Regulation, other than those specifically approved within the Hazardous Waste Regulation for disposal to authorized landfills” and

“The disposal of waste asbestos in compliance with the requirements of Section 40 of the Hazardous Waste Regulation under the Environmental Management Act is permitted. In accordance with Section 40 “Management of Waste Asbestos” and under Part 6 “Management of Specific Hazardous Wastes” of the Hazardous Waste Regulation, the waste asbestos disposed at a landfill other than a secure landfill must be immediately covered with a minimum of 0.5 meter of cover material.”

Attached to this letter is a report provided to the RDNO Board of Directors at their April 18, 2018 regular meeting outlining the health, worker safety, management and governance issues associated with managing Drywall at RDNO disposal facilities. The report outlines the recent and significant challenges faced by local governments, including the following:

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Letter to: Mr. Gary MacIsaac File No.: 5380.6.1.2018 From: Mike Fox, General Manager, Community Services Dated: May 9, 2018 Subject: Management of Waste Drywall in British Columbia Page 4 of 6

a. varied interpretation and enforcement of regulations by Work Safe BC throughout the Province b. lack of involvement by the Ministry of Environment and Climate Change Strategy with respect to environmental impacts of all of a sudden stockpiling and burying vast quantities of Drywall at landfills (RDNO currently has 1,000 tonnes stockpiled and this is increasing daily). c. lack of communication with Interior BC landfill owners and operators prior to closure of recycling facilities that received vast quantities of reusable and recyclable Drywall for more than15 years d. lack of Provincial protocols and standards for management of waste Drywall containing and not containing asbestos e. impacts on waste diversion initiatives both regionally and provincially.

It is our understanding that a cross-ministry asbestos working group was formed by the Ministry of Labour. A conversation with the chair of this working group revealed that they had consulted with a number of stakeholders in order to determine the extent of the problem, receive recommendations and ensure no unintended consequences arose. The list of stakeholders did not include Interior BC landfill owners or local governments, which was unfortunate. It was explained that a report will be produced with recommendations sometime this year and will include an action plan. No timeline for this report’s release to the public was provided.

Given the fact that all local governments are virtually on their own with respect to implementation of new Drywall acceptance procedures at our facilities and new building permit issuance procedures for the foreseeable future, and that provincial regulation amendments can take many years, the following three options (A, B and C) have been considered by the RDNO:

A. Determine the asbestos contamination level of all waste Drywall generated in the RDNO prior to acceptance at disposal facilities so that the RDNO can:

1. Protect all workers, contractors and customers from asbestos hazards, including environmental 2. Cooperate with all building officials in the region to establish an acceptance protocol that all waste Drywall generators must comply with 3. Manage the different types of Drywall properly and safely at RDNO facilities (e.g. burial or transfer off site) 4. Divert as much Drywall as possible from disposal (comply with the waste reduction hierarchy) 5. Cooperate with neighboring jurisdictions where possible to reduce costs and gain efficiencies 6. Consult with senior governments to require that gypsum wallboard manufacturers take responsibility for the end of life of their product 7. Consult with government agencies to develop a provincial protocol for waste Drywall disposal and recycling.

B. Accept no amount of waste Drywall at any RDNO facility so that the RDNO can:

1. Avoid all asbestos hazards at RDNO facilities 2. Download all responsibility for waste Drywall management to private industry inside or outside the region including illegal dumping

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3. Pressure senior governments to take responsibility for management of all hazards associated with asbestos contaminated waste Drywall.

C. Collect and transfer all waste Drywall out of the region through a private facility contracted by the RDNO so that the RDNO can:

1. Ensure no asbestos hazards impact RDNO customers, contractors and employees at RDNO facilities 2. Ensure a private contractor takes responsibility for proper management of waste Drywall 3. Ensure waste Drywall is sorted and shipped in a safe and efficient manner to the appropriate location for disposal or recycling, at the waste Drywall generator’s expense 4. Cooperate with neighboring jurisdictions where possible to gain efficiencies (e.g. joint Request for Proposals).

The above options have varying degrees of acceptability with respect to local government authority, costs both administrative and operational, bureaucratic red tape and complexity. Wading through the myriad of issues associated with each option from both a facility user and an RDNO staff perspective is daunting given the various associated communication needs and the potential political backlash.

The RDNO considers that the main drivers for the sudden requirement to make changes to our existing processes and protocols for waste Drywall handling are as follows:

1. The hesitation by the Province to make producers responsible - the 2009 CCME Canada- Wide Action Plan for EPR (CAP) specifies the following: “Jurisdictions commit to working towards incorporation into operational EPR programs within eight (8) years of the adoption of the CAP for each of the following product categories, of specific identified products and materials as further elaborated upon by CCME: Construction materials, Demolition materials …” 2. The lack of provincially endorsed and controlled sampling and handling protocols for determining asbestos contamination of construction and demolition waste 3. The inconsistent interpretation and enforcement of worker health and safety regulations with respect to the handling of Drywall by workers in all sectors.

The hazards associated with friable asbestos handling should not be taken lightly, as well as the hazards associated with the release of hydrogen sulfide gasses and leachate at landfills that must bury Drywall with other refuse. Responsibility for end of life of this one building product should rest with the producer/manufacturer; not unlike with oil, pesticides, and fuel producers in BC, which are extremely hazardous materials that were at one time landfilled with residential garbage. Given that there is only a handful of manufacturers of Drywall in Canada and likely in North America, the implementation of an Extended Producer Responsibility program for this material should be fairly straightforward and quick.

Based on the above comments, information and attached report, the RDNO hereby strongly requests that the Ministry of Environment and Climate Change Strategy begin work immediately on enacting an EPR program in British Columbia for gypsum wallboard, both new and used.

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Letter to: Mr. Gary MacIsaac File No.: 5380.6.1.2018 From: Mike Fox, General Manager, Community Services Dated: May 9, 2018 Subject: Management of Waste Drywall in British Columbia Page 6 of 6

Should you have any questions regarding this request, please contact myself at mike.fox@rdnolca or 250-550-3719. We look forward to your response.

Sincerely,

Mike Fox, General Manager, Community Services

MF/sk

Enc. Board Report, dated April 18, 2018

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REGIONAL DISTRICT of NORTH OKANAGAN REPORT

File No.: 5386.6.4

TO: Board of Directors

FROM: Nicole Kohnert, Manager, Regional Engineering Services

DATE: April 18, 2018

SUBJECT: Waste Drywall Recycling and Disposal

RECOMMENDATION:

That staff prepare and submit a recommendation to the Union of BC Municipalities requesting support to add Drywall to the Recycling Regulation list of products to be managed by producers under an Extended Producer Responsibility (EPR) program; and further That staff prepare and submit a letter to the BC Minister of Environment and Climate Change Strategy requesting Drywall be added to the Recycling Regulation as a product to be managed by producers under an EPR program; and further That the Waste Drywall Recycling and Disposal report dated April 18, 2018 be received as information.

BACKGROUND:

Used and new pieces of waste gypsum wallboard (Drywall) generated by all sectors, including residential (Res), industrial, commercial and institutional (ICI), from activities such as building renovation, construction, and demolition, has been accepted through various protocols at RDNO Recycling and Disposal Facilities (RDF) since the facilities were opened. Waste Drywall includes Drywall from the demolition of existing structures (old Drywall) and Drywall cut ends from new construction (new Drywall). Prior to 2005 waste Drywall was normally mixed with other refuse and landfilled at the RDFs. The table below outlines the history of the RDNO Drywall recycling program.

History of Drywall Management in the RDNO Tipping Collection Joint Year Program Details Fee Facilities Mngt ($/tonne) All except <2005 $56 Buried as general refuse No SSTS Amended SWM Bylaw; banned recyclable Drywall; new $187/tonne fee for mixed C&D Waste; RFP & RFQ issued; contract awarded All except 2005 $130 to New West Gypsum – New Westminster No CTS & SSTS (hauling & processing); centralized stockpile at GVRDF; bin rental/hauling contract awarded to local hauler for other sites

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Report to: Board of Directors File No.: 5386.6.4 From: Nicole Kohnert, Manager, Regional Engineering Services Date: April 18, 2018 Re: Waste Drywall Recycling and Disposal Page 2 of 7

NWG contract terminated and pilot project 2006- All except $130 agreement issued to local company to conduct No 2008 CTS & SSTS recycling and reuse trials (e.g. agriculture) Joint RFP issued; awarded 5 yr contract awarded to Okanagan Gypsum Recycling – Yes: 2008- All except $135 Lake Country; Agri-Trans – Armstrong CSRD, 2013 CTS & SSTS purchased OGR (continued to operate in Lake RDOS Country Joint RFP issued; awarded 3 +2 yr contract to Sivan Enterprises – Lake Country (transport to 2013- All except Bio-cycle in Alberta for agriculture); last load $135 Partially 2017 CTS & SSTS received Oct/17. No future loads accepted due to potential presence of asbestos (potential – unproven); contract terminated in Jan/18 Stockpiling at GVRDF: 2 used Drywall piles, 1 2017- All except new cut ends pile (potentially recyclable now); $135 No 2018 CTS & SSTS ongoing discussions with agencies and neighboring jurisdictions to solve issues

Current Drywall Disposal and Recycling Practices in the RDNO

Recycling Drywall in the RDNO is part of an ongoing initiative to reduce the amount of construction and demolition waste going to landfills. Since the gypsum is reusable and recyclable and when buried in landfills with other garbage will generate hydrogen sulfide and leachate, it is important to manage this material differently to minimize the potential environmental impacts.

Besides the environmental impacts associated with the disposal of waste Drywall, Drywall installed prior to 1991 may represent a human health hazard. Asbestos was added to the wallboard to make it more noise absorbent, improve fire resistant capabilities and to make it stronger. Asbestos was also present in the drywall joint compound or in some paint or spray products such as "popcorn ceiling paint" that may have been sprayed on drywall ceilings. Activities such as renovation (e.g. sanding prior to repainting) and demolition can generate friable asbestos that homeowners, contractors and employees may be exposed to. Manufacturing products containing asbestos and handling these materials is highly regulated in Canada and in BC.

Once the RDNO Bylaw changes were approved to separate Drywall from regular refuse in 2005, a communication strategy was implemented. Member municipalities were encouraged to implement protocols to advise building and demolition permittees of the changes to the RDF acceptance rules and fees, to require waste management plans as part of the permitting process, and in order to curb illegal dumping, to require signoff off by RDNO solid waste management (SWM) staff on the permit applications. To date, only the City of Vernon has implemented an RDNO sign-off requirement for demolition permit applications. Recently requirements for an RDNO sign off were updated to include a requirement for the submission of a solid waste management plan with the permit application (online form). This requirement was intended to provide RDNO SWM staff with an opportunity to educate building owners and contractors on the economic and environmental benefits of separating recyclable materials at their work sites, and diverting these materials from disposal.

Prior to demolition of a pre-1991 structure, reputable demolition contractors will generally undertake a hazardous materials assessment prior to any activity, primarily in order to protect their workers. If asbestos containing material is present in the structure, the contractor will remove the asbestos containing material (abate the hazard). Specific protocols are to be followed during asbestos removal

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Report to: Board of Directors File No.: 5386.6.4 From: Nicole Kohnert, Manager, Regional Engineering Services Date: April 18, 2018 Re: Waste Drywall Recycling and Disposal Page 3 of 7

and shipment. The GVRDF is the only RDF where asbestos containing material is accepted for disposal. Asbestos containing material must be properly contained and is disposed in a designated area at the GVRDF. Materials known to contain asbestos (Drywall, pipe, flooring, ceiling tiles, etc) must be double bagged in 6 mil (thousandths of an inch) thick plastic bags. Notice of delivery of asbestos containing material must be provided at least 24 hours in advance to allow RDF operators to prepare for delivery of the material. These loads are placed into a designed filling area where they are carefully covered and not compacted to avoid any breakage of the bags and potential release of asbestos. The asbestos cells at the GVRDF fill quickly depending on the economic and housing activities in the region. The fee for disposal of asbestos containing material is $174/tonne (Controlled Waste). The RDF operations contractor has trained staff and a health and safety plan that is followed when handling hazardous waste.

Drywall containing tiles (e.g. from a bathroom renovation) is considered non-recyclable and is charged a $140/tonne disposal fee at the RDFs. No special handling measures are taken when this material is dropped off in a transfer bin at an RDF or at the tipping face.

DISCUSSION:

The RDNO is facing operational challenges as the quantity of Drywall stockpiled at the GVRDF continues to grow. There is currently no recycling option for waste Drywall due to the potential presence of asbestos. Burial of the mixed and old Drywall piles is possible, however it would come with associated environmental problems. Mixed (new and used Drywall) loads continue to arrive from the ASRDF, LRDF and KTS and to date no loads have been tested for asbestos contamination. RDF operators and RDNO site staff are fully aware of the asbestos hazards associated with old Drywall. Precautions are taken when working around Drywall at the transfer bins and at the tipping faces at all RDNO facilities.

The two mixed and used Drywall stockpiles at the GVRDF contain about 675 tonnes and continue to grow (see photos below), and the new Drywall cut ends stockpile contains about 150. Approximately 160 tonnes (28 loads) were received from September 1, 2017 to February 28, 2018 from the LRDF, ASRDF and the KTS. The GVRDF received 569 tonnes (1726 loads) of recyclable drywall and 5 tonnes (28 loads) of non-recyclable drywall from self-haulers and commercial haulers in this time period. The total revenue for both drywall types in this period was about $102,735.

It may be prudent at this time to discontinue hauling used drywall from the ASRDF, LRDF and KTS to the GVRDF and to dispose of this material, in accordance with a specific protocol, when it arrives at the ASRDF and LRDF. Accepting Drywall at the KTS should be discontinued. Continuing to collect and haul the new Drywall cut ends to the stockpile at the GVRDF would be satisfactory as there may be a more imminent solution for diverting this material from disposal.

GVRDF used Drywall Stockpiles

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Report to: Board of Directors File No.: 5386.6.4 From: Nicole Kohnert, Manager, Regional Engineering Services Date: April 18, 2018 Re: Waste Drywall Recycling and Disposal Page 4 of 7

Discussions with neighboring regional districts and landfill owners started almost immediately after notification was received in October 2017 that loads would no longer be accepted by the recycler in Alberta. Most landfills using the Alberta facility started stockpiling the material until an alternative facility or sampling protocol accepted by the Alberta facility could be found. It quickly became apparent that solid waste facility owners were on their own with respect to developing protocols to protect workers, the environment and still maintain service levels.

The City of Kelowna developed a sampling protocol with a qualified consultant in order to determine if their stockpiles at the Glenmore Landfill were contaminated with unacceptable levels of asbestos. They determined that their stockpiles did not contain more than the regulated concentration of asbestos fibres. This protocol has not been provided to nor approved by Work Safe BC or the BC Environmental Standards Branch.

Conversations with Metro Vancouver’s solid waste management staff revealed that they have been dealing with the asbestos contamination issue in their region since 2015 when New West Gypsum (NWG) was shut down by Work Safe BC. NWG is the only Drywall recycler in BC with one process in New Westminster and one in Calgary, Alberta. NWG separates the gypsum and paper and sends the gypsum back to Drywall manufacturers. The paper is recycled as well. NWG altered their acceptance protocols and were able to open their doors after a short time. Subsequently, Metro Vancouver developed a pilot protocol to separate all pre 1991 Drywall from newer cut ends. Old Drywall must be double bagged using specifically designed bags (available at most hardware retailers in the region) before it will be accepted transfer stations and the Vancouver Landfill. New Drywall cut ends are directed to NWG and must have a date label showing before it is accepted.

The Columbia Shuswap Regional District recently issued a Request for Proposals to determine if there was any interest in using the Drywall within a reasonable distance from Salmon Arm. The CSRD received no responses. Other regions are burying the material.

When it became apparent that there were several agencies and many local governments dealing with the Drywall recycling conundrum a cross-ministry asbestos working group was formed by the Ministry of Labour, which is responsible for the Workers Compensation Act. A conversation with the chair of this working group revealed that they had consulted with a number of stakeholder in order to determine the extent of the problem, receive recommendations and ensure no unintended consequences arose. Once the working group receives all proposals from stakeholders, including the Union of BC Municipalities, BC Housing, Ministry of Environment and Climate Change Strategy, industry, and labour groups, a report will be produced with recommendations. The report is expected to include an action plan that will be reviewed by the Deputy Ministry of Labour. There is no timeline on the completion of the report or its release to the public. A number of options have been discussed amongst local jurisdictions that would result in varying impacts on budgets, staff time, public and employee safety and environmental protection, and that can be categorized as follows:

A. Determine the asbestos contamination level of all waste Drywall generated in the RDNO so that the RDNO can:

1. Protect all workers, contractors and customers from asbestos hazards, including environmental 2. Cooperate with all building officials in the region to establish an acceptance protocol that all waste Drywall generators must comply with 3. Manage the different types of Drywall properly and safely at RDNO facilities (e.g. burial or transfer off site)

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Report to: Board of Directors File No.: 5386.6.4 From: Nicole Kohnert, Manager, Regional Engineering Services Date: April 18, 2018 Re: Waste Drywall Recycling and Disposal Page 5 of 7

4. Divert as much Drywall as possible from disposal (comply with the waste reduction hierarchy) 5. Cooperate with neighboring jurisdictions where possible to reduce costs and gain efficiencies 6. Consult with senior governments to require that gypsum wallboard manufacturers take responsibility for the end of life of their product 7. Consult with government agencies to develop a provincial protocol for waste Drywall disposal and recycling.

B. Accept no amount of waste Drywall at any RDNO facility so that the RDNO can:

1. Avoid all asbestos hazards at RDNO facilities 2. Download all responsibility for waste Drywall management to private industry inside or outside the region including illegal dumping 3. Pressure senior governments to take responsibility for management of all hazards associated with asbestos contaminated waste Drywall.

C. Collect and transfer all waste Drywall out of the region through a private facility contracted by the RDNO so that the RDNO can:

1. Ensure no asbestos hazards impact RDNO customers, contractors and employees at RDNO facilities 2. Ensure a private contractor takes responsibility for proper management of waste Drywall 3. Ensure waste Drywall is sorted and shipped in a safe and efficient manner to the appropriate location for disposal or recycling, at the waste Drywall generator’s expense 4. Cooperate with neighboring jurisdictions where possible to gain efficiencies (e.g. joint Request for Proposals).

The main driver for making changes to existing processes and protocols for waste Drywall handling is the lack of provincially endorsed and controlled sampling protocols and the interpretation of worker health and safety regulations. The hazards associated with friable asbestos handling should not be taken lightly, as well as the hazards associated with the release of hydrogen sulfide gasses and leachate released at landfills that still bury drywall with other refuse. Responsibility for end of life of this one building product should rest with the producer/manufacturer.

The RDNO has been investigating the feasibility of partnering with neighboring regional districts to develop a waste Drywall management system. In addition to this, best methods to manage the existing stockpiles of potentially asbestos-containing waste Drywall at RDNO Recycling and Disposal Facilities is being investigated in order to reduce the stock piles to a manageable level. The RDNO is developing a protocol, in collaboration with participating jurisdictions, to address waste Drywall acceptance at RDNO facilities.

LEGAL/STATUTORY AUTHORITY:

The RDNO has the authority to develop and implement programs associated with the management of municipal solid waste within the region in accordance with the Environmental Management Act (Part 3) and the Local Government Act (Part 9, Division 4, Sections 315 and 316) and RDNO Municipal Solid Waste Management Bylaw No. 2659, 2014.

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Report to: Board of Directors File No.: 5386.6.4 From: Nicole Kohnert, Manager, Regional Engineering Services Date: April 18, 2018 Re: Waste Drywall Recycling and Disposal Page 6 of 7

LEGAL/STATUTORY PROCEDURAL REQUIREMENTS:

Worker safety procedures with respect to the handling of hazardous materials must comply with the Worker Compensation Act (Part 3, Division 3) and its regulations, and environmental protection at RDNO facilities must comply with the Environmental Management Act (All parts), including facility Operational Certificates, with respect to acceptance and management of hazardous materials.

EXISTING POLICY:

Existing policy includes acceptance protocols for asbestos contaminated Drywall at the RDFs, the RDNO Health and Safety Plan, and acceptance of waste management plans associated with demolition permits issued by the City of Vernon.

FINANCIAL/BUDGETARY CONSIDERATIONS:

Depending on the options implemented moving forward, budget impacts may include:

• Additional operating expenditures for extra staffing to increase enforcement and administration • Additional collection, transfer, transport and processing costs • Additional capital expenditures for transfer facilities.

PERSONNEL IMPLICATIONS:

Although the RDNO has in place and has provided training with respect to the employer’s Health and Safety Plan, vigilance is required to continually ensure workers at the RDFs are safe from hazards and that any newly discovered hazards are mitigated promptly. Employees must be fully trained on any new protocols for acceptance of waste Drywall at the RDFs, and be made fully aware of the hazards associated with handling asbestos containing waste Drywall received un-bagged at the RDFs. Long term health impacts are associated with the handling of friable asbestos.

Additional staffing may be required if new waste Drywall handling procedures are implemented that include increased administration, inspection, monitoring, and reporting.

COMMUNICATIONS CONSIDERATIONS:

Depending on the decisions moving forward, a communication plan will be essential in order to effectively implement a new or amended program for waste Drywall recycling and disposal. The following stakeholders should be included in the communications plan: - Elected officials - MOE & CCS - Haulers - UBCM - Customers - WSBC - Building officials - Internal Staff

Page 20 of 80 Committee of the Whole - Regular

Report to: Board of Directors File No.: 5386.6.4 From: Nicole Kohnert, Manager, Regional Engineering Services Date: April 18, 2018 Re: Waste Drywall Recycling and Disposal Page 7 of 7

Submitted by:

Nicole Kohnert, P. Eng. Manager, Regional Engineering Services

Reviewed and endorsed by:

Mike Fox~ General Manager, Community Services

Page 21 of 80 Committee of the Whole - Regular

Attachment B ~~~rn ITW!EIDJ BRITISH COLUMBIA JUL 0 4 2018

REGIONAL DISTRICT OF NORTH OKANAOAN Reference: 316433 JUN 2 7 2rna

Rick Fairburn, Chair And Directors Regional District North Okanagan 9848 Aberdeen Road Coldstream BC V 1B 2K9

Dear Mr. Fairburn and Directors:

I am responding to a letter of May 9, 2018, from the Regional District of North Okanagan requesting an amendment to the Recycling Regulation to require drywall to be covered under Extended Producer Responsibility (EPR) in British Columbia. I apologize for the delay in responding.

My ministry greatly appreciates the Regional District of North Okanagan's (RDNO) support to see more products managed in this manner. Local government engagement in EPR is paramount to the programs' success.

As you may know, BC currently has 22 industry-led EPR recycling programs covering 14 different product categories. The ministry has added new product categories to the regulation in consideration of the schedules in the Canadian Council of Ministers of the Environment Canada-Wide Action Plan for Extended Producer Responsibility (CCME CAP-EPR). In fact, BC is a national leader in implementing many EPR programs.

After years of rapid expansion of EPR programs in the province, the ministry's current focus is on full implementation and continuous improvement of its existing programs. However, we continuously assess potential product priority lists for consideration for the EPR framework. We are aware that drywall poses significant challenges to the RDNO and elsewhere and it is in everyone's best interested to see more products diverted from disposal. In the meantime, given local governments are always free to initiate diversion programs, I encourage you to continue to divert this material in the safest and most practical manner possible.

I certainly appreciate the points raised by the RDNO regarding the benefits of including these products in the regulation. Should an amendment to the regulation to include drywall be considered, the ministry will consult on this intention, providing opportunity for further input at that time. . .. 2

Ministry of Environment and Office of the Mailing Address: Telephone: 250 387-1187 Climate Change Strategy Minister Parliament Buildings Facsimile: 250 387-1356 Victoria BC V8V 1X4 Website: www.gov.bc.ca/env

Page 22 of 80 Committee of the Whole - Regular

- 2 -

Once again, I thank you for taking the time to provide thoughtful input on the challenges involved with managing gypsum, and your support for EPR program expansion.

Sincerely,

George Hey Minister

cc: Mike Fox, General Manager, Community Service, Regional District of North Okanagan David Sewell, Chief Administrative Officer, Regional District of North Okanagan

Page 23 of 80 Committee of the Whole - Regular

Asbestos and D1ywall I Columbia Shuswap Regional District Page 1of4

Attachment C

[ I WantTo ... A-Z Directory Search ...

COLUMBIASHU WAP REGION DISTRICT

Asbestos and Drywall

Disposal of Materials That Asbestos - Risks and Safe May Contain Asbestos Handling

When beginning a renovation or demolition project, find out if the waste materials in your home may contain asbestos.

Materials That May Contain Asbestos - renovation or demolition materials such as: gypsum wall board, ceiling texture, wall tape and mud compound, floor tile and attic Learn about the risks and how to properly insulation. handle materials that may contain asbestos from these resources: Up until 1990, asbestos was used in the BC Ministry of Health manufacturing of gypsum wall board, (https://www.healthlinkbc.ca/healthlin ceiling texture, wall tape and mud files/asbestos) compound, linoleum flooring, as well as WorkSafeBC on asbestos Backtw attic insulation. When these asbestos ,. L. L. - • I I L ~ _J _ I - _ I ~ 11 _ _ __ 1' < ~

https://www.csrd.bc.ca/services/solid-waste-recycling/asbestos-and-drywall 4/29/2019

Page 24 of 80 Committee of the Whole - Regular

Asbestos and Drywall I Columbia Shuswap Regional District Page 2 of 4

containing materials are disturbed WorkSafeBC brochure for homeowners A (drilled, sawed, sanded, or broken up (https://www.worksafebc.com/en/resc during renovation or demolition), safety/information-sheets/asbestos- workers or building occupants can freq u ently-asked-q uesti o ns? breathe in hazardous asbestos fibres. lang=en) Exposure to asbestos has been linked to Metro Vancouver handout on testing for permanent lung damage. Anyone asbestos conducting a renovation or demolition (http://www.metrovancouver.org/serv project on a building suspected of waste/SolidWastePublications/Gypsun containing pre-1990 building material should be aware of the risks and avoid exposure to asbestos. Materials that may contain asbestos should not be disturbed or removed without adequate knowledge and protective equipment.

When it comes to the disposal of renovation of demolition material that may contain asbestos, the key date is whether the building material was manufactured BEFORE 1990 or AFTER 1990.

• If renovation or demolition materials were installed AFTER 1990, you can safely remove and dispose of the materials at a CSRD refuse disposal facility, in accordance with the CSRD Disposal of Materials that May Contain Asbestos - Disposal Guidelines.

• If renovation or demolition materials were in sta lled BEFORE 1990, these materials shou h be tested for the presence of asbestos (this involves the collection of samples by a qualified professional and analysis by an accredited laboratory), OR

• Safe ly handle and dispose of the material as though it does contains asbestos in accordance with the CSRD Disposal of Materials that May Contain Asbestos - Disposal Gu idelines.

Vi w CSRD Di po al of Mat ri Is That May Contain Asb tos • Dispos I Guidelines here (/sites/defaultlfiles/application-forms/Asbestos%20Disposal% 20Gu idelines%20Document%200ct°Ai202018.pdf)

If testing confirms the waste material DOES NOT contain asbestos:

• The materials can be safely removed and disposed in accordance with the CSRD Disposa of Materials that May Contain Asbestos - Disposal Gu id elines at any CSRD Refuse Dispos; Faci lity.

If testing confirms the waste material DOES contain asbestos:

Bac k tov < ~

https://www.csrd.bc.ca/services/solid-waste-recycling/asbestos-and-drywall 4/29/2019

Page 25 of 80 Committee of the Whole - Regular

Asbestos and Drywall I Columbia Shuswap Regional District Page 3 of 4

• A qualified asbestos abatement company should be contacted to properly manage the safe removal and disposal, OR • A competent asbestos management consultant should be contacted for guidance on how to carefully remove the material so as not to contaminate the rest of your home, AND • The material should be disposed in accordance with CSRD Disposal of Materials that May Contain Asbestos - Disposal Guidelines at a CSRD Refuse Disposal Facility.

For further information on working with asbestos please visit the WorkSafe BC website at www.worksafebc.com. (https://www.worksafebc.com/en) Disposal Guide lin es for Materials that May Contain Asbestos

To protect workers at CSRD Refuse Disposal Facilities from exposure to Asbestos-Containing Materials, the CSRD has created guidelines and procedures for accepting construction, renovation and demolition waste with materials that may contain asbestos.

The CSRD has identified three categories of Materials That May Contain Asbestos:

D Category 1 - AFTER-1990 Renovation/Demolition Wa ste - Delivered to a CSRD Transfer Station OR Landfill

D Category 2 - BEFORE-1990 Renovation/Demolition Waste - Delivered to a CSRD Transfer Station

D Category 3 - BEFORE -1990 Renovation/Demolition Waste - Delivered to a CSRD Landfill

Forms and Applications

Download th A b to D cl ration and Acknowl d m nt Form (/sites/default!files/SolidWaste/Asbestos%20Declaration%20and% 20Acknowledgement%20Form.pdf)

Download th Controll d Wa t Di posal Application (/sites/default/files/SolidWaste/Controlled%20Waste%20Disposal%20Application% 202018%20fillable.pdf)

© CSRD LEGAL/PR IVACY Back_to CONTACT US CAREERS !QQ

https ://www. csrd.be. ca/services / so lid-waste-recycling/asbestos -and-drywall 4/29/2019

Page 26 of 80 Committee of the Whole - Regular

COLUMBIA SHUSWAP REGIONAL DISTRICT PO Box 978, 555 Harbourfront Drive NE, Salmon Arm, BC VlE 4Pl T: 250.832.8194 I F: 250.832.3375 I TF: 1.888.248.2773 I www.csrd.bc.ca

POST-1990 CONSTRUCTION/RENOVATION/DEMOLITION WASTE ASBESTOS DECLARATION AND ACKNOWLEDGEMENT FOR CSRD REFUSE DISPOSAL FACILITIES *Th is form must be completed and signed before unloading*

Customer/Company Name:

Address:

Phone#:

Vehicle Licence#:

Ticket#:

Load CONTAINS ONLY YES [ NO POST-1990 Construction/Demolition Material

Origin of Material: RES IDENTIAL [ COMMERCIAL [

Hazard Assessment Received: YES NO

PLEASE READ CAREFULLY By completing and signing this form, you:

1) understand and agree that asbestos is a hazardous material found in construction material installed pre- 1990 (insulation, flooring tiles, drywall, drywall joint compound / mud) that if handled or processed improperly poses a serious health risk to workers exposed to asbestos-contaminated air;

2) affirm that you have made a truthful declaration about the origin, age and content of the material you are delivering and dumping at this facility;

3) agree that your load will be subject to the offence and penalties outlined in the CSRD's Ticket Information Utilization Bylaw if load audits prove the presence of asbestos in your audited load; and

4) agree to accept liability for, and indemnify the CSRD aga inst, all costs, claims, damages, liability, fees, penalties, offences, fines, expenses incurred by the CSRD that may resu lt from an incorrect or untruthful declaration regarding the origin, age and content of the material you are delivering and dumping at this facility.

Customer Signature Date

CSRD Attendant Date

Reference CSRD So li d Waste Disposal Tipping Fee and Regulation Bylaw available at www.csrd .bc.ca .

Page 27 of 80 Committee of the Whole - Regular

Page 1 Bylaw No. 5759 Schedule C

CSRD SOLID WASTE DISPOSAL TIPPING FEE AND REGULATION BYLAW NO. 5759 SCHEDULE C TIPPING FEES AND CHARGES

1. TIPPING FEES

1.1 . The Tipping Fees for Disposal of Solid Waste at a Scaled Refuse Disposal Facility as measured by mass on the scale operated by the Facility Attendant at a Refuse Disposal Facility are as follows:

Materials Accepted Unit Minimum (Scaled Site) Fee Rate Charge

Bagged Refuse $3 Each NIL Bagged Refuse for Reuse Centre $3 Each NIL Refuse $80 Tonne $5 Refuse for Reuse Centre $80 Tonne $5 Bulky Waste $160 Tonne $10 Mixed Load $160 Tonne $10 Demolition Waste (containing Drywall or Asphalt Shingles) $240 Tonne $15 Metal Waste (Including Appliances and Propane Cylinders) NO CHARGE Appliances (containing Ozone Depleting Substance) NO CHARGE Clean Soil $10 Tonne $5 Wood Waste $40 Tonne $5 Wood Waste - Chipped $15 Tonne $5 Yard and Garden Waste NO CHARGE Invasive (Alien) Plants NO CHARGE Gypsum Board or Drywall $100 Tonne $5 Asphait Shingles $100 Tonne $5 Concrete (includes asphalt, bricks, porcelain) $80 Tonne $5 Mattresses $15 Unit $15 Land Clearing Waste $160 Tonne $10 Dead Animal $80 Tonne $5 Controlled Waste $160 Tonne $10 Controlled Waste (requiring deep burial) $240 Tonne $240 Biosolids $10 Tonne $5 Contam in ated Soil $35 Tonne $5 Septage Pumping (Revelstoke Landfill Only) $45 Tonne $5 Commercial Recyclable Material $80 Tonne $5 Residential Recyclable Materials NO CHARGE Batteries, Books NO CHARGE

Page 28 of 80 Committee of the Whole - Regular

Attachment D

SCHEDULE “E” SANITARY LANDFILL / RECYCLING FEES BL10565, BL10741 & BL10871 amended Section 1:

1. The following rates shall be paid for all material delivered to the Landfill at all times when the landfill scale is operating:

(a) Demolition, construction, and land clearing waste material:

(i) source-separated recyclables $ 10.00 per metric tonne (ii) asphalt and concrete $ 25.00 per metric tonne (iii) gypsum drywall $175.00 per metric tonne

(b) Wood Waste $ 10.00 per metric tonne (i) Lumber $ 10.00 per metric tonne

(c) Recyclable Gypsum in loads of one metric tonne or less $175.00 per metric tonne (or portion thereof)

(d) Useable clean fill, batteries, propane tanks No Charge

(e) Yard Waste: (i) Yard Waste $40.00 per metric tonne

(ii) stumps $90.00 per metric tone

(f) Tires (with or without rim, as indicated): (i) up to 40.64 cm (16 in) diameter, with or without rim $3.00 per tire (ii) 40.64 to 64.77 cm (16 to 25.5 in) diameter, without rim $5.00 per tire (iii) 40.64 to 64.77 cm (16 to 25.5 in) diameter, with rim $10.00 per tire

(g) Asbestos (friable) $250.00 per metric tonne

(h) Hydrocarbon Contaminated Soils $8.00 per metric tonne

(i) Recyclable corrugated cardboard larger than 1 m3 $10.00 per load

(j) Ash $100.00 per tandem axle load

(k) Carcasses weighing under 100 kg

“$85.00” Effective January 1, 2018 “$95.00” Effective January 1, 2019 “100.00” Effective January 1, 2020

(l) Carcasses weighing over 100 kg $200.00 per carcass

(m) All other residential Garbage not included above:

“$85.00 per metric tonne” Effective January 1, 2018 “$95.00 per metric tonne” Effective January 1, 2019 “$100.00 per metric tonne” Effective January 1, 2020

Page 29 of 80 Committee of the Whole - Regular

(n) Any material determined by the Director of Civic $50.00 per metric tonne Operations to require burial in an area away from the surcharge, over and active face above any other required

(o) Any Mandatory Recyclable Material included in mixed waste $150.00 per metric tonne surcharge, over and above any other required fee

(p) Culled Cherries $16.57/tonne

(q) Handling Fee for Contaminated Mandatory Recyclable Loads $50.00 per metric tonne

(r) Handling Fee for immediate burial of International Waste $150.00 surcharge (plus applicable weight-based fees)

(s) Requiring sorting $125.00 per metric tonne

(t) Stumps (no soil or rocks attached) $90.00 per metric tonne

(u) Mattresses $12.50 each or $12.50 each plus weight (as Garbage) when in a co-mingled load

(v) Biosolids (only accepted on a short $250.00 per metric tonne term emergency basis and with prior written approval from the City)

BL10565 amended the following: 2. At all times when the scales are not operating, all material delivered to the Landfill shall be subject to the following charges, according to the type of vehicle delivering the material. and without taking into consideration the volume or weight of the material contained in the vehicle:

Vehicle Type Fee

Utility Trailer, or Vehicles up to 3/4 ton $8.00 for January 1, 2012 Utility Trailer, or Vehicles up to 3/4 ton $10.00 for January 1, 2013 Tandem Axle Trailer $50.00 Side Dump Collector Truck, less than 50m3 $100.00 Side Dump Collector Truck, equal to or greater than 50m3 $150.00 Curbster $250.00 Roll-off Open Container, 15 yard bin $80.00 Roll-off Open Container, 20 yard bin $95.00 Roll-off Open Container, 30 yard bin $155.00 Roll-off Open Container, 40 yard bin $200.00 Roll-off Closed Compactor Unit, up to 40 yard $325.00 Large Compactor, greater than 40 yard $360.00 Single Axle Truck (1 ton) $60.00

Page 30 of 80 Committee of the Whole - Regular

Single Axle Truck (2 ton) $85.00 Single Axle Truck (3 ton) $125.00 Single Axle Truck (5 ton) $170.00 Single Axle Truck (dump) $190.00 Tandem Axle Truck (dump) $280.00 Tractor Trailer Unit $325.00 Source Separated Recyclables $50.00

BL10565 & 10741 amended the following: 3. All Garbage hauled directly to the Landfill site by customers qualifying or authorized for pick-up through the City’s residential collection systems established pursuant to this bylaw shall be subject to the following minimum charges:

• $5.00 per load of wood waste or yard waste for loads weighing up to and including 250 kg, and as per the table below for Garbage or other billable waste streams for loads weighing up to and including 250 kg:

$11 per load Effective January 1, 2018 $12 per load Effective January 1, 2019

$85.00 per metric tonne Effective January 1, 2018 $95.00 per metric tonne Effective January 1, 2019 $100.00 per metric tonne Effective January 1, 2020

BL10122 and BL10565 amended the following: 4. Owners of all Residential Dwelling Premises, including Owners of property who have been granted a waiver of service, pursuant to section 2.1.1 of this bylaw, or who have been excluded, pursuant to section 2.1.3 of this bylaw, from the City’s residential collection systems, will be levied annually on their property tax notice or utility bill a fee to cover Solid Waste Reduction Services; landfill disposal costs, waste reduction activities, recycle depot and recycle processing facilities. New accounts will be billed from the date of request for final inspection on a pro-rated basis. This Solid Waste Reduction Services Fee is $99.04 per residential unit per year for 2012 and $108.42 for 2013. The Collection Fee portion of the Collection and Solid Waste Reduction Fee is $88.88.

Page 31 of 80 Committee of the Whole - Regular

Attachment A

REGIONAL DISTRICT NORTH OKANAGAN MEMBER MUNICIPALITIES: ELECTORAL AREAS: CITY OF ARMSTRONG VILLAGE OF LUMBY “B” – SWAN LAKE “E” – CHERRYVILLE CITY OF ENDERBY CITY OF VERNON “C” – BX DISTRICT “F” – ENDERBY (RURAL) DISTRICT OF COLDSTREAM TOWNSHIP OF SPALLUMCHEEN “D” – LUMBY (RURAL)

OFFICE OF:COMMUNITY SERVICES OUR FILE No.: 5380.6.1.2018

May 9, 2018

Mr. Gary MacIsaac Union of BC Municipalities Suite 60-10551, Shellbridge Way Richmond, BC, V6X 2W9

Dear Mr. MacIsaac::

Re: Management of Waste Drywall in British Columbia

At the Regional District of North Okanagan Board of Directors meeting held on April 18, 2018, the following resolution was passed: “That staff prepare and submit a recommendation to the Union of BC Municipalities requesting support to add Drywall to the Recycling Regulation list of products to be managed by producers under an Extended Producer Responsibility (EPR) program.”

As you may know, within the last two years, the management of gypsum wallboard (Drywall) generated by the construction, renovation and demolition sectors in British Columbia, has become a significant problem for local government. This letter provides some background information with respect to the extent of the issues faced by landfill owners, and most importantly is a request for your support to add Drywall to BC’s Recycling Regulation.

Used and new pieces of waste Drywall generated by all sectors, including residential (Res), industrial, commercial and institutional (ICI), and construction and demolition (C&D), from activities such as building renovation, construction, and demolition, has been accepted through various protocols at RDNO Recycling and Disposal Facilities (RDF) since the facilities were opened. The loads arriving at facilities contain Drywall from various activities and contain a variety of Drywall related materials. The following table outlines the types of loads, the source activities and the current management methods used at RDNO facilities to manage these materials currently.

Tipping Source Activity Current Handling Fee Source Separated Drywall – nothing adhered New Construction Stockpiled for possible future recycling $135/tonne Demolition – Pre 1991 Structure Stockpiled for future burial $135/tonne Demolition – Post 1990 Structure Stockpiled for future burial $135/tonne Renovation – Pre 1991 Structure Stockpiled for future burial $135/tonne Renovation – Post 1990 Structure Stockpiled for future burial $135/tonne Source Separated Drywall – tiles, etc adhered New Construction Buried $140/tonne

9848 Aberdeen Road Toll Free : 1-888-550-3700 Coldstream, BC V1B 2K9 Phone: 250.550.3700 Fax: 250.550.3701 E-Mail: [email protected]

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Letter to: Mr. Gary MacIsaac File No.: 5380.6.1.2018 From: Mike Fox, General Manager, Community Services Dated: May 9, 2018 Subject: Management of Waste Drywall in British Columbia Page 2 of 6

Tipping Source Activity Current Handling Fee Demolition – Pre 1991 Structure Stockpiled for future burial $140/tonne Demolition – Post 1990 Structure Stockpiled for future burial $140/tonne Renovation – Pre 1991 Structure Stockpiled for future burial $140/tonne Renovation – Post 1990 Structure Stockpiled for future burial $140/tonne Mixed Load – with other types of waste New Construction Buried $303/tonne Demolition – Pre 1991 Structure Buried $303/tonne Demolition – Post 1990 Structure Buried $303/tonne Renovation – Pre 1991 Structure Buried $303/tonne Renovation – Post 1990 Structure Buried $303/tonne Manifested Load – from a hazardous waste abatement process New Construction N/A N/A Demolition – Pre 1991 Structure Buried (Asbestos Cell) $174/tonne Demolition – Post 1990 Structure Buried (Asbestos Cell) $174/tonne Renovation – Pre 1991 Structure Buried (Asbestos Cell) $174/tonne Renovation – Post 1990 Structure Buried (Asbestos Cell) $174/tonne

A number of attempts have been made to divert Drywall from RDNO landfills over the years. The following table outlines these strategies.

History of Drywall Management in the RDNO Tipping Collection Joint Year Fee Program Details Facilities Mngt ($/tonne) All except <2005 $56 Buried as general refuse No SSTS Amended SWM Bylaw; banned recyclable Drywall; new $187/tonne fee for mixed C&D Waste; RFP & RFQ issued; contract awarded to All except CTS 2005 $130 New West Gypsum – New Westminster (hauling No & SSTS & processing); centralized stockpile at GVRDF; bin rental/hauling contract awarded to local hauler for other sites NWG contract terminated and pilot project 2006- All except CTS $130 agreement issued to local company to conduct No 2008 & SSTS recycling and reuse trials (e.g. agriculture) Joint RFP issued; 5 yr contract awarded to Yes: 2008- All except CTS Okanagan Gypsum Recycling – Lake Country; $135 CSRD, 2013 & SSTS Agri-Trans – Armstrong purchased OGR RDOS (continued to operate in Lake Country Joint RFP issued; awarded 3 +2 yr contract to Sivan Enterprises – Lake Country (transport to 2013- All except CTS Bio-Cycle in Alberta for agriculture); last load $135 Partially 2017 & SSTS delivered Oct/17. No future loads accepted due to potential presence of asbestos (unproven); contract terminated in Jan/18 Stockpiling at GVRDF: 2 old Drywall piles, 1 2017- All except CTS new cut ends pile (potentially recyclable); $135 No 2018 & SSTS ongoing discussions with agencies and neighboring jurisdictions to solve issues;

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Letter to: Mr. Gary MacIsaac File No.: 5380.6.1.2018 From: Mike Fox, General Manager, Community Services Dated: May 9, 2018 Subject: Management of Waste Drywall in British Columbia Page 3 of 6

continue to transport from KTS, LRDF and ASRDF to GVRDF

For more than 15 years, diverting Drywall in the RDNO has been a major part of ongoing initiatives to reduce the amount of construction and demolition waste going to landfills, as specified in RDNO’s original and updated Solid Waste Management Plans (SWMP). The following are excerpts from the SWMPs:

RDNO shall implement certain material bans at all landfills in the Regional District. Material bans would reflect the regional recycling and composting systems as implemented, and could include materials such as certain DLC waste, such as wood, gypsum and land clearing debris (unless the site is a DLC landfill).

RDNO shall (will) require segregation of certain materials at all landfills in the Regional District. Materials to be set aside should include items such as truck tires, large metal objects, white goods, gypsum, plastics, cans and bottles, auto hulks, and wood.

Collection and recycling of difficult wastes such as gypsum, tires, batteries, autohulks, etc. will be reserved for private enterprise.

Examine mechanisms for further diversion of demolition, land-clearing and construction (DLC) waste, including but not limited to, private and public resource recovery parks and partnerships with industry.

Since much of the Drywall is reusable and recyclable, but also potentially a health hazard due to its asbestos content, and an environmental hazard when buried in landfills with other garbage by generating hydrogen sulfide gas, odour and leachate, it is important to manage this material so as to minimize the potential environmental and health impacts and maximize diversion. RDNO’s Greater Vernon RDF Operational Certificate specifies the following in this regard:

“The following waste types and materials are prohibited from being landfilled: - Hazardous Wastes as defined in the Hazardous Waste Regulation, other than those specifically approved within the Hazardous Waste Regulation for disposal to authorized landfills” and

“The disposal of waste asbestos in compliance with the requirements of Section 40 of the Hazardous Waste Regulation under the Environmental Management Act is permitted. In accordance with Section 40 “Management of Waste Asbestos” and under Part 6 “Management of Specific Hazardous Wastes” of the Hazardous Waste Regulation, the waste asbestos disposed at a landfill other than a secure landfill must be immediately covered with a minimum of 0.5 meter of cover material.”

Attached to this letter is a report provided to the RDNO Board of Directors at their April 18, 2018 regular meeting outlining the health, worker safety, management and governance issues associated with managing Drywall at RDNO disposal facilities. The report outlines the recent and significant challenges faced by local governments, including the following:

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Letter to: Mr. Gary MacIsaac File No.: 5380.6.1.2018 From: Mike Fox, General Manager, Community Services Dated: May 9, 2018 Subject: Management of Waste Drywall in British Columbia Page 4 of 6

a. varied interpretation and enforcement of regulations by Work Safe BC throughout the Province b. lack of involvement by the Ministry of Environment and Climate Change Strategy with respect to environmental impacts of all of a sudden stockpiling and burying vast quantities of Drywall at landfills (RDNO currently has 1,000 tonnes stockpiled and this is increasing daily). c. lack of communication with Interior BC landfill owners and operators prior to closure of recycling facilities that received vast quantities of reusable and recyclable Drywall for more than15 years d. lack of Provincial protocols and standards for management of waste Drywall containing and not containing asbestos e. impacts on waste diversion initiatives both regionally and provincially.

It is our understanding that a cross-ministry asbestos working group was formed by the Ministry of Labour. A conversation with the chair of this working group revealed that they had consulted with a number of stakeholders in order to determine the extent of the problem, receive recommendations and ensure no unintended consequences arose. The list of stakeholders did not include Interior BC landfill owners or local governments, which was unfortunate. It was explained that a report will be produced with recommendations sometime this year and will include an action plan. No timeline for this report’s release to the public was provided.

Given the fact that all local governments are virtually on their own with respect to implementation of new Drywall acceptance procedures at our facilities and new building permit issuance procedures for the foreseeable future, and that provincial regulation amendments can take many years, the following three options (A, B and C) have been considered by the RDNO:

A. Determine the asbestos contamination level of all waste Drywall generated in the RDNO prior to acceptance at disposal facilities so that the RDNO can:

1. Protect all workers, contractors and customers from asbestos hazards, including environmental 2. Cooperate with all building officials in the region to establish an acceptance protocol that all waste Drywall generators must comply with 3. Manage the different types of Drywall properly and safely at RDNO facilities (e.g. burial or transfer off site) 4. Divert as much Drywall as possible from disposal (comply with the waste reduction hierarchy) 5. Cooperate with neighboring jurisdictions where possible to reduce costs and gain efficiencies 6. Consult with senior governments to require that gypsum wallboard manufacturers take responsibility for the end of life of their product 7. Consult with government agencies to develop a provincial protocol for waste Drywall disposal and recycling.

B. Accept no amount of waste Drywall at any RDNO facility so that the RDNO can:

1. Avoid all asbestos hazards at RDNO facilities 2. Download all responsibility for waste Drywall management to private industry inside or outside the region including illegal dumping

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Letter to: Mr. Gary MacIsaac File No.: 5380.6.1.2018 From: Mike Fox, General Manager, Community Services Dated: May 9, 2018 Subject: Management of Waste Drywall in British Columbia Page 5 of 6

3. Pressure senior governments to take responsibility for management of all hazards associated with asbestos contaminated waste Drywall.

C. Collect and transfer all waste Drywall out of the region through a private facility contracted by the RDNO so that the RDNO can:

1. Ensure no asbestos hazards impact RDNO customers, contractors and employees at RDNO facilities 2. Ensure a private contractor takes responsibility for proper management of waste Drywall 3. Ensure waste Drywall is sorted and shipped in a safe and efficient manner to the appropriate location for disposal or recycling, at the waste Drywall generator’s expense 4. Cooperate with neighboring jurisdictions where possible to gain efficiencies (e.g. joint Request for Proposals).

The above options have varying degrees of acceptability with respect to local government authority, costs both administrative and operational, bureaucratic red tape and complexity. Wading through the myriad of issues associated with each option from both a facility user and an RDNO staff perspective is daunting given the various associated communication needs and the potential political backlash.

The RDNO considers that the main drivers for the sudden requirement to make changes to our existing processes and protocols for waste Drywall handling are as follows:

1. The hesitation by the Province to make producers responsible - the 2009 CCME Canada- Wide Action Plan for EPR (CAP) specifies the following: “Jurisdictions commit to working towards incorporation into operational EPR programs within eight (8) years of the adoption of the CAP for each of the following product categories, of specific identified products and materials as further elaborated upon by CCME: Construction materials, Demolition materials …” 2. The lack of provincially endorsed and controlled sampling and handling protocols for determining asbestos contamination of construction and demolition waste 3. The inconsistent interpretation and enforcement of worker health and safety regulations with respect to the handling of Drywall by workers in all sectors.

The hazards associated with friable asbestos handling should not be taken lightly, as well as the hazards associated with the release of hydrogen sulfide gasses and leachate at landfills that must bury Drywall with other refuse. Responsibility for end of life of this one building product should rest with the producer/manufacturer; not unlike with oil, pesticides, and fuel producers in BC, which are extremely hazardous materials that were at one time landfilled with residential garbage. Given that there is only a handful of manufacturers of Drywall in Canada and likely in North America, the implementation of an Extended Producer Responsibility program for this material should be fairly straightforward and quick.

Based on the above comments, information and attached report, the RDNO hereby strongly requests that the Ministry of Environment and Climate Change Strategy begin work immediately on enacting an EPR program in British Columbia for gypsum wallboard, both new and used.

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Letter to: Mr. Gary MacIsaac File No.: 5380.6.1.2018 From: Mike Fox, General Manager, Community Services Dated: May 9, 2018 Subject: Management of Waste Drywall in British Columbia Page 6 of 6

Should you have any questions regarding this request, please contact myself at mike.fox@rdnolca or 250-550-3719. We look forward to your response.

Sincerely,

Mike Fox, General Manager, Community Services

MF/sk

Enc. Board Report, dated April 18, 2018

Page 37 of 80 Committee of the Whole - Regular

REGIONAL DISTRICT of NORTH OKANAGAN REPORT

File No.: 5386.6.4

TO: Board of Directors

FROM: Nicole Kohnert, Manager, Regional Engineering Services

DATE: April 18, 2018

SUBJECT: Waste Drywall Recycling and Disposal

RECOMMENDATION:

That staff prepare and submit a recommendation to the Union of BC Municipalities requesting support to add Drywall to the Recycling Regulation list of products to be managed by producers under an Extended Producer Responsibility (EPR) program; and further That staff prepare and submit a letter to the BC Minister of Environment and Climate Change Strategy requesting Drywall be added to the Recycling Regulation as a product to be managed by producers under an EPR program; and further That the Waste Drywall Recycling and Disposal report dated April 18, 2018 be received as information.

BACKGROUND:

Used and new pieces of waste gypsum wallboard (Drywall) generated by all sectors, including residential (Res), industrial, commercial and institutional (ICI), from activities such as building renovation, construction, and demolition, has been accepted through various protocols at RDNO Recycling and Disposal Facilities (RDF) since the facilities were opened. Waste Drywall includes Drywall from the demolition of existing structures (old Drywall) and Drywall cut ends from new construction (new Drywall). Prior to 2005 waste Drywall was normally mixed with other refuse and landfilled at the RDFs. The table below outlines the history of the RDNO Drywall recycling program.

History of Drywall Management in the RDNO Tipping Collection Joint Year Program Details Fee Facilities Mngt ($/tonne) All except <2005 $56 Buried as general refuse No SSTS Amended SWM Bylaw; banned recyclable Drywall; new $187/tonne fee for mixed C&D Waste; RFP & RFQ issued; contract awarded All except 2005 $130 to New West Gypsum – New Westminster No CTS & SSTS (hauling & processing); centralized stockpile at GVRDF; bin rental/hauling contract awarded to local hauler for other sites

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Report to: Board of Directors File No.: 5386.6.4 From: Nicole Kohnert, Manager, Regional Engineering Services Date: April 18, 2018 Re: Waste Drywall Recycling and Disposal Page 2 of 7

NWG contract terminated and pilot project 2006- All except $130 agreement issued to local company to conduct No 2008 CTS & SSTS recycling and reuse trials (e.g. agriculture) Joint RFP issued; awarded 5 yr contract awarded to Okanagan Gypsum Recycling – Yes: 2008- All except $135 Lake Country; Agri-Trans – Armstrong CSRD, 2013 CTS & SSTS purchased OGR (continued to operate in Lake RDOS Country Joint RFP issued; awarded 3 +2 yr contract to Sivan Enterprises – Lake Country (transport to 2013- All except Bio-cycle in Alberta for agriculture); last load $135 Partially 2017 CTS & SSTS received Oct/17. No future loads accepted due to potential presence of asbestos (potential – unproven); contract terminated in Jan/18 Stockpiling at GVRDF: 2 used Drywall piles, 1 2017- All except new cut ends pile (potentially recyclable now); $135 No 2018 CTS & SSTS ongoing discussions with agencies and neighboring jurisdictions to solve issues

Current Drywall Disposal and Recycling Practices in the RDNO

Recycling Drywall in the RDNO is part of an ongoing initiative to reduce the amount of construction and demolition waste going to landfills. Since the gypsum is reusable and recyclable and when buried in landfills with other garbage will generate hydrogen sulfide and leachate, it is important to manage this material differently to minimize the potential environmental impacts.

Besides the environmental impacts associated with the disposal of waste Drywall, Drywall installed prior to 1991 may represent a human health hazard. Asbestos was added to the wallboard to make it more noise absorbent, improve fire resistant capabilities and to make it stronger. Asbestos was also present in the drywall joint compound or in some paint or spray products such as "popcorn ceiling paint" that may have been sprayed on drywall ceilings. Activities such as renovation (e.g. sanding prior to repainting) and demolition can generate friable asbestos that homeowners, contractors and employees may be exposed to. Manufacturing products containing asbestos and handling these materials is highly regulated in Canada and in BC.

Once the RDNO Bylaw changes were approved to separate Drywall from regular refuse in 2005, a communication strategy was implemented. Member municipalities were encouraged to implement protocols to advise building and demolition permittees of the changes to the RDF acceptance rules and fees, to require waste management plans as part of the permitting process, and in order to curb illegal dumping, to require signoff off by RDNO solid waste management (SWM) staff on the permit applications. To date, only the City of Vernon has implemented an RDNO sign-off requirement for demolition permit applications. Recently requirements for an RDNO sign off were updated to include a requirement for the submission of a solid waste management plan with the permit application (online form). This requirement was intended to provide RDNO SWM staff with an opportunity to educate building owners and contractors on the economic and environmental benefits of separating recyclable materials at their work sites, and diverting these materials from disposal.

Prior to demolition of a pre-1991 structure, reputable demolition contractors will generally undertake a hazardous materials assessment prior to any activity, primarily in order to protect their workers. If asbestos containing material is present in the structure, the contractor will remove the asbestos containing material (abate the hazard). Specific protocols are to be followed during asbestos removal

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Report to: Board of Directors File No.: 5386.6.4 From: Nicole Kohnert, Manager, Regional Engineering Services Date: April 18, 2018 Re: Waste Drywall Recycling and Disposal Page 3 of 7

and shipment. The GVRDF is the only RDF where asbestos containing material is accepted for disposal. Asbestos containing material must be properly contained and is disposed in a designated area at the GVRDF. Materials known to contain asbestos (Drywall, pipe, flooring, ceiling tiles, etc) must be double bagged in 6 mil (thousandths of an inch) thick plastic bags. Notice of delivery of asbestos containing material must be provided at least 24 hours in advance to allow RDF operators to prepare for delivery of the material. These loads are placed into a designed filling area where they are carefully covered and not compacted to avoid any breakage of the bags and potential release of asbestos. The asbestos cells at the GVRDF fill quickly depending on the economic and housing activities in the region. The fee for disposal of asbestos containing material is $174/tonne (Controlled Waste). The RDF operations contractor has trained staff and a health and safety plan that is followed when handling hazardous waste.

Drywall containing tiles (e.g. from a bathroom renovation) is considered non-recyclable and is charged a $140/tonne disposal fee at the RDFs. No special handling measures are taken when this material is dropped off in a transfer bin at an RDF or at the tipping face.

DISCUSSION:

The RDNO is facing operational challenges as the quantity of Drywall stockpiled at the GVRDF continues to grow. There is currently no recycling option for waste Drywall due to the potential presence of asbestos. Burial of the mixed and old Drywall piles is possible, however it would come with associated environmental problems. Mixed (new and used Drywall) loads continue to arrive from the ASRDF, LRDF and KTS and to date no loads have been tested for asbestos contamination. RDF operators and RDNO site staff are fully aware of the asbestos hazards associated with old Drywall. Precautions are taken when working around Drywall at the transfer bins and at the tipping faces at all RDNO facilities.

The two mixed and used Drywall stockpiles at the GVRDF contain about 675 tonnes and continue to grow (see photos below), and the new Drywall cut ends stockpile contains about 150. Approximately 160 tonnes (28 loads) were received from September 1, 2017 to February 28, 2018 from the LRDF, ASRDF and the KTS. The GVRDF received 569 tonnes (1726 loads) of recyclable drywall and 5 tonnes (28 loads) of non-recyclable drywall from self-haulers and commercial haulers in this time period. The total revenue for both drywall types in this period was about $102,735.

It may be prudent at this time to discontinue hauling used drywall from the ASRDF, LRDF and KTS to the GVRDF and to dispose of this material, in accordance with a specific protocol, when it arrives at the ASRDF and LRDF. Accepting Drywall at the KTS should be discontinued. Continuing to collect and haul the new Drywall cut ends to the stockpile at the GVRDF would be satisfactory as there may be a more imminent solution for diverting this material from disposal.

GVRDF used Drywall Stockpiles

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Report to: Board of Directors File No.: 5386.6.4 From: Nicole Kohnert, Manager, Regional Engineering Services Date: April 18, 2018 Re: Waste Drywall Recycling and Disposal Page 4 of 7

Discussions with neighboring regional districts and landfill owners started almost immediately after notification was received in October 2017 that loads would no longer be accepted by the recycler in Alberta. Most landfills using the Alberta facility started stockpiling the material until an alternative facility or sampling protocol accepted by the Alberta facility could be found. It quickly became apparent that solid waste facility owners were on their own with respect to developing protocols to protect workers, the environment and still maintain service levels.

The City of Kelowna developed a sampling protocol with a qualified consultant in order to determine if their stockpiles at the Glenmore Landfill were contaminated with unacceptable levels of asbestos. They determined that their stockpiles did not contain more than the regulated concentration of asbestos fibres. This protocol has not been provided to nor approved by Work Safe BC or the BC Environmental Standards Branch.

Conversations with Metro Vancouver’s solid waste management staff revealed that they have been dealing with the asbestos contamination issue in their region since 2015 when New West Gypsum (NWG) was shut down by Work Safe BC. NWG is the only Drywall recycler in BC with one process in New Westminster and one in Calgary, Alberta. NWG separates the gypsum and paper and sends the gypsum back to Drywall manufacturers. The paper is recycled as well. NWG altered their acceptance protocols and were able to open their doors after a short time. Subsequently, Metro Vancouver developed a pilot protocol to separate all pre 1991 Drywall from newer cut ends. Old Drywall must be double bagged using specifically designed bags (available at most hardware retailers in the region) before it will be accepted transfer stations and the Vancouver Landfill. New Drywall cut ends are directed to NWG and must have a date label showing before it is accepted.

The Columbia Shuswap Regional District recently issued a Request for Proposals to determine if there was any interest in using the Drywall within a reasonable distance from Salmon Arm. The CSRD received no responses. Other regions are burying the material.

When it became apparent that there were several agencies and many local governments dealing with the Drywall recycling conundrum a cross-ministry asbestos working group was formed by the Ministry of Labour, which is responsible for the Workers Compensation Act. A conversation with the chair of this working group revealed that they had consulted with a number of stakeholder in order to determine the extent of the problem, receive recommendations and ensure no unintended consequences arose. Once the working group receives all proposals from stakeholders, including the Union of BC Municipalities, BC Housing, Ministry of Environment and Climate Change Strategy, industry, and labour groups, a report will be produced with recommendations. The report is expected to include an action plan that will be reviewed by the Deputy Ministry of Labour. There is no timeline on the completion of the report or its release to the public. A number of options have been discussed amongst local jurisdictions that would result in varying impacts on budgets, staff time, public and employee safety and environmental protection, and that can be categorized as follows:

A. Determine the asbestos contamination level of all waste Drywall generated in the RDNO so that the RDNO can:

1. Protect all workers, contractors and customers from asbestos hazards, including environmental 2. Cooperate with all building officials in the region to establish an acceptance protocol that all waste Drywall generators must comply with 3. Manage the different types of Drywall properly and safely at RDNO facilities (e.g. burial or transfer off site)

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Report to: Board of Directors File No.: 5386.6.4 From: Nicole Kohnert, Manager, Regional Engineering Services Date: April 18, 2018 Re: Waste Drywall Recycling and Disposal Page 5 of 7

4. Divert as much Drywall as possible from disposal (comply with the waste reduction hierarchy) 5. Cooperate with neighboring jurisdictions where possible to reduce costs and gain efficiencies 6. Consult with senior governments to require that gypsum wallboard manufacturers take responsibility for the end of life of their product 7. Consult with government agencies to develop a provincial protocol for waste Drywall disposal and recycling.

B. Accept no amount of waste Drywall at any RDNO facility so that the RDNO can:

1. Avoid all asbestos hazards at RDNO facilities 2. Download all responsibility for waste Drywall management to private industry inside or outside the region including illegal dumping 3. Pressure senior governments to take responsibility for management of all hazards associated with asbestos contaminated waste Drywall.

C. Collect and transfer all waste Drywall out of the region through a private facility contracted by the RDNO so that the RDNO can:

1. Ensure no asbestos hazards impact RDNO customers, contractors and employees at RDNO facilities 2. Ensure a private contractor takes responsibility for proper management of waste Drywall 3. Ensure waste Drywall is sorted and shipped in a safe and efficient manner to the appropriate location for disposal or recycling, at the waste Drywall generator’s expense 4. Cooperate with neighboring jurisdictions where possible to gain efficiencies (e.g. joint Request for Proposals).

The main driver for making changes to existing processes and protocols for waste Drywall handling is the lack of provincially endorsed and controlled sampling protocols and the interpretation of worker health and safety regulations. The hazards associated with friable asbestos handling should not be taken lightly, as well as the hazards associated with the release of hydrogen sulfide gasses and leachate released at landfills that still bury drywall with other refuse. Responsibility for end of life of this one building product should rest with the producer/manufacturer.

The RDNO has been investigating the feasibility of partnering with neighboring regional districts to develop a waste Drywall management system. In addition to this, best methods to manage the existing stockpiles of potentially asbestos-containing waste Drywall at RDNO Recycling and Disposal Facilities is being investigated in order to reduce the stock piles to a manageable level. The RDNO is developing a protocol, in collaboration with participating jurisdictions, to address waste Drywall acceptance at RDNO facilities.

LEGAL/STATUTORY AUTHORITY:

The RDNO has the authority to develop and implement programs associated with the management of municipal solid waste within the region in accordance with the Environmental Management Act (Part 3) and the Local Government Act (Part 9, Division 4, Sections 315 and 316) and RDNO Municipal Solid Waste Management Bylaw No. 2659, 2014.

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Report to: Board of Directors File No.: 5386.6.4 From: Nicole Kohnert, Manager, Regional Engineering Services Date: April 18, 2018 Re: Waste Drywall Recycling and Disposal Page 6 of 7

LEGAL/STATUTORY PROCEDURAL REQUIREMENTS:

Worker safety procedures with respect to the handling of hazardous materials must comply with the Worker Compensation Act (Part 3, Division 3) and its regulations, and environmental protection at RDNO facilities must comply with the Environmental Management Act (All parts), including facility Operational Certificates, with respect to acceptance and management of hazardous materials.

EXISTING POLICY:

Existing policy includes acceptance protocols for asbestos contaminated Drywall at the RDFs, the RDNO Health and Safety Plan, and acceptance of waste management plans associated with demolition permits issued by the City of Vernon.

FINANCIAL/BUDGETARY CONSIDERATIONS:

Depending on the options implemented moving forward, budget impacts may include:

• Additional operating expenditures for extra staffing to increase enforcement and administration • Additional collection, transfer, transport and processing costs • Additional capital expenditures for transfer facilities.

PERSONNEL IMPLICATIONS:

Although the RDNO has in place and has provided training with respect to the employer’s Health and Safety Plan, vigilance is required to continually ensure workers at the RDFs are safe from hazards and that any newly discovered hazards are mitigated promptly. Employees must be fully trained on any new protocols for acceptance of waste Drywall at the RDFs, and be made fully aware of the hazards associated with handling asbestos containing waste Drywall received un-bagged at the RDFs. Long term health impacts are associated with the handling of friable asbestos.

Additional staffing may be required if new waste Drywall handling procedures are implemented that include increased administration, inspection, monitoring, and reporting.

COMMUNICATIONS CONSIDERATIONS:

Depending on the decisions moving forward, a communication plan will be essential in order to effectively implement a new or amended program for waste Drywall recycling and disposal. The following stakeholders should be included in the communications plan: - Elected officials - MOE & CCS - Haulers - UBCM - Customers - WSBC - Building officials - Internal Staff

Page 43 of 80 Committee of the Whole - Regular

Report to: Board of Directors File No.: 5386.6.4 From: Nicole Kohnert, Manager, Regional Engineering Services Date: April 18, 2018 Re: Waste Drywall Recycling and Disposal Page 7 of 7

Submitted by:

Nicole Kohnert, P. Eng. Manager, Regional Engineering Services

Reviewed and endorsed by:

Mike Fox~ General Manager, Community Services

Page 44 of 80 Committee of the Whole - Regular

Attachment B ~~~rn ITW!EIDJ BRITISH COLUMBIA JUL 0 4 2018

REGIONAL DISTRICT OF NORTH OKANAOAN Reference: 316433 JUN 2 7 2rna

Rick Fairburn, Chair And Directors Regional District North Okanagan 9848 Aberdeen Road Coldstream BC V 1B 2K9

Dear Mr. Fairburn and Directors:

I am responding to a letter of May 9, 2018, from the Regional District of North Okanagan requesting an amendment to the Recycling Regulation to require drywall to be covered under Extended Producer Responsibility (EPR) in British Columbia. I apologize for the delay in responding.

My ministry greatly appreciates the Regional District of North Okanagan's (RDNO) support to see more products managed in this manner. Local government engagement in EPR is paramount to the programs' success.

As you may know, BC currently has 22 industry-led EPR recycling programs covering 14 different product categories. The ministry has added new product categories to the regulation in consideration of the schedules in the Canadian Council of Ministers of the Environment Canada-Wide Action Plan for Extended Producer Responsibility (CCME CAP-EPR). In fact, BC is a national leader in implementing many EPR programs.

After years of rapid expansion of EPR programs in the province, the ministry's current focus is on full implementation and continuous improvement of its existing programs. However, we continuously assess potential product priority lists for consideration for the EPR framework. We are aware that drywall poses significant challenges to the RDNO and elsewhere and it is in everyone's best interested to see more products diverted from disposal. In the meantime, given local governments are always free to initiate diversion programs, I encourage you to continue to divert this material in the safest and most practical manner possible.

I certainly appreciate the points raised by the RDNO regarding the benefits of including these products in the regulation. Should an amendment to the regulation to include drywall be considered, the ministry will consult on this intention, providing opportunity for further input at that time. . .. 2

Ministry of Environment and Office of the Mailing Address: Telephone: 250 387-1187 Climate Change Strategy Minister Parliament Buildings Facsimile: 250 387-1356 Victoria BC V8V 1X4 Website: www.gov.bc.ca/env

Page 45 of 80 Committee of the Whole - Regular

- 2 -

Once again, I thank you for taking the time to provide thoughtful input on the challenges involved with managing gypsum, and your support for EPR program expansion.

Sincerely,

George Hey Minister

cc: Mike Fox, General Manager, Community Service, Regional District of North Okanagan David Sewell, Chief Administrative Officer, Regional District of North Okanagan

Page 46 of 80 Committee of the Whole - Regular

Asbestos and D1ywall I Columbia Shuswap Regional District Page 1of4

Attachment C

[ I WantTo ... A-Z Directory Search ...

COLUMBIASHU WAP REGION DISTRICT

Asbestos and Drywall

Disposal of Materials That Asbestos - Risks and Safe May Contain Asbestos Handling

When beginning a renovation or demolition project, find out if the waste materials in your home may contain asbestos.

Materials That May Contain Asbestos - renovation or demolition materials such as: gypsum wall board, ceiling texture, wall tape and mud compound, floor tile and attic Learn about the risks and how to properly insulation. handle materials that may contain asbestos from these resources: Up until 1990, asbestos was used in the BC Ministry of Health manufacturing of gypsum wall board, (https://www.healthlinkbc.ca/healthlin ceiling texture, wall tape and mud files/asbestos) compound, linoleum flooring, as well as WorkSafeBC on asbestos Backtw attic insulation. When these asbestos ,. L. L. - • I I L ~ _J _ I - _ I ~ 11 _ _ __ 1' < ~

https://www.csrd.bc.ca/services/solid-waste-recycling/asbestos-and-drywall 4/29/2019

Page 47 of 80 Committee of the Whole - Regular

Asbestos and Drywall I Columbia Shuswap Regional District Page 2 of 4

containing materials are disturbed WorkSafeBC brochure for homeowners A (drilled, sawed, sanded, or broken up (https://www.worksafebc.com/en/resc during renovation or demolition), safety/information-sheets/asbestos- workers or building occupants can freq u ently-asked-q uesti o ns? breathe in hazardous asbestos fibres. lang=en) Exposure to asbestos has been linked to Metro Vancouver handout on testing for permanent lung damage. Anyone asbestos conducting a renovation or demolition (http://www.metrovancouver.org/serv project on a building suspected of waste/SolidWastePublications/Gypsun containing pre-1990 building material should be aware of the risks and avoid exposure to asbestos. Materials that may contain asbestos should not be disturbed or removed without adequate knowledge and protective equipment.

When it comes to the disposal of renovation of demolition material that may contain asbestos, the key date is whether the building material was manufactured BEFORE 1990 or AFTER 1990.

• If renovation or demolition materials were installed AFTER 1990, you can safely remove and dispose of the materials at a CSRD refuse disposal facility, in accordance with the CSRD Disposal of Materials that May Contain Asbestos - Disposal Guidelines.

• If renovation or demolition materials were in sta lled BEFORE 1990, these materials shou h be tested for the presence of asbestos (this involves the collection of samples by a qualified professional and analysis by an accredited laboratory), OR

• Safe ly handle and dispose of the material as though it does contains asbestos in accordance with the CSRD Disposal of Materials that May Contain Asbestos - Disposal Gu idelines.

Vi w CSRD Di po al of Mat ri Is That May Contain Asb tos • Dispos I Guidelines here (/sites/defaultlfiles/application-forms/Asbestos%20Disposal% 20Gu idelines%20Document%200ct°Ai202018.pdf)

If testing confirms the waste material DOES NOT contain asbestos:

• The materials can be safely removed and disposed in accordance with the CSRD Disposa of Materials that May Contain Asbestos - Disposal Gu id elines at any CSRD Refuse Dispos; Faci lity.

If testing confirms the waste material DOES contain asbestos:

Bac k tov < ~

https://www.csrd.bc.ca/services/solid-waste-recycling/asbestos-and-drywall 4/29/2019

Page 48 of 80 Committee of the Whole - Regular

Asbestos and Drywall I Columbia Shuswap Regional District Page 3 of 4

• A qualified asbestos abatement company should be contacted to properly manage the safe removal and disposal, OR • A competent asbestos management consultant should be contacted for guidance on how to carefully remove the material so as not to contaminate the rest of your home, AND • The material should be disposed in accordance with CSRD Disposal of Materials that May Contain Asbestos - Disposal Guidelines at a CSRD Refuse Disposal Facility.

For further information on working with asbestos please visit the WorkSafe BC website at www.worksafebc.com. (https://www.worksafebc.com/en) Disposal Guide lin es for Materials that May Contain Asbestos

To protect workers at CSRD Refuse Disposal Facilities from exposure to Asbestos-Containing Materials, the CSRD has created guidelines and procedures for accepting construction, renovation and demolition waste with materials that may contain asbestos.

The CSRD has identified three categories of Materials That May Contain Asbestos:

D Category 1 - AFTER-1990 Renovation/Demolition Wa ste - Delivered to a CSRD Transfer Station OR Landfill

D Category 2 - BEFORE-1990 Renovation/Demolition Waste - Delivered to a CSRD Transfer Station

D Category 3 - BEFORE -1990 Renovation/Demolition Waste - Delivered to a CSRD Landfill

Forms and Applications

Download th A b to D cl ration and Acknowl d m nt Form (/sites/default!files/SolidWaste/Asbestos%20Declaration%20and% 20Acknowledgement%20Form.pdf)

Download th Controll d Wa t Di posal Application (/sites/default/files/SolidWaste/Controlled%20Waste%20Disposal%20Application% 202018%20fillable.pdf)

© CSRD LEGAL/PR IVACY Back_to CONTACT US CAREERS !QQ

https ://www. csrd.be. ca/services / so lid-waste-recycling/asbestos -and-drywall 4/29/2019

Page 49 of 80 Committee of the Whole - Regular

COLUMBIA SHUSWAP REGIONAL DISTRICT PO Box 978, 555 Harbourfront Drive NE, Salmon Arm, BC VlE 4Pl T: 250.832.8194 I F: 250.832.3375 I TF: 1.888.248.2773 I www.csrd.bc.ca

POST-1990 CONSTRUCTION/RENOVATION/DEMOLITION WASTE ASBESTOS DECLARATION AND ACKNOWLEDGEMENT FOR CSRD REFUSE DISPOSAL FACILITIES *Th is form must be completed and signed before unloading*

Customer/Company Name:

Address:

Phone#:

Vehicle Licence#:

Ticket#:

Load CONTAINS ONLY YES [ NO POST-1990 Construction/Demolition Material

Origin of Material: RES IDENTIAL [ COMMERCIAL [

Hazard Assessment Received: YES NO

PLEASE READ CAREFULLY By completing and signing this form, you:

1) understand and agree that asbestos is a hazardous material found in construction material installed pre- 1990 (insulation, flooring tiles, drywall, drywall joint compound / mud) that if handled or processed improperly poses a serious health risk to workers exposed to asbestos-contaminated air;

2) affirm that you have made a truthful declaration about the origin, age and content of the material you are delivering and dumping at this facility;

3) agree that your load will be subject to the offence and penalties outlined in the CSRD's Ticket Information Utilization Bylaw if load audits prove the presence of asbestos in your audited load; and

4) agree to accept liability for, and indemnify the CSRD aga inst, all costs, claims, damages, liability, fees, penalties, offences, fines, expenses incurred by the CSRD that may resu lt from an incorrect or untruthful declaration regarding the origin, age and content of the material you are delivering and dumping at this facility.

Customer Signature Date

CSRD Attendant Date

Reference CSRD So li d Waste Disposal Tipping Fee and Regulation Bylaw available at www.csrd .bc.ca .

Page 50 of 80 Committee of the Whole - Regular

Page 1 Bylaw No. 5759 Schedule C

CSRD SOLID WASTE DISPOSAL TIPPING FEE AND REGULATION BYLAW NO. 5759 SCHEDULE C TIPPING FEES AND CHARGES

1. TIPPING FEES

1.1 . The Tipping Fees for Disposal of Solid Waste at a Scaled Refuse Disposal Facility as measured by mass on the scale operated by the Facility Attendant at a Refuse Disposal Facility are as follows:

Materials Accepted Unit Minimum (Scaled Site) Fee Rate Charge

Bagged Refuse $3 Each NIL Bagged Refuse for Reuse Centre $3 Each NIL Refuse $80 Tonne $5 Refuse for Reuse Centre $80 Tonne $5 Bulky Waste $160 Tonne $10 Mixed Load $160 Tonne $10 Demolition Waste (containing Drywall or Asphalt Shingles) $240 Tonne $15 Metal Waste (Including Appliances and Propane Cylinders) NO CHARGE Appliances (containing Ozone Depleting Substance) NO CHARGE Clean Soil $10 Tonne $5 Wood Waste $40 Tonne $5 Wood Waste - Chipped $15 Tonne $5 Yard and Garden Waste NO CHARGE Invasive (Alien) Plants NO CHARGE Gypsum Board or Drywall $100 Tonne $5 Asphait Shingles $100 Tonne $5 Concrete (includes asphalt, bricks, porcelain) $80 Tonne $5 Mattresses $15 Unit $15 Land Clearing Waste $160 Tonne $10 Dead Animal $80 Tonne $5 Controlled Waste $160 Tonne $10 Controlled Waste (requiring deep burial) $240 Tonne $240 Biosolids $10 Tonne $5 Contam in ated Soil $35 Tonne $5 Septage Pumping (Revelstoke Landfill Only) $45 Tonne $5 Commercial Recyclable Material $80 Tonne $5 Residential Recyclable Materials NO CHARGE Batteries, Books NO CHARGE

Page 51 of 80 Committee of the Whole - Regular

Attachment D

SCHEDULE “E” SANITARY LANDFILL / RECYCLING FEES BL10565, BL10741 & BL10871 amended Section 1:

1. The following rates shall be paid for all material delivered to the Landfill at all times when the landfill scale is operating:

(a) Demolition, construction, and land clearing waste material:

(i) source-separated recyclables $ 10.00 per metric tonne (ii) asphalt and concrete $ 25.00 per metric tonne (iii) gypsum drywall $175.00 per metric tonne

(b) Wood Waste $ 10.00 per metric tonne (i) Lumber $ 10.00 per metric tonne

(c) Recyclable Gypsum in loads of one metric tonne or less $175.00 per metric tonne (or portion thereof)

(d) Useable clean fill, batteries, propane tanks No Charge

(e) Yard Waste: (i) Yard Waste $40.00 per metric tonne

(ii) stumps $90.00 per metric tone

(f) Tires (with or without rim, as indicated): (i) up to 40.64 cm (16 in) diameter, with or without rim $3.00 per tire (ii) 40.64 to 64.77 cm (16 to 25.5 in) diameter, without rim $5.00 per tire (iii) 40.64 to 64.77 cm (16 to 25.5 in) diameter, with rim $10.00 per tire

(g) Asbestos (friable) $250.00 per metric tonne

(h) Hydrocarbon Contaminated Soils $8.00 per metric tonne

(i) Recyclable corrugated cardboard larger than 1 m3 $10.00 per load

(j) Ash $100.00 per tandem axle load

(k) Carcasses weighing under 100 kg

“$85.00” Effective January 1, 2018 “$95.00” Effective January 1, 2019 “100.00” Effective January 1, 2020

(l) Carcasses weighing over 100 kg $200.00 per carcass

(m) All other residential Garbage not included above:

“$85.00 per metric tonne” Effective January 1, 2018 “$95.00 per metric tonne” Effective January 1, 2019 “$100.00 per metric tonne” Effective January 1, 2020

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(n) Any material determined by the Director of Civic $50.00 per metric tonne Operations to require burial in an area away from the surcharge, over and active face above any other required

(o) Any Mandatory Recyclable Material included in mixed waste $150.00 per metric tonne surcharge, over and above any other required fee

(p) Culled Cherries $16.57/tonne

(q) Handling Fee for Contaminated Mandatory Recyclable Loads $50.00 per metric tonne

(r) Handling Fee for immediate burial of International Waste $150.00 surcharge (plus applicable weight-based fees)

(s) Requiring sorting $125.00 per metric tonne

(t) Stumps (no soil or rocks attached) $90.00 per metric tonne

(u) Mattresses $12.50 each or $12.50 each plus weight (as Garbage) when in a co-mingled load

(v) Biosolids (only accepted on a short $250.00 per metric tonne term emergency basis and with prior written approval from the City)

BL10565 amended the following: 2. At all times when the scales are not operating, all material delivered to the Landfill shall be subject to the following charges, according to the type of vehicle delivering the material. and without taking into consideration the volume or weight of the material contained in the vehicle:

Vehicle Type Fee

Utility Trailer, or Vehicles up to 3/4 ton $8.00 for January 1, 2012 Utility Trailer, or Vehicles up to 3/4 ton $10.00 for January 1, 2013 Tandem Axle Trailer $50.00 Side Dump Collector Truck, less than 50m3 $100.00 Side Dump Collector Truck, equal to or greater than 50m3 $150.00 Curbster $250.00 Roll-off Open Container, 15 yard bin $80.00 Roll-off Open Container, 20 yard bin $95.00 Roll-off Open Container, 30 yard bin $155.00 Roll-off Open Container, 40 yard bin $200.00 Roll-off Closed Compactor Unit, up to 40 yard $325.00 Large Compactor, greater than 40 yard $360.00 Single Axle Truck (1 ton) $60.00

Page 53 of 80 Committee of the Whole - Regular

Single Axle Truck (2 ton) $85.00 Single Axle Truck (3 ton) $125.00 Single Axle Truck (5 ton) $170.00 Single Axle Truck (dump) $190.00 Tandem Axle Truck (dump) $280.00 Tractor Trailer Unit $325.00 Source Separated Recyclables $50.00

BL10565 & 10741 amended the following: 3. All Garbage hauled directly to the Landfill site by customers qualifying or authorized for pick-up through the City’s residential collection systems established pursuant to this bylaw shall be subject to the following minimum charges:

• $5.00 per load of wood waste or yard waste for loads weighing up to and including 250 kg, and as per the table below for Garbage or other billable waste streams for loads weighing up to and including 250 kg:

$11 per load Effective January 1, 2018 $12 per load Effective January 1, 2019

$85.00 per metric tonne Effective January 1, 2018 $95.00 per metric tonne Effective January 1, 2019 $100.00 per metric tonne Effective January 1, 2020

BL10122 and BL10565 amended the following: 4. Owners of all Residential Dwelling Premises, including Owners of property who have been granted a waiver of service, pursuant to section 2.1.1 of this bylaw, or who have been excluded, pursuant to section 2.1.3 of this bylaw, from the City’s residential collection systems, will be levied annually on their property tax notice or utility bill a fee to cover Solid Waste Reduction Services; landfill disposal costs, waste reduction activities, recycle depot and recycle processing facilities. New accounts will be billed from the date of request for final inspection on a pro-rated basis. This Solid Waste Reduction Services Fee is $99.04 per residential unit per year for 2012 and $108.42 for 2013. The Collection Fee portion of the Collection and Solid Waste Reduction Fee is $88.88.

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15/05/2019

Solid Waste Management

Committee of the Whole Regular Meeting

May 15, 2019

15/05/2019 1

Topics to be Presented

1. Drywall Management at DDFs • Recycling • Disposal 2.Yard Waste Management 3.Tipping Fees • Five year rate schedule • Financial Principles - Update

1

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Objectives

For the Board of Directors to provide direction on a number of important solid waste management issues to ensure that:

1. The RDNO moves towards achieving the new solid waste diversion targets of 350 kg/capita/year 2. Facilities continue to operate efficiently and effectively 3. Programs and projects are well planned over the next five to ten years 4. Residents are informed of what is happening in solid waste management in a timely manner

Drywall Management

Key Decisions:

•Recycle new drywall cut ends • Develop and implement an education campaign on how to safely dispose of waste drywall

2

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Historical & Current Management

• Recycled all waste drywall (new and demolition/renovation) since 2005 (1,547 tonnes in 2016) • Last load shipped out of GVDDF October 20, 2017 • Inter-Ministry Provincial Working Group formed to manage overlapping and disjointed priorities • Sent letters to BC Environment and UBCM requesting drywall be included in the Recycling Regulation as a stewarded product • Buried all stockpiled waste drywall in November 2018 (after hours due to WorkSafe issues) • Stockpiling only new cut ends at GVDDF since January 2019 (1000 tonnes per year) and burying all other waste drywall • Various tipping fees charged for waste drywall ($135 - $202/tonne)

Program Objectives

• Minimize environmental impacts (Hydrogen Sulphide Gas generation and emissions) • Maximize diversion (extend the life of RDNO DDFs) • Minimize illegal dumping of drywall • Minimize exposure to friable asbestos in old drywall (maintain worker and public safety) • Minimize customer confusion with respect to sorting and separating prior to delivery to a DDF • Minimize administration time and cost • Collect a fair and reasonable recycling and disposal fee

3

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Recommended Protocols

• Known Asbestos Content (identified prior to demolition/renovation) a. Charge Controlled Waste fee (currently $174/tonne – recommend increase to $200/tonne) b. 24 hours notice prior to delivery to the GVDDF c. Properly contained (double bagged, 6 mil poly, sealed) and declaired upon arrival at the GVDDF

• New Waste Drywall Cut Ends (from new construction only) a. Require submission of a signed declaration prior to tipping at GVDDF only b. RDNO to arrange with New West Gypsum to accept recyclable waste drywall loads c. Cost recovery through recycling and disposal fees (approx. $195/tonne) d. Increase inspection e. Additional administration

Recommended Protocols, Continued-

• Bury all other waste drywall either source separated or not, with or without known asbestos content

a. Charge fees similar to mixed construction and demolition loads (currently $202/tonne – recommend increase to $250/tonne)

b. Develop and implement an education program on how to safely and economically dispose of waste drywall at RDNO facilities (link to existing information and waste management plan requirements connected to building permit applications)

4

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Yard Waste Management

Key Decisions:

• Receive report for information and provide update

Issues

• Increasing customer and yard and garden waste volume at the GVDDF • Need for full time inspection to manage traffic and reduce contamination • Plastic in yard and garden waste from drop off and municipal programs • Compost marketability and uses are impacted by foreign matter

5

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Current Practices

• Transfer Stations • Cherryville – hauled in bulk to LDDF for chipping • Kingfisher – hauled in bulk to ASDDF for chipping • Incur additional cost to transfer material (moved before fire season)

• LDDF and ASDDF – chipped, mixed with soil and used for landfill intermediate cover (approx. 4,000 – 9,000 m3 per year)

Current Practices, cont’d

• GVDDF . Chipped and composted at Regional Yard Waste Composting Facility (on GVDDF site) . 2017 – 11,750 m3 . 2018 – 34,900 m3 . 2019 – expected to exceed last year’s quantity • Compost . Static windrow composting (turned, watered, screened and tested) . Used for various projects in the region – 6,000 m3 available on site at this time . 2018 – 10,000 m3 Class A screened . 2018 – 2,500 m3 given away

6

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Quality Management

• Debag more effectively prior to delivery and at the GVDDF site • Change municipal programs to eliminate plastic bag collection (e.g. require resident supplied bins or local govt supplied carts) • Substantially increase inspection and enforcement at drop off locations

Alternative: use compost for landfill cover only (as a waste volume reduction and cover supply method this is very costly)

Tipping Fees

Key Decisions:

• Amend Municipal Solid Waste Management Bylaw to include a 5 Year Rates Schedule • Increase regular and minimum fees • Simplify Schedule A • Amend Financial Principles

7

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Objectives

1.Ensure solid waste reserves, taxation and tipping fee revenue meet all operating, capital, asset management and landfill closure and post closure obligations 2.Maximize waste diversion through financial incentives and disincentives 3.Minimize confusion regarding variable fees 4.Implement a five year rate schedule to provide long term certainty and to assist private sector, municipal and RDNO planning for solid waste collection, disposal and diversion programs

Bylaw Amendment

• Decrease the number of product categories • Set five year rates • Ensure extra handling and administration costs are covered • Ensure public is aware of fee incentives and disincentives to promote diversion • Ensure long term sustainable revenue • Minimize out of region customers • Incentivize customers to use private depots • Encourage rethinking and reducing waste • Coincide with a scale software update

8

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Refuse Tipping Fee

Fee Components 90.00 85.00 82.00 83.00 79.00 80.00 80.00 77.00

70.00

60.00

50.00

40.00

30.00

20.00 18 18 18 18 18 18

9 10 10.00 7 8 5 6

- 2019 2020 2021 2022 2023 2024

Base Fee Closure/Post Closure Capital/Operating

Five Year Rates – Schedule A • Remove 15 product code categories Rarely used Unnecessary

• Increase incentives to source separate loads Higher fee for mixed loads Lower fees for divertable material (unless a cost recovery program) • Increase fees for hazardous and potentially hazardous materials (controlled waste) • 2% annual increase, most fees starting in 2021

9

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Tipping Fee History

Tipping Fee History, Regional District of North Okanagan Solid Waste Management Facilities

2000 2001 2002 Mar-03 Jun-03 Dec-03 Jul-04 2005 Jul-05 Jul-05 Aug-05 2006 Jul-06 Nov-06 2007 Regular Refuse ($/tonne) $53.00 $53.00 $54.00 $55.00 $55.00 $55.00 $56.00 $56.00 $57.00 $57.00 $57.00 $57.00 $58.00 $58.00 $59.00

Minimum Fee/Bag $1.00 $1.00 $1.00 $1.00 $1.00 $1.00 $1.00 $1.00 $1.00 $1.00 $1.00 $1.00 $1.00 $1.00 $1.00

Minimum Fee $6.00 $6.00 $7.00 $7.00 $7.00 $7.00 $7.00 $7.00 $3.00 $3.00 $3.00 $3.00 $3.00 $3.00 $3.00

Bylaw Reference 1537 1537 1754 1840 1864 1905 1946 2005 2015 2062 2070 2120 2147 2202 2231

Oct-07 2008 Jul-08 Jul-09 Jul-10 2011 2012 2013 2014 2015 Jul-16 2016 2017 2018 2019 Regular Refuse ($/tonne) $59.00 $59.00 $62.00 $63.00 $75.00 $85.00 $88.00 $88.00 $95.00 $97.00 $100.00 $100.00 $100.00 $100.00 $100.00

Minimum Fee/Bag $1.00 $1.00 $1.00

Minimum Fee $3.00 $3.00 $3.00 $3.00 $3.00 $3.00 $3.00 $3.00 $4.00 $5.00 $5.00 $5.00 $5.00 $5.00 $5.00

Bylaw Reference 2273 2311 2328 2392 2434 2469 2532 2659 2693 2701 2806

Minimum Fee

Recommended gradual increase: • Cover increasing costs • Encourage fewer DDF visits • Support GHG reduction • Encourage curbside collection • Promote waste diversion strategies in SWMP

2020 2021 2022 2023 2024 $6.00 $6.00 $8.00 $8.00 $10.00

10

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Historic Trends

2017 Solid Waste Management Trends 100000 0.80

90000 0.70

80000 0.60 Population 70000

0.50 Refuse Disposed 60000

50000 0.40 Blue Bag & Glass

40000 0.30 Disposed per Capita 30000 Tonnes and Population Tonnes 0.20 Target (t/c/y) 20000

0.10 10000

0 0.00 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017

Improved Financial Health

• Annual transfers to reserves have varied, but on average have been higher than expected

• Both Solid Waste Management statutory reserves have improved

Closure/Post-Closure Reserve: $0.6 M (2011) to $8.7 M (2018) Capital (Operating) Reserve: $2.1 M (2011) to $5.1 M (2018)

11

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Improved Financial Health, Cont’d

Landfill Closure/Post Closure Obligation

 Increased from a net present value of $7.2 M in 2011 to $9.1 M in 2018.  Current obligation remains higher than the reserve ($9.1 M vs $8.7 M),  Shortfall has improved significantly  Projected that as at Dec 31, 2019 the Reserve will equal the Obligation of approx. $10 M.

Long Range Capital Plan

Total long range expenditures (incl inflation & $575,000 avg annual) GVDDF $9,089,000 (not incl. a permitted expansion) ASDDF $3,723,000 (incl. $1 M transfer station construction) LDDF $3,754,000 (incl. $1 M transfer station construction)

ASDDF Phase 1 Closure

12

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Guiding Financial Principles

1. Annually consider an Increase in the base disposal fee annually to cover inflationary cost pressures and cost increases arising from any applicable service level, market and regulatory changes. based on the BC Consumer Price Index 2. Consider a multi-year rates bylaw to allow better planning and to provide better cost certainty to stakeholders. 3. Ensure Annually until 2020, increase the Landfill Closure/Post Closure Reserve is fully funded to meet all future closure and post closure obligations. Fund by $1.00/tonne 4. Maintain the annual contribution sustaining capital reserve contribution to the Landfill Closure/Post Closure Reserve at $18/tonne until 2024, subject to review through the annual budget process to ensure the reserve continues to be fully funded. from Recycling and Disposal Fees at $5/tonne for the period 2012 – 2016

Guiding Financial Principles, Cont’d

5. Ensure that the Solid Waste Management (670) Operating Reserve balance is sufficient to fund the long term capital replacement, renewal and improvement requirements (non-closure related). During years of lower capital requirements, funds are to be placed in the reserve, and during years of higher capital requirements, funds are to be taken from the reserve. 6. Phase-in increases to the annual contribution for capital replacement, renewal and improvement projects (non-closure related) by $1/tonne per year from $5/tonne in 2019 to $10/tonne in 2024.

13

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Guiding Financial Principles, Cont’d

7. Maintain the Starting in 2012, property tax requisition at the current level of $420,000 per year from all property owners in the Regional District of North Okanagan as per Service Establishment Bylaw No. 1352, 1996 with the funds to be used for solid waste management capital projects 8. Ensure the Blue Bag Recycling Program is self sustaining by funding both collection and processing costs through a utility charge to participating households 9. Ensure that the Direct any annual surpluses to a Solid Waste Management Operating Reserve until the reserve balance is equal to 20% of annual Solid Waste Management facility operating costs 10. Direct any annual surpluses occurring after the Solid Waste Management Operating Reserve balance is equal to 20% of annual Solid Waste Management facility operating costs to the Landfill Closure/Post Closure Reserve Fund

Guiding Financial Principles, Cont’d

8. Use temporary or short term borrowing to address short term cash flow issues, when needed. due to unforeseen costs 9. Annually present proposed Solid Waste Management fees and charges to the Board of Directors a minimum of 90 days prior to the end of each calendar year and implement any changes on January 1 of the following year. 9. Annual total disposed tonnage is a tally of all the disposed waste entering the RDNO’s active landfills that utilize scales and scale software, regardless of the source of the waste.

14

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STAFF REPORT

TO: Committee of the Whole File No: 4900.01.02

FROM: Community Services Date: May 7, 2019

SUBJECT: Yard and Garden Waste Management at Diversion and Disposal Facilities

RECOMMENDATION:

That it be recommended the report dated May 7, 2019, titled Yard and Garden Waste Management at Diversion and Disposal Facilities be received for information.

DISCUSSION:

The purpose of this report is provide information and to update the Board of Directors on the management of yard and garden waste received at the RDNO Diversion and Disposal Facilities (DDFs).

All yard and garden waste is received and stockpiled, and when sufficient quantities exist it is chipped by the RDNO operations contractor. At the Armstrong/Spallumcheen (ASDDF) and Lumby (LDDF) Diversion and Disposal Facilities, the chipped material is mixed with soil and used for landfill cover.

Previously at the Kingfisher Transfer Station (KTS) and the Cherryville Transfer Station (CTS) it was stockpiled for several years, chipped and then spread onsite. In 2018, accumulated yard and garden waste was hauled from the KTS and the CTS unchipped, to the LDDF and ASDDF respectively as there is no longer an appropriate area to spread chipped material onsite at these facilities. In addition, it is not practical to mobilize large chipping equipment to chip the very small quantities of material received at these facilities. No change to this management protocol is recommended.

Chipped yard and garden waste generated at the Greater Vernon DDF (GVDDF) is composted through static windrow composting at the Regional Yard Waste Composting Facility located on the GVDDF site.

Long term management objectives are as follows:

1. Maximize compost quality and marketability 2. Maximize diversion (extend the life of RDNO DDFs) 3. Minimize facility congestion and line ups 4. Minimize plastic and other contamination in yard waste 5. Offset landfill cover procurement 6. Minimize environmental impacts 7. Enhance and improve customer information.

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Report to: Committee of the Whole File No.: 4900.01.02 From: Community Services Date: May 7, 2019 Re: Yard and Garden Waste Management at Diversion and Disposal Facilities Page 2 of 5

In December 2018 amendments to the Municipal Solid Waste Management Bylaw were endorsed for implementation in January 2019 including the following:

a. A new category was added for Land Clearing and Property Development Waste which is assessed a fee of $20/tonne. This material is the organic and non-organic (e.g. rocks) waste generated from land clearing and property development activities and typically arrives in large trailers or dump truck loads. This material is primarily seen at the GVDDF and is directed to the yard and garden waste drop off area. Trees larger than 20 cm diameter are directed to an alternate location (logs & stumps pile).

b. A new category was added for Yard and Garden Waste – Commercial in addition to Yard and Garden Waste – Residential so as to differentiate tipping fees in the future if so directed. Currently there is no charge for both waste streams at any site.

Acceptance of Yard Waste at the ASDDF and LDDF

Yard waste is stockpiled separately from wood waste and logs and stumps at the ASDDF and LDDF and is chipped as necessary by the RDNO operations contractor for volume reduction and operational purposes. The current unit price of yard and garden waste chipping at the ASDDF and LDDF is $4.73/m3. The quantity of yard and garden waste chipped at these two sites in the last three years and mixed with other wood chips plus soil for landfill cover was as follows:

ASDDF LDDF 2016 7,543 m3 1,396 m3 2017 4,440 m3 0 m3 2018 5,417 m3 2,075 m3

Since these yard waste chips are not used to produce compost, contamination is not a great concern and new management protocols are not recommended for these facilities at this time. Future consideration could be given to hauling the yard waste chips produced at these two sites to the Regional Yard Waste Composting Facility at the GVDDF.

Acceptance of Yard and Garden Waste at the GVDDF

Approximately 11,754 m3 and 34,895 m3 of chipped yard and garden waste was produced at the GVDDF in 2017 and 2018 respectively. The chipped material was delivered to the Regional Yard Waste Composting Facility by GFL Environmental (operations contractor) for composting. It is expected that the quantity of yard and garden waste handled at the GVDDF in 2019 will exceed the quantity handled in 2018. Quantities are expected to continue to grow as more homes are built in the Greater Vernon area and increased FireSmart measures are implemented in the urban wildland interface. Yard and garden waste drop off customer numbers have not been specifically tracked in previous years. Anecdotally it appears that spring weather has brought a significantly higher number of customers to the yard and garden waste drop off area. These customer volumes, coupled with the completion of the entrance upgrade project has resulted in major congestion during peak hours.

The quantity of Class A compost produced in 2018 was 10,052 m3. This soil amendment is available free of charge to customers at the GVDDF and also delivered to off-site locations for pick-up at no charge. An estimated 2,500 m3 of compost was given away in 2018. Excess compost is stockpiled at the GVDDF. An estimated 6000 m3 is available at this time.

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A number of different batches of compost have been used for various purposes in the Region: supplementing trails and playing fields, mixing with other soils to fabricate top soil for landfill closures, and use on residential gardens and yards. Pre-composted yard waste chips were used for a trail enhancement project last year that resulted in a number of complaints from trail users due to the amount of plastic waste present in the product. Contractors had to be hired to remove the bits of plastic before the trail could be reopened. Once the chips are composted and the compost is screened very small fragments of plastic waste can be found in the end product. This contamination occurs as a result of the following:

1. Plastic bags are used for municipal leaf and yard waste collection programs in the spring and fall and when delivered to the GVDDF require debagging. The debagging is not accomplished effectively and parts of bags remain in the debagged yard waste prior to chipping.

2. Customers deliver loads of yard and garden waste in plastic bags that often contain other types of refuse that are not properly separated at the yard and garden waste drop off area. When the loader pushes up the material into the stockpile the hidden debris may or may not be revealed and is not ultimately separated prior to chipping.

In order to prevent contamination of the yard and garden waste stream it is recommended that municipalities deliver only debagged material (they can have a debagging area on the landfill sites), and that the yard and garden waste drop off area be more fully inspected to ensure all customers debag and separate any foreign debris from their tipped loads. It is also recommended that municipalities with collection programs be informed of options related to minimizing foreign matter in their yard and garden waste streams.

Alternatives for GVDDF customers and municipal programs include the following for consideration:

a. Deliver yard and garden waste in Kraft paper bags b. Deliver yard and garden waste loose and tarped in vehicles c. Deliver yard and garden waste in reusable bins d. Collect yard and garden waste in reusable bins at the curb either in side or rear load trucks or with automated trucks.

With respect to minimizing traffic at the GVDDF it is recommended that the City of Vernon, District of Coldstream and Electoral Area B and C consider implementing more frequent collection of Yard and Garden Waste at the curb or at designated municipally provided drop off locations where material can be properly debagged and inspected.

Inspection and Enforcement

Enhanced inspection and enforcement of the yard and garden waste acceptance policy is considered necessary in order to ensure a high quality compost is produced that can be marketed easily and potentially generate revenue in the future.

LEGAL/STATUTORY PROCEDURAL REQUIREMENTS:

The RDNO has established a local service to regulate, store and manage municipal solid waste and recyclable material by Bylaw 1352, being “Solid Waste Management Local Service Establishment Bylaw No. 1352, 1996”; the RDNO has an approved Solid Waste Management Plan; Section 378 [Options for cost recovery] of the Local Government Act, states that Section 397 [Imposition of fees and charges] of the

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Local Government Act applies to Regional Districts in relation to their services; and Section 397 [Imposition of fees and charges] of the Local Government Act provides that a Board of a Regional District may, by bylaw, impose a fee or charge payable in respect of all or part of a service of the Regional District. The current Municipal Solid Waste Management Bylaw No. 2806, 2019 sets out definitions, regulations, conditions of use, penalties and fees for managing waste drywall at RDNO DDFs.

EXISTING POLICY:

The RDNO Solid Waste Management Plan (SWMP), updated in 2017, and submitted to the Province for approval in June 2018, specifies a new disposal target of 350 kg/capita/year within ten years. This requires a reduction in disposal of about 150 kg/capita/year from all sectors: residential, commercial and demolition/construction. Co-composting with yard and garden waste was not specified.

The SWMP lists the following with respect to yard and garden waste:

3.1 Reduce, Reuse and Recycle 3.1.1 Increase Organics Diversion Issue: Almost 30% of the current waste stream is comprised of compostable organics.

A. Review and adopt an Organics Diversion Strategy based on the four options considered in the Organics Management Options Study to provide clear direction with respect to policy (disposal restrictions), collection (kitchen scraps or food and yard waste combined, expanded curbside collection or current municipal collection programs only); processing (public or private, in-region or out-of-region); and transfer out of region. B. Develop an implementation plan for the RDNO Organics Management Options Study (Carey McIver & Associates Ltd., 2017), as per Appendix E to address residential and ICI sectors. C. Provide additional staff resources to consult with applicable stakeholders including municipal partners and solid customers, processors, and commercial haulers. D. Implement the processing infrastructure component of the Organics Management Options Study.

COMMUNICATIONS CONSIDERATIONS:

If any additional direction is received with respect to Yard and Garden Waste management a communication plan will be developed.

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Submitted by: Reviewed and endorsed by:

Nicole Kohnert Mike Fox Manager Regional Engineering Services General Manager Community Services

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STAFF REPORT

TO: Committee of the Whole File No: 4900.01.02

FROM: Community Services Date: May 7, 2019

SUBJECT: Tipping Fees and Solid Waste Management Guiding Financial Principles

RECOMMENDATION 1:

That it be recommended to the Board of Directors that staff be directed to amend the Municipal Solid Waste Management Bylaw to include a five year rates schedule and more simplified product categories.

RECOMMENDATION 2:

That it be recommended to the Board of Directors that the Solid Waste Management Guiding Financial Principles be amended as presented in the report titled Tipping Fees and Solid Waste Management Guiding Financial Principles and dated May 7, 2019.

DISCUSSION:

The purpose of this report is to receive direction from the Board of Directors on amendments to the Municipal Solid Waste Management Bylaw and the Solid Waste Management Guiding Financial Principles. The changes recommended in this report have the following objectives:

1. Ensure solid waste reserves, taxation and tipping fee revenue meet all operating, capital, asset management and landfill closure and post closure obligations 2. Maximize waste diversion financial incentives 3. Minimize confusion regarding variable fees 4. Implement a five year rate schedule to assist private sector, municipal and RDNO planning for solid waste collection, disposal and diversion programs.

In recent years, besides general financial plan endorsements, the only direction received regarding this topic was the following with respect to taxation and the minimum tipping fee:

That it be recommended to the Board of Directors the 2017 operating and capital budget for Solid Waste Management (670) as presented at the February 8, 2017 Committee of the Whole meeting be amended to keep the tax requisition at $420,000, with the additional $20,000 being set aside in the operating reserve to offset future increases to the $5 minimum tipping fee.

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Guiding Financial Principles

The Solid Waste Management Guiding Financial Principles (Attachment A) were endorsed by the Board of Directors initially in 2011 with the primary objective to ensure cash shortfall at that time was covered, including legislated closure and post-closure obligations and site development capital works. Landfill owners are required to review landfill design, operating and closure plans (DOCP) at least every five years. The RDNO submitted updated DOCPs for the three active landfills to the Ministry of Environment and Climate Change Strategy (BC Env) in 2017 resulting in updated filling rates, life expectancy and projected capital and closure expenditures for each site. As of December 2017, the total closure and post-closure (30 years) obligation estimates for the three active DDFs are as follows:

GVDDF (expected closure year = 2059) $35.0 M ASDDF (expected closure year = 2027) $4.4 M LDDF (expected closure year = 2071) $11.1 M

For the most part, the existing Guiding Principles have been followed for the last nine years and as such, the financial health of the service has generally improved as follows:

• Annual transfers to reserves have varied, but on average have been higher than expected

• Both Solid Waste Management statutory reserves have improved o Closure/Post-Closure Reserve: $0.6 M (2011) to $8.7 M (2018) o Capital (Operating) Reserve: $2.1 M (2011) to $5.1 M (2018)

• The Landfill Closure/Post Closure Obligation has increased from a net present value of $7.2 M in 2011 to $9.1 M in 2018. The current obligation remains higher than the reserve ($9.1 M vs $8.7 M), but the shortfall has improved significantly. It is projected that as at December 31, 2019 the Closure/Post-Closure Reserve will equal the Closure/Post Closure Obligation at approximately $10 M.

Capital and asset management plans of the active landfills have been estimated at an average annual expenditure of $575,000. Based on 2018 tonnage, this capital expenditure requirement equates to approximately $12 per tonne. The total long range expenditures for the landfills (non-closure related) are estimated as follows:

GVDDF $9,089,000 (not including a permitted expansion) ASDDF $3,723,000 (including $1 M transfer station construction) LDDF $3,754,000 (including $1 M transfer station construction)

In order to ensure the long term financial sustainability of the service, the following Guiding Financial Principles are being recommended.

1. Increase the base disposal fee annually to cover inflationary cost pressures and cost increases arising from any applicable service level, market and regulatory changes. 2. Consider a multi-year rates bylaw to allow better planning and to provide better cost certainty to stakeholders. 3. Ensure that the Landfill Closure/Post Closure Reserve is fully funded to meet future closure and post closure obligations.

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4. Maintain the annual contribution to the Landfill Closure/Post Closure Reserve at $18/tonne until 2024, subject to review through the annual budget process to ensure the reserve continues to be fully funded. 5. Ensure that the Solid Waste Management (670) Operating Reserve balance is sufficient to fund the long term capital replacement, renewal and improvement requirements (non-closure related). During years of lower capital requirements, funds are to be placed in the reserve, and during years of higher capital requirements, funds are to be taken from the reserve. 6. Phase-in increases to the annual contribution for capital replacement, renewal and improvement projects (non-closure related) by $1/tonne per year from $5/tonne in 2019 to $10/tonne in 2024. 7. Maintain the property tax requisition at the current level of $420,000 per year. 8. Use temporary or short term borrowing to address cash flow issues, if needed. 9. Annual total disposed tonnage is a tally of all the disposed waste entering the RDNO’s active landfills that utilize scales and scale software, regardless of the source of the waste.

Tipping Fees

Tipping fee revenue varies year to year depending on local economic activity and population growth. Revenue from tipping fees in 2018 was $6,123,286 and the previous year was $6,033,820. The quantity of refuse disposed at the three landfill sites has increased annually since 2014 from 39,000 tonnes to almost 47,000 tonnes in 2018. A simultaneous increase in the per capita disposal rate has also occurred, taking the RDNO further from the new Solid Waste Management Plan target of 350 kg/capita endorsed by the Board of Directors in June 2018.

A substantial increase in the quantity of wood waste, yard waste and concrete requiring processing has resulted in operating cost increases. Normally an increase in the quantity of refuse buried does not result in an increase in operating costs until additional mobile equipment and labour is required. Increasing costs of fuel, equipment maintenance and labour (e.g. extra inspection and enforcement) are what normally impact operating costs. An annual increase in operating costs between 2% and 5% is expected at the three active landfills.

The refuse tipping fee has not been increased since July 2016 when a $3/tonne increase ($97/tonne to $100/tonne) was implemented in order to cover costs associated with year round free tipping of yard waste. As indicated above, in order to maintain the positive financial trend currently experienced, to cover the capital and asset management plan that averages $575,000 per year and a base tipping fee that meets inflation, it is recommended that the following refuse tipping fee increases are endorsed and included in a new five year fee schedule:

Fee Component 2020 2021 2022 2023 2024 Base 79 80 82 83 85 Closure/Post Closure Reserve 18 18 18 18 18 Capital/Operating Reserve 6 7 8 9 10

Total Fee: $103 $105 $108 $110 $113

It is recommended that the five year fee schedule also include annual inflation increases on all other products as shown in Attachment B.

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In order to cover costs, encourage less DDF visits, support Green House Gas (GHG) reduction in the region, encourage an increase in curbside collection and promote the waste diversion strategies in the RDNO Solid Waste Management Plan, it is recommended that the minimum tipping fee is increased as follows:

2020 2021 2022 2023 2024 $6.00 $6.00 $8.00 $8.00 $10.00

City of Kelowna’s Glenmore Landfill minimum tipping fee is $12.00 as of January 1, 2019. Columbia Shuswap Regional District’s minimum tipping fee for refuse is $5.00 and for mixed loads is $10.00.

Bylaw Amendment

Staff have reviewed the current Municipal Solid Waste Management Bylaw and recommend changes as follows: • Simplify the number of product categories • Set five year rates • Reduce confusion • Ensure extra handling and administration costs are covered • Ensure incentives and disincentives are apparent to promote diversion • Ensure sustainable revenue • Minimize out of region customers • Incentivize customers to use private depots • Encourage rethinking and reducing waste • Coincide with a scale software update

Upon direction from the Board of Directors an amendment to the current bylaw will be developed and presented at a future meeting based on Attachment B.

LEGAL/STATUTORY PROCEDURAL REQUIREMENTS:

The RDNO has established a local service to regulate, store, and manage municipal solid waste and recyclable material by Bylaw 1352, being “Solid Waste Management Local Service Establishment Bylaw No. 1352, 1996”. The RDNO has an approved Solid Waste Management Plan; Section 378 [Options for cost recovery] of the Local Government Act, states that Section 397 [Imposition of fees and charges] of the Local Government Act applies to Regional Districts in relation to their services; and Section 397 [Imposition of fees and charges] of the Local Government Act provides that a Board of a Regional District may, by bylaw, impose a fee or charge payable in respect of all or part of a service of the Regional District. The current Municipal Solid Waste Management Bylaw No. 2806, 2019 sets out definitions, regulations, conditions of use, penalties and fees for managing waste drywall at RDNO DDFs.

EXISTING POLICY:

The RDNO Solid Waste Management Plan, updated in 2017 and submitted to the Province for approval in June 2018, specifies a new disposal target of 350 kg/capita/year within ten years. This requires a reduction in disposal of about 150 kg/capita/year from all sectors: residential, commercial and demolition/construction.

Landfill Operation Certificates for seven RDNO facilities require that a closure and post closure reserve is maintained to cover all costs to close, repair and monitor the landfills and all associated infrastructure

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in accordance with the 2016 BC Landfill Criteria for Municipal Solid Waste. The post closure monitoring period is considered to be a minimum of 100 years unless a contaminating lifespan evaluation is completed and the period is reduced accordingly. Current liability estimates calculated for the RDNO landfills uses a 30 year post closure period and will do so until the contaminating lifespan evaluations can be completed.

FINANCIAL/BUDGETARY CONSIDERATIONS:

Adoption of the recommended and updated Guiding Financial Principles and the proposed tipping fees will help ensure the long term financial sustainability of the Solid Waste Management (670) service.

Sufficient funds will be set aside in reserve to meet the future closure/post closure obligations.

Through a phased-in increase to the annual capital contribution from $5/tonne in 2019 to $1 O/tonne in 2024, the additional funding will help address the long term capital replacement, renewal and improvement requirements.

The main refuse fee is proposed to increase by 13% over the next 5 years, from $100 per tonne to $113 per tonne, or 2.6% per year on average. The last fee increases were January 1, 2016 ($95 to $97) and July 1, 2016 ($97 to $100).

COMMUNICATIONS CONSIDERATIONS:

If direction is received to proceed with the above bylaw changes communication for customers will include at least 120 days' notice for fee increases, media releases and new signage at DDF locations.

ATTACHMENTS:

Attachment A- Original Financial Guiding Principles (2011) Attachment B - Proposed Schedule A- Five Year Tipping Fee Schedule

Submitted by: Reviewed and endorsed by:

Nicole Kohnert Mike Fox Manager Regional Engineering Services General Manager Community Services

Reviewed and endorsed by: ~------General Manager, Finance

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Attachment A

SOLID WASTE MANAGEMENT FINANCIAL GUIDING PRINCIPLES - 2011

1. Annually consider an increase in the base disposal fee to cover cost of living increases based on the BC Consumer Price Index 2. Annually until 2020, increase the Landfill Closure/Post Closure Reserve Fund by $1.00/tonne 3. Maintain the sustaining capital reserve contribution from Recycling and Disposal Fees at $5/tonne for the period 2012 - 2016 4. Starting in 2012, requisition $400,000 per year from all property owners in the Regional District of North Okanagan as per Service Establishment Bylaw No. 1352, 1996 with the funds to be used for solid waste management capital projects 5. Ensure the Blue Bag Recycling Program is self sustaining by funding both collection and processing costs through a utility charge to participating households 6. Direct any annual surpluses to a Solid Waste Management Operating Reserve until the reserve balance is equal to 20% of annual Solid Waste Management facility operating costs 7. Direct any annual surpluses occurring after the Solid Waste Management Operating Reserve balance is equal to 20% of annual Solid Waste Management facility operating costs to the Landfill Closure/Post Closure Reserve Fund 8. Use short term borrowing when needed to address short term cash flow issues due to unforeseen costs 9. Annually present proposed Solid Waste Management fees and charges to the Board of Directors a minimum of 90 days prior to the end of each calendar year and implement any changes on January 1 of the following year.

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Attachment B

DRAFT FIVE YEAR TIPPING FEE SCHEDULE (2% Annual Increase in FEE, Rounded Up - Except for Refuse and MIN Fees) January 2020 January 2021 January 2022 January 2023 January 2024 FEE MIN. MIN FEE MIN FEE MIN FEE MIN FEE MIN DESCRIPTION (Fees Effective January 1, 2020) UNITS FEE (Current) FEE FEE (Proposed) (Proposed) (Proposed) (Proposed) (Proposed) (Proposed) (Proposed) (Proposed) (Proposed) (Current) (Proposed) Refuse tonne $100.00 $103.00 $5.00 $6.00 $105.00 $6.00 $108.00 $8.00 $110.00 $8.00 $113.00 $10.00 Refuse containing Refuse Containing Controlled and tonne $203.00 $400.00 $6.00 $10.00 $408.00 $10.00 $416.00 $12.00 $424.00 $12.00 $432.00 $15.00 Regulated Material Fee – any quantity Refuse not specified in the Regional District Solid tonne $174.00 $6.00 Waste Management Plan Refuse: Out of Region tonne $174.00 $350.00 $6.00 $10.00 $357.00 $10.00 $364.00 $12.00 $371.00 $12.00 $378.00 $15.00 Controlled Waste tonne $174.00 $200.00 $6.00 $10.00 $204.00 $10.00 $208.00 $12.00 $212.00 $12.00 $216.00 $15.00 Controlled Waste: Out of Region tonne $400.00 $12.00

Refuse containing Regulated Material: Out of Region tonne $400.00 $12.00 Refuse not specified in the Regional District Solid tonne $400.00 $12.00 Waste Management Plan: Out of Region Litter: pre-approved only tonne $43.00 $5.00 Biosolids: pre-approved only tonne $97.00 $5.00 Mixed Residential Waste tonne $68.00 $70.00 $5.00 $6.00 $71.00 $6.00 $72.00 $8.00 $73.00 $8.00 $74.00 $10.00 Additional Handling tonne $173.00 $10.00 Asphalt Roofing - Clean tonne $82.00 $82.00 $10.00 $10.00 $84.00 $10.00 $86.00 $12.00 $88.00 $12.00 $90.00 $15.00 Asphalt Roofing - Major Contamination tonne $200.00 $20.00 Chipped Yard and Garden Waste and Wood Waste tonne $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 Compost – Charge Days tonne $21.00 $21.00 $5.00 $6.00 $21.00 $6.00 $21.00 $8.00 $21.00 $8.00 $21.00 $10.00 Compost – Free Days tonne $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 Construction and Demolition Waste tonne $202.00 $250.00 $5.00 $10.00 $255.00 $10.00 $260.00 $12.00 $265.00 $12.00 $270.00 $15.00 Page 80 of Construction and Demolition Waste: Out of Region tonne $400.00 $12.00 Cover Material truck $10.00 $20.00 $10.00 $20.00 $20.00 $20.00 $20.00 $20.00 $20.00 $20.00 $20.00 $20.00 Cover Material: Out of Region truck $20.00 $20.00 Crushable Material for Aggregate tonne $10.00 $15.00 $5.00 $6.00 $15.00 $6.00 $15.00 $8.00 $15.00 $8.00 $15.00 $10.00 Drywall – Non-Asbestos Recyclable tonne $135.00 $195.00 $5.00 $6.00 $199.00 $6.00 $203.00 $8.00 $207.00 $8.00 $211.00 $10.00 Drywall – Non-Asbestos: Out of Region tonne $325.00 $10.00 Drywall – Containing Asbestos - Manifested or tonne $200.00 $5.00 unknown Drywall – Containing Asbestos or unknown: Out of tonne $350.00 $12.00 Region Drywall – Potential Asbestos tonne $250.00 $10.00 $255.00 $10.00 $260.00 $12.00 $265.00 $12.00 $270.00 $15.00 E-Waste [accepted at the Kingfisher (Hupel) and unit $5.00 $5.00 $5.00 $5.00 $5.00 $5.00 $5.00 $5.00 $5.00 $5.00 $5.00 $5.00 Cherryville DDFs only] Hydrocarbon Impacted Cover Material: Out of tonne $30.00 $25.00 Region Land Clearing and Property Development Waste tonne $20.00 $20.00 $5.00 $6.00 $20.00 $6.00 $20.00 $8.00 $20.00 $8.00 $20.00 $10.00 Logs and Stumps - Clean and Grindable tonne $20.00 $30.00 $5.00 $10.00 $31.00 $10.00 $32.00 $12.00 $33.00 $12.00 $34.00 $15.00 Logs and Stumps - Large, Dirty or Ungrindable tonne $75.00 $10.00 Major Appliances unit $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 attresses / Box Springs unit $8.00 $10.00 $8.00 $10.00 $10.00 $10.00 $10.00 $10.00 $10.00 $10.00 $10.00 $10.00 Propane Tanks unit $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 Refrigeration Appliances unit $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 Scrap Metal tonne $10.00 $15.00 $5.00 $6.00 $15.00 $6.00 $15.00 $8.00 $15.00 $8.00 $15.00 $10.00 Styrofoam tonne $97.00 $500.00 $5.00 $10.00 $510.00 $10.00 $520.00 $12.00 $530.00 $12.00 $541.00 $15.00 Tires - Passenger and Light Truck with or without unit $5.00 $10.00 $5.00 $10.00 $10.00 $10.00 $10.00 $10.00 $10.00 $10.00 $10.00 $10.00 rims Tires - Medium Truck without rims unit $10.00 $20.00 $10.00 $20.00 $20.00 $20.00 $20.00 $20.00 $20.00 $20.00 $20.00 $20.00 Tires - Medium Truck with rims unit $35.00 $40.00 $35.00 $40.00 $41.00 $41.00 $42.00 $42.00 $43.00 $43.00 $44.00 $44.00 Tonne Unsecured Load $206.00 $10.00 $10.00 $10.00 $10.00 $10.00 $10.00 $10.00 $10.00 $10.00 $10.00 $10.00 unit Wood Waste - Clean tonne $20.00 $10.00 $5.00 $6.00 $10.00 $6.00 $10.00 $8.00 $10.00 $8.00 $10.00 $10.00 Wood Waste - Dirty tonne $20.00 $30.00 $5.00 $6.00 $31.00 $6.00 $32.00 $8.00 $33.00 $8.00 $34.00 $10.00 Yard and Garden Waste - Commercial tonne $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 Yard and Garden Waste -Residential tonne $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00 $0.00