HomeMy WebLinkAboutWD-40-91 ar
TOWN OF NEWCASTLE
REPORT
File
�.' :, Res. #
" - - �*_
--b By-Law #
MEUING: GENERAL PURPOSE AND ADMINISTRATION COMMITTEE
DATE: APRIL 22, 1991
REPORT #: WD-40-91 FILE #:
SIJ&ECT: PARTICIPATION IN•A SOLID WASTE DIVERSION STUDY
RECOMMENDATIONS:
It is respectfully recommended that the General Purpose and
Administration Committee recommend to Council the following:
1. THAT Report WD-40-91 be received; and
2 . THAT Council approve the Town's participation in a Solid Waste
Diversion Study.
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REPORT
1.0 ATTACHMENTS
No. l: Solid Waste Diversion Incentive
No.2: Detailed Work Program for the Study and Design of
a Solid Waste Diversion Incentive Program
2.0 BACKGROUND
2 . 1 At a meeting held on March 11, 1991 Council approved
Recommendation #GPA-155-91:
"THAT the delegation of David Merriman, Consultant
to Solid Waste Interim Steering Committee,
pertaining to a study of solid waste diversion
incentives, be acknowledged;
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REPORT NO. : WD-40-91 PAGE 2
THAT this matter be referred to Staff for
preparation of a report for submission to the
General Purpose and Administration Committee; and
THAT David Merriman be advised of Council's
decision. "
3.0 REVIEW AND COMMENT
3 . 1 Purpose of a Waste Diversion Incentive Program
The purpose of a Waste Diversion Incentive Program is to encourage
people to produce less garbage by using such means as composting,
recycling and reusing.
3 .2 Purpose of the Study
The purpose of the Solid Waste Diversion Incentive Study is to
identify alternative waste diversion plans which can be applied to
the residential sector.
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3 . 3 Methodology
Alternative waste diversion plans will be identified by:
* Reviewing current practices
* Contacting and/or visiting other communities which have
waste diversion incentive programs
The study will consider a number of methods such as:
* Collection stickers
* Special Bags
* Special containers
* Total weight produced
The method will be evaluated taking into consideration existing and
proposed recycling, collection and disposal methods, on-going
operations costs and community benefits .
Advantage and disadvantages associated with each plan will be
evaluated and a preferred plan will be recommended.
. 3
REPORT NO. : WD-40-91 PAGE 3
3 .4 Pilot System Analysis
A residential sector may be selected for a smaller pilot system
analysis . The pilot program will be monitored and results will be
reported to the Town's representative periodically. After comments
and observations from Town of Newcastle's staff and other
interested parties, a final report will be prepared and presented
incorporating reviewers ' comments and suggestions . The final report
will provide the Town with information for considering an
alternative Waste Diversion Incentive Plan and will be submitted
by December 1991, by MacViro Consultants Inc .
3 .5 The Town is Uniquely Suited for the Study
The Town is uniquely suited for the study because we charge a
uniform rate ($156 in 1990 and $150 in 1991) for a uniform level
of garbage collection service. Other municipalities in the Region
charge for garbage collection on the mill rate which means that the
cost for garbage collection is related to the assessment on the
house rather than the service being provided. The Town's system
for charging for the service makes it easier to provide a reward
for reducing the amount of garbage put out such as reducing the
annual charge.
3 . 6 Costs
The estimated cost of the study is $100,000 which will be paid by
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the Province. The only cost to the Town will be staff time in
participating in the study.
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3 . 7 No Obligation to Implement a Waste Diversion Incentive Plan
Participation in the study by the Town places no obligation on the
Town to implement a Waste Diversion Incentive Program.
3. 8 Detailed Work Program
Attachment No.2 provides a detailed work program for the proposed
study.
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REPORT NO. : WD-40-91 PAGE 4
Respectfully submitted, Recommended for presentation
to the Committee,
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Walter A. Evans, P.Eng. , Lawrence otseff,
Director of Public Works Chief Administrative Officer
WAE*llv
April 11, 1991
Attachments
pc: MacViro Consultants Inc .
7270 Woodbine Avenue
Third Floor
Markham, Ontario
WR 4B9
Attention: Mr. D. 0. Merriman, P. Eng.
Vice President
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A Study of Solid Waste Diversion Incentives
Purpose
The purpose of this study will be to identify and evaluate alternative waste diversion
incentive schemes and report on their applicability to the residential sector. Based on the
data obtained during the course of the study and evaluation of the viable alternatives,
selected pilot waste diversion incentive schemes will be designed.
Deliverable and Schedule
A report representing the findings of these site specific investigations will be submitted by
December of 1991.
Project Activities
At the outset, general approaches and practices would be studied. Following a review of
current practices, communities presently operating user diversion incentive schemes would
be contacted and/or visited to obtain data to assist in identifying the most suitable
alternatives.
Based on information obtained from the first two tasks, the various schemes will be
reviewed and evaluated relative to local requirements, and a preferred approach selected.
Preparation of an implementation strategy appropriate for Newcastle as a representative
community for the selected alternative (or alternatives) will follow, describing the preferred
system, special aspects, estimated costs and schedule for implementation, and development
of a monitoring and evaluation program.
In undertaking these activities, the technical aspects, including potential improvements in
collection efficiency; the accountingibilling aspects of the scheme and social impact
considerations will be addressed.
Costs
The estimated cost of this project is approximately $100,000 and is being funded with
support from the Ministry of the Environment.
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ATTACHMENT NO , 1
WD-40-91
S �
DETAILED WORK PROGRAM
FOR THE
STUDY AND DESIGN OF A
SOLID WASTE DIVERSION
INCENTIVE PROGRAM
By
MacViro Consultants Inc.
7270 Woodbine Avenue
3rd Floor
Markham, Ontario
L3R 4139
#3130-10 1991
April ATTACHMENT T 110 ,2
WD-40-31
Table of Contents
Page
1.0 INTRODUCTION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1-1
1.1 Project Objectives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1-1
1.2 Background and Alternatives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1-1
1.3 Proposal Overview . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1-2
2.0 WORK PROGRAM . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2-1
2.1 Identify General Diversion Incentive Approaches . . . . . . . . . . . . . . . 2-1
2.1.1 Literature Search and Review .. . . . . . . . . . . . . . . . . . . . . . . . 2-1
2.1.2 Identify Example Diversion Incentive Communities and
ExistingPractices . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2-1
2.2 Visit Cities with Diversion Incentives in Place . . . . . . . . . . . . . . . . . 2-2
2.2.1 Plan and Conduct Visits . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2-2
2.2.2 Document Findings . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2-2
2.3 Select an Approach . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2-3
2.3.1 Formulate Alternatives . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2-3
2.3.2 Identify Stakeholders and Implications . . . . . . . . . . . . . . . . . . 2-3
2.3.3 Identify Barriers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2-3
2.3.4 Refine Alternative . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2-4
2.3.5 Estimate Costs and Benefits of Alternatives . . . . . . . . . . . . . . 2-4
2.3.6 Evaluate and Compare Alternatives . . . . . . . . . . . . . . . . . . . . 2-4
2.3.7 Recommend a Preferred Alternative . . . . . . . . . . . . . . . . . . . 2-5
2.4 Prepare an Implementation Strategy . . . . . . . . . . . . . . . . . . . . . . . . 2-5
2.4.1 Describe Recommended Diversion Incentive System . . . . . . . 2-5
2.4.2 Identify and Required Changes in Legislation . . . . . . . . . . . . 2-6
2.4.3 Document Enforcement Procedures . . . . . . . . . . . . . . . . . . . . 2-6
2.4.4 Identify Educational and Promotional Requirements . . . . . . . 2-6
2.4.5 Estimate Implementation Costs . . . . . . . . . . . . . . . . . . . . . . . 2-7
2.4.6 Rebate or Charging Mechanism . . . . . . . . . . . . . . . . . . . . . . 2-7
2.4.7 Prepare Implementation Schedule . . . . . . . . . . . . . . . . . . . . . 2-7
2.4.8 Develop Program for Monitoring and Evaluation . . . . . . . . . . 2-8
2.5 Project Management and Reporting . . . . . . . . . . . . . . . . . . . . . . . . . 2-8
2.5.1 Ongoing Project Management . . . . . . . . . . . . . . . . . . . . . . . . 2-8
2.5.2 Draft Report . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2-8
2.5.3 Final Report . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2-10
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1.0 INTRODUCTION
A solid waste diversion incentive program will promote the most environmentally sound
options of reduction and re-use, as residents could receive a tangible monetary reward for
their waste reduction efforts.
1.1 Project Objectives
The objectives of this study will be to identify and evaluate alternative waste diversion
incentive schemes and report on their applicability to the residential sector. Based on the
data obtained during the course of the study and evaluation of the viable alternatives, a pilot
diversion incentive scheme will be designed.
1.2 Background and Alternatives
All members of our society are becoming increasing aware of solid waste management
issues. Diversion incentives include a number of potential approaches ranging from rebates
or credits to residents who generate less waste on an annual basis to direct pay by the bag
systems.
Although the current project is a feasibility study, including the design of a pilot program,
the ultimate implementation of such a program could be begin by simply informing residents
of what their savings would have been, alternatively, the current solid waste charge could
be removed from resident's tax bill and householders would be required to pay directly on
a per unit basis.
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Presently, the number of urban communities utilizing diversion incentives or a user pay
waste disposal system in conjunction with recycling is quite low and predominantly in the
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United States. In most urban centres, the cost of collection and disposal of residential
wastes is covered by municipal tax assessment. Some of the specific methods of monitoring
the quantity of waste disposed of by individual households are as follows:
Collection Stickers
Under this scheme, residents receive a purchase special stickers from the municipality or a
private hauler for attachment to all refuse containers or bulky items. A variation of this
system allows a maximum number of bags/containers to be put out for collection, with the
special stickers required for additional refuse.
Special Bags
This scheme is similar to the sticker system, where households are required to use special
refuse bags. Two or more sizes bags may be available.
Special Containers
In a system using special containers, households are provided with containers by the
municipality. Residents may agree to put out a specific number of containers each
collection period, with an additional charge for extra items.
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Scales on Truck .
Since final compacted refuse volume at a disposal site will generally relate to its weight,
accounting for refuse disposal based on weight could be considered. This would require the
use of scales and a computer based recording system at the curbside pick-up point.
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1.3 Proposal Overview
The methodology to develop a diversion incentive program for the residential sector and
prepare the implementation strategy would comprise four areas of activity.
First, general diversion incentive approaches and practices would be studied. Following a
review of current practices, communities presently operating systems would be contacted
and/or visited to obtain data to assist in identifying the most suitable alternatives.
Based on information obtained from the first two tasks, the various schemes will be
reviewed and evaluated relative to local requirements, and a preferred approach selected.
Preparation of the implementation strategy for the selected alternative will follow, describing
the preferred system, special aspects, estimated costs and schedule for implementation, and
development of a monitoring and evaluation program.
In undertaking these activities the technical aspects, including potential improvements in
collection efficiency and the accounting/billing aspects of the diversion incentive program
will be addressed along with a consideration of the social attitudes and perceptions
associated with this issue.
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2.0 WORK PROGRAM
The work plan for this study consists of four major activities, as previously discussed, leading
to a selection of the recommended alternative or alternatives and associated implementation
strategy for a pilot program.
2.1 Identify General Diversion Incentive Approaches
This phase of the work will provide data relating to overall diversion incentive system
approaches, including carrying out a literature search and review, and identifying present
diversion incentive practices and representative communities where existing diversion
incentive schemes have been implemented.
2.1.1 Literature Search and Review
Data bases in North America and elsewhere will be surveyed to obtain relevant information.
In addition, municipalities and government agencies will be contacted to obtain applicable
reports, publications, by-laws and regulations, historical operating data for existing systems,
etc. All data will be reviewed and evaluated for applicability to the study.
2.1.2 Identify Example Diversion Incentive Communities and Existing Practices
From information assembled during the literature search and review, the communities
presently engaged in diversion incentive programs will be identified along with their
alternative practices in promoting, implementing and operating public education/promotion
programs. Details of public education and feedback procedures will be solicited from
program operators. An important aspect will be the impact of diversion incentive and/or
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recycling practices on overall waste collection and disposal. Private waste haulers will also
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be identified and contacted.
2.2 Visit Cities with Diversion Incentives in Place
Once the communities operating diversion incentive programs have been identified and
contacted, a number will be selected to visit based on an assessment of the preliminary
information received relative to local requirements. Some potential communities are
conveniently located in the north-eastern United States although it is reported that
established residential diversion incentive systems are also operating successfully in the State
of Washington. It is expected that local representatives would participate in the visits.
2.2.1 Plan and Conduct Visits
Arrangements for visits to selected communities will be scheduled verbally and confirmed
by letter. It is anticipated that at least one full day will be required to gain an appreciation
of the overall waste management system and observe the diversion incentive program in
action. These visits will also provide the opportunity to expand on preliminary information
obtained and discuss implementation and operation details with program personnel.
2.2.2 Document Findings
Each of the visits will be individually documented to record all information and note any
documents received. Reports will include observations on the diversion incentive program
logistics, costs, effectiveness in reducing waste disposal, problems, etc. The various types of
diversion incentive systems will be categorized for reference.
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2.3 Select an Approach
After determining suitable approaches for diversion incentives and visiting the representative
communities where diversion incentive programs are established, it will be possible to select
the most appropriate alternative schemes for review and evaluation, taking into account
current local collection and disposal methods.
2.3.1 Formulate Alternatives
The most suitable alternative diversion incentive approaches will be selected based on
consideration of unique local conditions. This will include addressing factors such as
compatibility with existing recycling, collection and disposal methods,potential for significant
reduction of refuse going to disposal, implementation and on-going operation costs,
community benefits, etc.
2.3.2 Identify Stakeholders and Implications
Implementing a residential diversion incentive scheme will affect a variety of groups within
the community; residents, those responsible for starting and maintaining the system,
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recyclers, municipal agencies, enforcement personnel. The implications of implementing the
proposed system need to be considered during evaluation and comparison of potential
alternatives, in order to minimize negative impact on the various interested groups.
2.3.3 Identify Barriers
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Natural resistance to change and understanding new practices may produce barriers which
will need to be dealt with to give the new program the best chance for success. Concerns
such as perceived increased disposal costs, impacts on large families ..mandatory
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participation, etc., will need to be identified through discussions with community groups.
These concerns will need to be addressed through an effective public information,
promotion and education campaign to be implemented as part of the subsequent pilot
program.
2.3.4 Refine Alternative
By identifying and reviewing the current practical diversion incentive approaches, and
recognizing the major impediments and implications to interested parties, the most suitable
schemes can be selected and refined in order to determine the effectiveness, benefit and
first-order costs for the various alternatives.
2.3.5 Estimate Costs and Benefits of Alternatives
For each alternative scheme, estimated recurring costs for operating the diversion incentive
program and benefits to residents and the region will be determined. Cost considerations
will include any modifications to existing collection/disposal methods, equipment and
maintenance requirements, administration, on-going promotional activities, etc. The analysis
conducted under this activity will lead to a first order estimate of the householder rebate
or charges associated with the various alternatives. Our project team will include an
experienced municipal financial impact analyst to assist in the preparation of reliable cost
data.
2.3.6 Evaluate and Compare Alternatives
At this stage, evaluation and comparison of the most promising alternatives can be done to
determine the most suitable scheme for the Region. The advantages and disadvantages of
each of the alternatives will be presented and discussed. The key factors affecting the
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evaluation process include overall community impact, confidence in achieving the primary
objective of reducing wastes requiring disposal, and the ease of integrating the diversion
incentive scheme into the existing waste management program.
2.3.7 Recommend a Preferred Alternative
From the foregoing efforts, the preferred residential diversion incentive approach will be
selected based on evaluation of the data obtained and weighing the pros and cons associated
with each scheme.
The ultimate selection of a preferred alternative or alternatives will depend on a range of
factors and take into consideration, social, technical economic and administrative
considerations.
2.4 Prepare an Implementation Strategy
The implementation strategy for the recommended diversion incentive program will provide
a detailed description of the proposed pilot scheme for a selected community, requirements
for any necessary legislative changes,presentation of recommended enforcement procedures,
community promotional requirements, estimated program one-time implementation costs
and start-up schedule. In addition, a component will be developed to enable the on-going
monitoring and evaluation of the program.
2.4.1 Describe Recommended Diversion Incentive System
This section of the report will provide specific details on how the pilot diversion incentive
project will work including the extent of program coverage within the community, special
containers of other physical requirements, what the resident needs to do to effectively
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participate in the program, methods for program administration, monitoring, evaluation and
enforcement, and an estimate of the anticipated operating costs or revenues.
2.4.2 Identify and Required Changes in Legislation
If Legislative changes or modifications are considered necessary for initiating and operating
the diversion incentive system, these will be identified and discussed in this section. A
review of current waste management regulations and by-laws in the region and in other
jurisdictions will be carried out and the agencies responsible for administering these
regulations will be contacted.
It is expected that some direction in this area will be obtained from a review of current and
proposed legislative practices in other jurisdictions.
2.4.3 Document Enforcement Procedures
Methods and the responsibility for enforcement of the program will be documented to
enable reasonable procedures to be established. A review of current administration
practices used in other diversion incentive programs will assist in developing an effective
enforcement plan and avoiding problem areas experienced by others.
2.4.4 Identify Educational and Promotional Requirements
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Proper education and promotion of the diversion incentive program will ensure the best
possible participation by the community and also serve to enhance public awareness of the
overall waste management system.
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Promotional practices for recycling programs are well developed and can be adapted to
promote diversion incentives. Advertising, both direct and indirect, information kits and
feedback between the municipality and the users are effective methods for achieving
maximum participation and continuing support.
2.4.5 Estimate Implementation Costs
One-time costs associated with implementating the diversion incentive program will be
estimated for the preferred option or options. These costs will include preparation of
promotional materials, setting up monitoring evaluation and enforcement procedures,
preparing the content of any legislative requirements, purchase of any special equipment,
such as containers, and possibly conducting public information sessions. Program
management procedures will need to be set up early to provide control over initial and on-
going program operation.
This cost data will be considered in connection with the selected system and an appropriate
rebate or tariff structure will be established.
2.4.6 Rebate or Charging Mechanism
The specific system for providing rebates or charging householders for solid waste
management services will be specified. The corresponding accounting and control
procedures will also be recommended.
2.4.7 Prepare Implementation Schedule
Tasks associated with program implementation will be identified, described and prioritized
to enable development of a realistic schedule. This may include operating the program on
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an information basis only at the outset (i.e. telling people what they would have saved or
would have been charged rather than actually providing credits or levying charges).
Promotional information distribution, drafting of proposed legislative changes, and
administrative requirements should be dealt with at the beginning of the implementation
phase to minimize slippage in the start-up schedule.
2.4.8 Develop Program for Monitoring and Evaluation
Monitoring performance of the pilot program will permit confirmation of the effectiveness
of the diversion incentive program with respect to present disposal practices. It is important
that feedback from residents and program personnel be solicited to allow periodic
evaluation and refinement of the program in order to maintain community support. The
report will contain proposed monitoring, evaluation and reporting recommendations.
2.5 Project Management and Reporting
2.5.1 Ongoing Project Management
Progress of the project will be continuously monitored and periodically reported. A formal
monthly report will be provided indicating specific tasks carried out, significant data and
documents acquired, details of visits to review existing diversion incentive systems, and
maintenance of the project schedule.
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2.5.2 Draft Report
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The results of the activities described previously will be compiled and presented in a concise
report. The draft version of the report will be submitted for review and comments. A
preliminary outline for the report is presented below. This outline will be reviewed and
updated as required to ensure that it remains appropriate and in keeping with requirements.
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Report Outline (Preliminary,)
1. Executive Summary
Summary of key aspects and recommendations
2. Introduction
Background to project
Project objectives
Overview of Report
3. Description of Existing and Potential Diversion Incentive Approaches
A factual chapter describing currently operating systems, the various potential
approaches and actual outcomes (i.e., costs, workability, effectiveness)
4. Determine and Recommend a Preferred Alternative or Alternatives
An analytical chapter evaluating the material presented in the various chapters with
respect to applicability to and workability locally.
Key success factors, risks, barriers, benefits and costs will be discussed.
Refine alternatives, evaluate, and recommend a preferred approach.
5. Implementation Strategy for a Preferred Alternatives
A detailed presentation of the considerations and requirements for implementing a
pilot diversion incentive program including system description, legislative aspects,
start-up costs and methods for promotion, enforcement and on-going monitoring and
evaluation.
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2.5.3 Final Report
After receipt of comments and observations, a final report will be prepared and presented
incorporating reviewers' comments and suggestions.
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