AGENDA ITEM #7.e.

Solid Waste Management City of Revelstoke

March 29, 2014, Penny Page-Brittin, Environmental Sustainability Coordinator

Introduction
The City of Revelstoke provides curbside collection of recycling and garbage to approximately 3000 households. This report aims to provide a better understanding of current and possible future changes to solid waste management activities within the City. The report details information regarding: The Columbia Shuswap Regional District (CSRD) Solid Waste Management Plan The Citys goals and policies relating to solid waste management Composition and amounts of solid waste collected Data on quantities of recycling diverted from the landfill Possible collection streams and methodologies moving forward

Regional Solid Waste Management Plan

The Environmental Management Act requires Regional Districts prepare and submit Solid Waste Management plans to the Ministry of the Environment. The CSRD, through public and stakeholder participation, created a Solid Waste Management Plan in 2009. The plan creates a vision of zero waste and provides guiding principles for the next 20 years. While the plan is high level in nature, it also developed a detailed five year implementation schedule with specific actions and programs for each of the four waste sheds in the CSRD. The implementation schedule was completed in 2013. It is anticipated the CSRD, in conjunction with stakeholders and member municipalities, will update the Solid Waste Management Plan in the spring of 2014.

Revelstoke Waste Shed

The Revelstoke and area waste shed consists of the communities which dispose of their waste at the Revelstoke Landfill. This includes the City of Revelstoke, CSRD electoral Area B, Malakwa, Trout Lake and Mica Creek. The implementation of the Solid Waste Management Plan 2009-2013 resulted in a number of programs for the Revelstoke waste shed: Backyard composter education and sale Depot recycling expansion to include residentially generated cardboard and mixed plastics Curbside residential recycling collection in the City of Revelstoke Development of infrastructure for windrow composting of yard and garden waste was initiated at the landfill Construction of a Resource Exchange Center (re-use shed) at the landfill

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City of Revelstoke Solid Waste Goals and Policies
The following solid waste goals and policies in the Official Community Plan relate to the Regional District Solid Waste Management Plan and its future implementation: Goals Reduce the need to landfill waste Eliminate wildlife attractants in all segments of the waste stream Encourage land use and development policies that protect solid waste land fill sites Policies Develop and implement a City Solid Waste Management Plan that is consistent with the Regional Districts Plan and other community initiatives. Continue to work towards becoming a Zero Waste community by: - Exploring the creation of a 3R (Reduce, Reuse & Recycle) program; - Exploring opportunities for a community composting program including a feestructured green dumpsite for household organic waste; and - Establish a construction waste recycling program in conjunction with the CSRD. Identify and mitigate the impacts of landfill sites The Integrated Sustainability Community Plan (ISCP) recognizes minimal waste as a sustainability priority. Actions in the ICSP relating to solid waste reduction include: Participate in developing a 5-year implementation Strategy for the Regional Solid Waste Management Plan (very high) Grow composting/organics collection and disposal opportunities in the community, including: -Support the development of a community composting facility at the CSRD landfill site (medhigh) - Curb-side pick-up and composting of kitchen organics (med high) - Encourage Bear-Aware household composting (med high)

What goes in the landfill?

In October 2013, the CSRD completed a Solid Waste Characterization Study for the Revelstoke landfill. The study analyzed fifteen waste samples received from curbside collection, self-haul residential and Industrial, Commercial and Institutional (ICI). The largest portion of the total waste stream by weight is compostable organics making up 36.8%. Compostable organics are composed of yard and garden, food waste and clean wood. Examples of noncompostable organics are treated/painted wood, rubber and multiple/composite organic material.

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Figure 1 Waste Characterization Study Revelstoke Landfill, curbside collection, self-haul residential and ICI

Residential Solid Waste Composition

Five samples in the Waste Characterization Study were taken from residential curbside collection. The composition of waste from residential curbside collection is represented in Figure 2. Compostable organic is the highest component by weight, comprising 40.6% (32.2% food waste, 8.4% yard and garden) 2

Figure 2 Results of 2013 Waste Characterization Study, for Residential Curbside Collection, City of Revelstoke
1

October 11, 2013, 2013 Solid Waste Characterization Study, Revelstoke Refuse Disposal Site, TRI Environmental Consulting Inc., http://www.csrd.bc.ca/node/1054 October 11, 2013, 2013 Solid Waste Characterization Study, Revelstoke Refuse Disposal Site, TRI Environmental Consulting Inc.

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Compostable Organic Waste
Organic waste is composed of both household food waste and yard and garden waste. Diverting organics from the landfill will extend the life of the landfill, reduce greenhouse gas emissions and create useful compost. The construction of a windrow facility to process yard and garden waste is currently underway at the Revelstoke landfill. The facility is being built using funding from the Regional District Community Works Fund (Gas Tax). Construction began in the fall 2013 and is anticipated to be completed and operational in the spring 2014. The CSRD is currently evaluating options to divert household organic food waste from the landfills in Salmon Arm, Golden and Revelstoke. Where and how the material will be processed are key considerations which must be addressed prior to moving forward.

Organic Waste and Greenhouse Gas Emissions

The decomposition of organic waste creates greenhouse gases including methane. Methane has a greenhouse gas potential 21 times that of C02. The City of Revelstoke Community Energy and Emissions Plan (2010) indicates the emissions for the Revelstoke landfill are 7.5% (4,734 tonnes of C02e) of the total community emission. The City has established a reduction target of 8% reduction in GHG emissions by 2020 compared with 2007 baseline levels and 15% reduction in GHG emissions by 2030, compared to 2007 levels. Its estimated the diversion of household organic waste would result in a reduction of approximately 214 tonnes of C02(e) per year. 3

Solid Waste Collection

While the Regional District is responsible for the solid waste management plan and the processing and landfilling of solid waste, its collection has been the responsibly of the City. The City of Revelstoke currently collects two waste streams, refuse (garbage), and recycling. Refuse Municipal staff collect refuse from approximately 3000 households in five collection areas using a manual system. The average amount of refuse collected per day is 4490 kg/collection route and the largest collection day in 2012 was 6915 kg. The annual tonnage of refuse collected from 2009 to 2013 is indicated in Figure 3. The total annual tonnage of refuse being landfilled through residential curbside collection has been decreasing since 2009.

2012 garbage collection data, assume 32.3% household organic, and a 80% diversion rate, calculated using Becoming Carbon Neutral Organic waste diversion calculator, http://www.toolkit.bc.ca/News/Updated-ToolHousehold-Waste-Composting-Project-Profile

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AGENDA ITEM #7.e. Curbside Garbage Collection

Garbage Collected (tonnes) 1400 1200 1000 800 600 400 200 0 Garbage 2009 1282 2010 1221 2011 1187 Year
Figure 3 Residential curbside garbage collected in the City of Revelstoke (2009-2013)

2012 1134

2013 1102

Recycling Curbside collection of recycling is currently contracted out by the City. Depot collection at the landfill and the bottle depot are managed by the CSRD. Beginning May 19, 2014, the collection and processing of all Packaging and Printed Paper, which includes the current recyclable material, will be the responsibility of Industry as part of the Provincial Extended Producer Responsibility legislation. MultiMaterial British Columbia (MMBC), acting on behalf of Industry, will be providing funding to the City to continue to carry out this function until December 31, 2014. Following this date, MMBC will assume responsibility for curbside collection in Revelstoke. Figure 4 details the diversion rate of recycling from the Revelstoke landfill 2010-2013.

Recyling Collection
600 500 Recyling (tonnes) 400 300 200 100 0 2010 2011 Year
Figure 4 Recycling Collection in the City of Revelstoke (2010-2013)

Depot Curbside Total

2012

2013

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Moving forward with Solid Waste Collection and Diversion
The City currently needs to replace the existing garbage truck, and in doing so, a number of items need to be considered: The potential for organic household waste collection in the future Access of solid waste to wildlife Work place injury as a result of manual collection Available collection methodologies (contracted/in-house, manual/automated) Organic Household Waste The amount of organic household waste produced by single family residences in Revelstoke is estimated to be 323 to 437 tonnes annually 4. The CSRD has recently completed a feasibility study for the collection and processing of organic household waste for Salmon Arm, Golden and Revelstoke. If the next implementation schedule of the Solid Waste Management Plan includes moving forward with organic household waste collection and processing, it may add another waste stream for collection in the City of Revelstoke. Municipalities in British Columbia currently collecting residential curbside organic household waste include Port Moodey, Surrey, Naniamo and LadySmith. Possible organic household waste collection programs include direct haul by residents, drop-off depots, neighborhood drop-off depots and curbside collection. Curbside collection has the highest participation and diversion rates as well as the highest cost. In an established residential curbside collection program, with an educational program in place, an 80% to 90% diversion rate is achievable 5. Implementing dropoff depots are less expensive, but may have a lower participation rate, and may create concerns with location selection, dumping, and access to wildlife. The CSRD study indicates typical examples of food waste collected in a house hold organic program include: fruits and vegetables pasta and rice table scraps and plate scrapings eggs and egg shells meat, chicken, fish, and bones paper towels, napkins and tissues dairy products soiled newsprint bread and baked goods paper take-out trays and egg cartons coffee grounds/filters and tea bags

A means of processing household organic waste needs to be established prior to implementing a household organic collection system. The CSRD study reviewed a number of possible technologies and options for processing facilities. Options selected included covered outdoor aerated static pile
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Based on results of waste Characterization Study Residential Organic Waste Collection Program Options and Considerations, August 12, 2013, CH2MHill http://www.csrd.bc.ca/node/1176

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composing, indoor aerated static pile composting and static and agitated container systems. 6 The report also reviewed options for a processing facility located in Salmon Arm, Revelstoke and Golden as well as a regional facility which would process material from each municipality. The report estimates the construction cost to build a facility in Revelstoke to be on the low range of $864,385 and on the high range of $3,457,539.7 Solid Waste and Wildlife The current system of garbage collection is not wildlife resistant. There are approximately 45 bear sightings a year where the attractant identified is garbage. 8 The majority of incidents of bear accessing garbage occur in mobile home parks, along wildlife corridors or in areas where residents do not have garages to secure garbage. A map of areas in the City which contain a high concentration of residents with limited ability to secure garbage can be seen in Appendix A. In 2007 the City formed the Solid Waste Collection committee to address collection issues including those related to bears and other wildlife accessing garbage. In 2008 the City of Revelstoke and Revelstoke Bear Aware piloted the use of the 120L BearSaver bins in Johnson Heights. The BearSaver bin is self-locking and requires a semi-automated lifter arm, where the operator attaches the bin to a lifter arm before dumping. The bin is not compatible with a full automated system because the operator is unable to determine from the truck whether the bin is unlatched before dumping. 9 The bins were well received and following one year of the pilot project were successful in preventing bears from accessing garbage. While this was the case, the life cycle of the bins was not well tested, required bin size was unclear, and an implementation plan was not established for the City. The BearSaver bins have now been in place for five years. A survey of the bins in November 2013 indicated approximately half of the bins now have problems with the latching system. 10 In 2008 the City of Coquitlam piloted the use of three different bear resistant bins to approximately 400 residents. Due to concerns with the latch mechanism in the BearSaver bin, it was not chosen for implementation. Coquitlam choose to utilize a standard bin which is retrofitted with clips 11. The bin is not self-locking and residents are required to unclip their bins on collection day. The clip bins are now in place in Port Moody, Squamish and have recently been implemented in Port Alberni.

CH2MHill, Technical Memorandum Composting and Anaerobic Digestion Technology Review and Evaluation, August 12, 2013 , http://www.csrd.bc.ca/node/1178 7 CH2MHill, Technical Memorandum Regional Processing Facility Conceptual Designs and Cost Estimates, August 12, 2013 8 Annual average calculated between 2008 and 2012, Revelstoke Bear Aware Society Annual Report, December 31, 2012, www.revelstokebearaware.org, assessed on-line January 8, 2014 9 Phone conversation with Carneys Waste system, Squamish BC, 2008 10 November 13, 2013, 29 bins examined, 15 in good working order, 6 with latches very stiff, 2 with one side not latching, 2 not latching at all, 3 with one latch broken off completely. 11 Personal communication, Drake Stephens, Coquitlam Urban Wildlife Coordinator, Environmental Services Division, City of Coquitlam

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Solid Waste Collection and Work Place Injury The current manual system of garbage collection has resulted in work place injuries, claims to Work Safe BC and an increase in Work Safe BC premiums for the City. While not all attributed to garbage collection, the Work Safe BC premiums will increase by about 30% or approximately $30,000 in 2014. 12 Work Safe BC is requiring the City make changes to the current system of collection, and has indicated operating a manual truck with a single operator moving forward is not permitted. 13 Some municipalities including the City of Port Alberni and the City of Prince George have chosen to move away from a manual system and to utilize an automated system to reduce lifting strain and injury. The City of Prince George solid waste division was averaging 150 lost-time days per year prior to implementing an automated system. Following implementation, it was reduced to nearly zero resulting in wage saving of $35,000 to $40,000 per year and a worker compensation insurance premiums reduction of 17%. 14

Collection Systems Considerations

Automated Systems An automated system can either be semi-automated or fully automated. In a semi-automated system, the operator moves the bin from the curb and places it on a lifter arm before it is lifted and dumped. This may be a preferable system where there are laneways and limited space for a truck to pass. 15 Although reducing operator lifting, semi automation is typically a slower system compared with manual collection. In a fully automated system the operator remains in the vehicle and a mechanical arm reaches out and grasps the bin before lifting and dumping. Load cycle times varies with operator skill, hills and density, but cycle times of 5 to 15 seconds are typical, allowing automated collection vehicles to service 1,000 to 1,200 household per day, generally representing a 25 to 50% increase over manual side load performance. 16 There are currently lifter arms on the market that can extend 12ft to allow for collection in difficult places. 17 Fully automated systems are in place in many cities in British Columbia and appear to be growing. The system requires education and training of residents to ensure the bins are placed such that they are accessible by the mechanical arm. A fully automated system is not as flexible as a manual or semiCity of Revelstoke, 2014-2018 Financial Plan, November 26, 2013 Person communication, Darren Komonoski 14 CH2MHill, Technical Memorandum - Residential Organic Waste Collection Program Options and Considerations, prepared for the CSRD, August 12, 2013. 15 Smithers chose this options due to limited lane space 16 Residential organic waste collection program options and Considerations, CH2M Hill, August 12, 2013, prepared for the CSRD, http://www.csrd.bc.ca/node/1176
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Fully automated lifter arm used in Port Alberni, person communication Mark Zenko, Operations

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automated system for placement of the bins. Automated collection vehicles can be adapted to work with a range of containers, however, in order to achieve the full performance benefits of automation, container styles must be consistent and placed in uniform and assessable locations by residents. 18 Utilizing a fully automated system, it may be possible to reduce the number of collection days and routes within the City. It is likely that heavy snow fall events will pose challenges for bin placement and collection; however it is unclear how significant these challenges may be. The operator may need to leave the truck and move bins for access during heavy snow events. Automated systems are currently in place in Ottawa, Calgary and Quebec City, where heavy snowfall occurs. Collection Vehicles Curbside collection vehicles are typically either rear or side loading. The collection container on the truck can be a single or split container. A split container allows for collection of more than one waste stream on a collection route with a single pass. Split containers are available in 50/50, 60/40 or 70/30 splits, with the split chosen depending on the weight and density of the waste streams being collected. A number of challenges have been identified with the use of split container trucks: Choosing the appropriate split may be challenging. If residents of a particular route divert more of one waste stream than other routes, that side of the container will fill up faster and may need to be dumped, before carrying on with the route. 19 Changing the selected split ratio requires considerable effort or remanufacturing. 20 Changes in diversion rates over time or additional items added to a diversion program can have an impact on split requirement of the container Split container trucks require more maintenance due to additional hydraulic parts Standardized Bins Both full and semi-automated systems require the use of standardized bins. Standardized lifter compatible bins are available in 120L, 180L, 240L and 360L sizes. Typical standardized bins are not bear resistant. Bear Resistant Bins A number of residential bear resistant bins are available. Self-locking bear resistant bins require the collection operator to unlock the bins before dumping. The bins are not compatible with a fully automated collection system, because the operator is unable to determine whether the bins are unlocked without getting out of the truck. The self-locking bins have mechanical parts which may make

Residential Organic Waste Collection Program Options and Considerations, CH2M Hill, August 12, 2013, prepared for the CSRD 19 Personal communication, Mike Stelmach, City of Hamilton, Operations, December 4, 2013. 20 Residential Organic Waste Collection Program Options and Considerations, CH2M Hill, August 12, 2013, prepared for the CSRD

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them more prone to needing repair. As a result of the recent survey of the bins in the Johnson Heights pilot project, self-locking bear resistant bins are not being considered as an option at this time. Bear resistant clip bins are currently being used in the City of Coquitlam, Port Alberni, Port Moodey and Squamish and are endorsed by the Provincial Bear Aware program 21 Residents are required to unclip the bins on the day of collection. Collection operators are able to determine whether the bins are unlocked from the truck, making the clip system compatible with a fully automated system. This is not a perfect system as the bins are unclipped and accessible to wildlife on collection day, but does allow the bins be secured outside of collection day. In Port Alberni, bear resistant clip bins were not universally distributed, but were offered to residents who had difficulty securing garbage from bears. The cost of adding the clip system to a standard bin is approximately $65/bin. While the clips are added by the manufacturer, the Public Works staff in Port Alberni have retrofitted bins where needed. The clip system has been in place in Squamish for four years. While it is rare for bears to receive a food reward, a bear can do damage to the bin. The overall repair rate of bins in Squamish after four years in place is approximately 2-3%. 22 The City of Coquitlam is implementing organic household waste curbside collection and will be providing the bear resistant clip bins for organic waste collection and standard bins for garbage beginning in July 2015.23

Figure 5 Rollins Bear resistant tote. Picture Meg Toom, Squamish WildSafe BC Community Coordinator.

BC Bear Aware, Bear-Resistant Bins, www.bearaware.bc.ca/?q=conflict-prevention/bear-resistant-bins, assessed on-line January 9, 2014. 22 Personal communication, Colleen Carney, Operations manager Carney Waste, December 4, 2013. 23 Personal communication, Drake Stephens, Coquitlam Urban Wildlife Coordinator, Environmental Services Division, City of Coquitlam

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Solid Waste Collection Options Moving Forward
In January 2015, collection of Printed Paper and Packaging (PPP) will become a function of MultiMaterial British Columbia and will not be the responsibility of the City. The current cost to provide this service is $110,000. It is unclear at this time what system will be used for recycling collection in Revelstoke. MMBC has indicated in a Request for Proposals that single use plastic bags, currently in place, will not be considered moving forward. The Citys garbage truck currently needs to be replaced. Due to the unclear implementation schedule for household organic waste diversion, the below options only consider garbage collection at this time. If in the future organic household waste is added as a second waste stream for collection, it may be possible utilizing an automated system to implement an additional work shift and to collect both streams using the same truck. Also, it may be possible to reduce garbage collection to biweekly, if the more odorous household organics waste is being collected weekly. The use of a split container truck is not being considered at this time due to lack of certainty of the need to collect a second waste stream. Garbage Collection Options Status Quo Manual garbage collection Option 1 Option 2 Option 3 Option 4 Automated system, bear clip bins Automated system, bear clip bins, standard bins Automated system, standard bins Contracted out

Evaluation of Options
To allow for a comparative evaluation of the above options, cost estimates were used for collection equipment and operation and maintenance. The estimates were used to prepare an 11 year cash flow analysis and determine the net present value for each options. Each option has also been evaluated using a triple bottom line approach. The following assumptions were used to develop the model: Population growth of 1% Cost of standard bin $80, bear clip retrofit $65 Tipping fee increase of 2% annually 1% increase annually for operation, maintenance and labour cost 2% increase annually in fuel costs 2% bin replacement annually 10% contingency Provision of one 120L bin per household Garbage generated/household remains constant 11
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Status quo - Manual garbage collection Currently the City collects garbage from approximately 3000 residential pickups. The cost to provide the service in 2013 was approximately $294,000 annually, or a cost of $71.85/household/year plus approximately $80,000 in tipping fees. Work Safe BC has indicated the City is not permitted to continue utilizing a single operator manual truck. For cost comparison analysis a 1.5 FTE collection crew is used in 2014 and 2 FTE in 2015 and beyond. Under this scenario, it is anticipated the cost for the garbage function will increase to approximately $336,000 in 2014 and $384,000 in 2015. Social Environmental Economic Risk of injury to operator Access of waste to wildlife Overall cost of service Ease for residents Impact of snow on collection Odour from garbage Option 1 Automated system, bear clip bins Collection could be either semi or fully automated and all households would receive a bear clip bin. Social Environmental Economic Risk of injury to operator Access of waste to wildlife Overall cost of service Ease for residents Impact of snow on collection Odour from garbage Option 2 Automated system, bear clip bins, standard bins In this scenario, residents in areas with difficulty securing garbage from wildlife or who request a bear clip bin would receive one. Social Environmental Economic Risk of injury to operator Access of waste to wildlife Overall cost of service Ease for residents Impact of snow on collection Odour from garbage Option 3- Automated system, standard bins All residents would receive a standard non bear resistant bin. Social Environmental Risk of injury to operator Access of waste to wildlife Ease for residents Impact of snow on collection Odour from garbage

Economic Overall cost of service

Option 4 Contracted out garbage collection It is difficult to determine the cost of contracting out garbage collection. Contracted out collection could include the provision for a cost to provide bear clip bins.

Financial Analysis of Options

A Net Present Value (NPV) comparison of Status Quo and the options presented can be seen in Figure 7. The NPV analysis indicates a cost saving utilizing an automated bin system compared with the current manual system. A cost savings may be realized by contracting out garbage collection compared with status quo manual collection. 12
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Figure 6: Net Present Value analysis comparing Status Quo garbage collection with a number of automated collection options

A comparison of projected cost of garbage collection for Status Quo and Options 1-3 can be seen in Figure 7

Figure 7: Projected total cost of garbage collection for status quo and options 1-3

Approximately 20% of the total cost of the garbage function is required to cover the cost of disposal or tipping fees. A reduction in garbage landfilled would reduce the cost of tipping fees and the overall cost of the garbage function. Following the same assumption in the financial model of a 1% increase in population and a 2% increase in tipping fees annually, an annual 10% reduction in garbage landfilled 13
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would have a large impact on the cost of tipping fees, as can be seen in Figure 8. Currently tipping fees are $70/tonne. The CH2MHill report utilized a $50/tonnes processing fee for household organic processing. Typically in regional districts which have a household organic waste diversion program the tipping fees for organic waste is less than that of garbage to encourage the diversion on organics.

Figure 8: Projected garbage tipping fees with an annual 10% reduction in garbage generation

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Appendix A Map of Areas with limited ability to secure garbage

Figure 7 - Green indicates areas where residents do not have the ability to storage garbage securely, Yellow indicates areas where some residents do not have the ability to store garbage securely, Provided by Revelstoke Bear Aware November 2013.

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