Provincial Waste Management - Consultation Summary Report  |

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Provincial Waste Management Municipalities Newfoundland and Labrador - Consultation Summary Report on the Provincial Waste Management Strategy

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Waste Management Task Force

Municipal Consultation Summary Report on the Provincial Waste Management Strategy

A Municipalities Newfoundland and Labrador Initiative

Consultations and research for this project was funded entirely by MNL.

Our people Our place Our potential

Table of contents Executive Summary. . . . . . . . . . . . . .

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Introduction . . . . . . . . . . . . . . . . .

2

Why Review the Strategy. . . . . . . . . . . .

3

Where we were . . . . . . . . . . . . . . . . . . .

3

Current Status - Nationally. . . . . . . . . . . . . . .

3

Who Manages Waste Management. . . . . . . . . . . .

5

Current Status - Provincially. . . . . . . . . . . . . .

6

The Consultation Process . . . . . . . . . . .

7

Task Force Members. . . . . . . . . . . . . . . . . .

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Provincial Waste Management Strategy Action Items. Action 1: Increase Waste Diversion . . . . . . . . . . . .

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Action 2: Regional Approach to Waste Management . . . . .

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Action 3: Modern Standards and Technology. . . . . . . .

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Action 4: Maximize Economic and Employment Opportunities.

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Action 5: Public Education. . . . . . . . . . . . . . .

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Other Issues Identified. . . . . . . . . . . . . . . . .

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Goals and Recommendations. . . . . . . . . .

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Appendices. . . . . . . . . . . . . . . . . Appendix A - MNL Task Force Terms of Reference. . . . . .

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Appendix B - Regional consultations and written submissions.

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Appendix C - Waste to Energy Research. . . . . . . . . .

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Resources . . . . . . . . . . . . . . . . . .

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Provincial Waste Management Municipalities Newfoundland and Labrador - Consultation Summary

Executive Summary During the 2010 Municipal Symposium in Gander, MNL members publicly expressed their concerns regarding the status of the Provincial Waste Management Strategy in this province. Overall, municipal leaders voiced three main concerns: the perceived lack of direction and leadership at the provincial and regional levels; the lack of communication with local leaders; and the limited efforts given to generating public awareness. It is with these three concerns in mind that MNL established the Waste Management Task Force. The focus of the Task Force is to: 1. Document the concerns of municipal leaders with the waste management strategy 2. Assess the status of the strategy’s implementation in all regions of the province 3. Consider alternative approaches and technologies to those set out in the current strategy 4. Delineate policy and propose changes that would allow municipalities to manage a viable and environmentally sustainable solid waste management system 5. Recommend a course of action to the MNL Board of Directors, that would then be presented to our members and to the provincial government. Mayor Churence Rogers, MNL Small Towns Director, is the Task Force Committee Chair. He facilitated the consultations and provided a jurisdictional scan of alternative approaches and technologies. This report documents the current status of the waste management strategy, summarizes the challenges facing municipalities, and proposes reasonable changes and viable alternatives to the current approach. Throughout an eight month period, the Task Force conducted eleven consultations with local leaders and received ten written submissions. This document reflects the consultations and research conducted into both the Newfoundland and Labrador waste management strategy and the strategies pursued by other provinces. The Task Force report focuses on the five main Action Items as outlined in the 2002 Provincial Waste Management Strategy (PWMS): Increase Waste Diversion, A Regional Approach to Waste Management, Modern Standards and Technologies, Maximize Economic and Employment Opportunities and Public Education MNL recommends that the provincial government implement transportation subsidies to minimize the financial impact on taxpayers and ensure cost equity throughout the system to support the advancement of the PWMS in Newfoundland and Labrador. A thorough review of the current model must also be conducted to ensure we have not eliminated renewable energy options. Waste to energy technologies could potentially manage a portion of municipal solid waste and create renewable energy. Our consultations also determined that waste management committees and authorities require a clear understanding of their responsibilities. The provincial government must ensure the Regional Services Board Act clarifies the roles of regional waste management committees/authorities and provide them with the necessary tools to carry out their mandate and assist them in developing both short term and long term work plans. Finally more investment is required into the provincial and regional communications program on the overall concept of the PWMS. Municipal leaders require regular updates of the goals and milestones reached in waste management throughout Newfoundland and Labrador. The manner in which the PWMS is being implemented has resulted in municipalities playing a secondary role in the entire process. Currently waste management is a municipal responsibility (see s. 176 of the Municipalities Act), however, waste management is being implemented by provincial government bureaucrats and largely appointed regional committees and authorities. There is a disconnect between those who conceptualize waste management and municipal councils who are elected with the legislated mandate to ensure waste is collected. It is this frail link that is causing much of the frustration local leaders are experiencing in Newfoundland and Labrador.

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|  Municipalities Newfoundland and Labrador

Introduction Newfoundland and Labrador is falling behind the rest of Canada in the pursuit of responsible waste management. In 2002, then Minister of the Environment, Kevin Alyward, stated that our practices of dealing with garbage were no longer acceptable and that the provincial government was embarking on a new modern approach to managing waste. With this stated objective, the Provincial Waste Management Strategy (PWMS) was released. The expectation was that the strategy would be fully realized throughout Newfoundland and Labrador by 2010. The target date set by the provincial government for the implementation of the PWMS has come and gone and the goals of the strategy are not yet realized. With the exception of the Central Newfoundland Waste Management Authority, Norpen and pockets of success on the Northeast Avalon, the PWMS remains mired in confusion, uncertainly and frustration. The goal of improving waste management in Newfoundland and Labrador will depend on a renewed strategic framework supported by the provincial government. This renewed framework should be guided by the principles of compliance, communication, economics and environmental sustainability. A Provincial Waste Management Strategy requires compliance from all parties involved. This means that from the moment the waste is created until it reaches its final destination, the overarching focus should be “how do I most effectively organize, dispose or process this waste?” It is only by maintaining this focus that we will achieve province wide modern waste management and reach our goal of diverting 50% of all waste materials from landfill sites. There needs to be continued and improved communication on all levels. Public education is critical. The creators of waste must realize the route their trash will take to reach its final destination, whether it is a regional engineered landfill site, recycling depot or an energy recovery system. There must also be significant changes to how regional waste management committees/authorities communicate with each other and the provincial government. Communication must be improved so that those who manage waste can learn from each other and work together to deliver their mandate. The cost of waste disposal will increase. Traditionally Newfoundland and Labrador has enjoyed low waste disposal fees simply because our old system of local dumps involved no waste diversion, little infrastructure, and was inexpensive to operate. This system was unsustainable and environmentally devastating. Transportation and handling costs will increase as we move our waste management system towards international standards that favour larger facilities with waste separation capabilities. The way in which we dispose of our waste impacts the environment. Simply put, the less waste we dispose, the less damage we cause to the environment. We all recognize that the old system of local unlined landfills that collect 100% of the municipal solid waste (MSW) is no longer acceptable. Waste diversion and disposal bans are necessary to eliminate hazardous waste from contaminating our environment. Performing these required steps will keep organic materials out of landfills which reduces greenhouse gas emissions and protects our surface and groundwater from contamination by leachate. The purpose of this Task Force is to review the PWMS, to gather information from our members, and to identify policies and plans that inhibit the implementation of the strategy province-wide. It is our estimation that the Task Force’s consultations gave local leaders the opportunity to voice their concerns, better understand the issues surrounding waste management, and to learn about the successes of their counterparts. Our intention is that this report will stress to the provincial government that more assistance is required for understanding the cost associated with disposal routes and the environmental impact of the strategy. Unfortunately, Waste management has now become a political issue. The provincial government needs to provide the political will necessary to engage all regions of the province and foster a modern waste management system that will benefit all municipalities.

Provincial Waste Management - Consultation Summary Report  |



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Why review the strategy Responsible waste management will improve the quality of life for our residents, provide greater protection to our environment and enhance the sustainability of our delicate forestry and aquaculture resources. It is essential that municipal and provincial governments work together to recover more of the materials and energy contained in waste. The 2002 PWMS embodies a belief at both the provincial and municipal level that we need to take responsibility for the management of our waste and improve waste management practices. For the last nine years we have been working towards that goal.

Where we were? Following public consultations in 2002, a comprehensive waste management strategy was developed. The intention of this strategy was to: 1. 2. 3. 4. 5. 6.

Divert 50% of the materials going to waste disposal by 2010 Reduce the number of waste disposal sites by 80% Eliminate open burning at disposal sites by 2005 Phase out the use of incinerators by 2008 Phase out unlined landfill sites by 2010 Implement province-wide modern waste management by 2010

The provincial government recognizes that the strategy must be implemented in a manner that successfully balances community and environmental health with economic realities.

Current Status - Nationally According to the 2008 “Waste Management Industry Survey: Business and Government Sectors”, Canadians sent approximately 26 million tonnes of waste to landfills or incinerators in 2008, about the same quantity as in 2006. This followed a 3% increase between 2004 and 2006. Other highlights of this survey included; •

Nationally, residential waste disposal fell by 4% from 2006 to 2008, while non-residential disposal rose by 2%.

•

The amount of waste diverted to recycling or organic processing facilities rose from 237 kilograms to 254 kilograms per person.

•

The total quantity of materials sent to recycling or organic processing facilities increased by approximately 10% to 8.5 million tonnes in 2008. The largest increase in diversion was for electronic materials, which rose 115%.

•

On average, each Canadian was responsible for 777 kilograms of waste in 2008. Newfoundland and Labrador, Quebec, Manitoba and Saskatchewan exceeded the national average per capita in 2008.

•

Waste from non-residential sources usually accounts for the majority of waste for disposal. In 2008 non-residential sources contributed 67% of the waste for disposal while 33% came from residential sources. Non-residential waste makes up 47% of all waste in Newfoundland and Labrador, the lowest proportion in the country.

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|  Municipalities Newfoundland and Labrador

Chart 1. Selected current local government expenditures related to waste management, 2008

Total current expenditures by local governments in Canada on waste management increased from $2.1 billion in 2006 to $2.6 billion in 2008. At a cost of $1.1 billion, collection and transportation continued to account for the majority of current expenditures in 2008, followed by operation of disposal facilities ($465 million) and tipping fees ($368 million). Current expenditures on the operation of recycling facilities fell approximately 34% between 2006 and 2008 to $113 million. Capital expenditures totalled $494 million in 2008, up by over 58% from 2006. To get a clearer picture of waste management at the provincial level, it is useful to look at the per capita expenditures on waste management activities as well as the per capita quantity of waste diverted from landfill. •

Newfoundland and Labrador spent the least per capita for collection and transportation. The national average was not provided.

•

Cost for the operation of recycling facilities was not reported for Newfoundland and Labrador. The national average is $3 per person.

•

Newfoundland and Labrador spent slightly below the national average of $14 per person for the operation of disposal facilities.

•

Newfoundland and Labrador also did not report any costs for the operation of organics processing facilities. The national average is $2 per person. 1

1. All of the above information taken from: Statistics Canada Waste Management Industry Survey: Business and Government Sectors – 2008, p. 9.

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Who Manages Waste Management? At the provincial level, the Waste Management Division of Municipal Affairs is responsible for the implementation of the Provincial Waste Management Strategy. This responsibility includes the administration and oversight of over $200 Million in capital funding to construct necessary waste management infrastructure. The Waste Management Division works closely with the departments of Environment and Conservation and Government Services as well as the Multi Materials Stewardship Board (MMSB) in the development of policy for the implementation of the Waste Management Strategy. These four government divisions and departments are responsible for ensuring that the strategy’s defined objectives and scheduled milestones are met. The Waste Management Division of Municipal Affairs is led by a director who chairs the Interdepartmental Provincial Technical Committee, which is comprised of officials from the above noted departments and agencies. The Provincial Technical Committee reports to the Provincial Steering Committee, which is comprised of executive members from these same four provincial government divisions and departments. The Provincial Steering Committee is chaired by the Assistant Deputy Minister of Municipal Engineering and Planning for the Department of Municipal Affairs.

Municipalities

u

Regional Waste Management Committee/ Authorities

u

ADM Engineering and Planning

u

Director Waste Management

u

Deputy Minister Municipal Affairs

u u

Interdepartmental

Provincial Technical Committee

u

Provincial Steering Committee

Minister Municipal Affairs

At the local level implementation of the PWMS is delegated to regional waste management committees/authorities of which nine currently exist in Newfoundland and Labrador. These committee/authorities are: 1. 2. 3. 4. 5. 6. 7. 8. 9.

Bonavista Peninsula Regional Waste Management Committee Burin Peninsula Waste Management Corp. Central NL Waste Management Coast of Bays Waste Management Authority Eastern Waste Management Green Bay Waste Authority Inc. Northern Peninsula Regional Service Board (Norpen) Southern Labrador Waste Management Committee Western Regional Waste Management Committee

From the above listed waste management committee/authorities, three - Central, Northern and Eastern - have been proclaimed as Regional Service Boards pursuant to the Regional Service Boards Act and are governed by that Act. The remaining committees operate with no legislative constraints or guidance. Most of the province is represented by a regional waste management committee/authority, however, certain areas, particularly Labrador, operate without a regional body. Compounding the frustrations of local leaders is the lack of explicit connections between the provincial steering committee, which has overall responsibility for implementing the PWMS province-wide, and the regional waste management committees/authorities. There is no representation from regional waste management committee/authorities on the provincial steering committee. The relationship between these two levels is also uncertain. Municipal leaders do not

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|  Municipalities Newfoundland and Labrador

know if the provincial steering committee takes recommendations from the regions or whether the Steering committee expects the regional committee/authorities to carry out its will. If this second observation is accurate, the PWMS will have represented the provincial government asserting complete control over waste management in the province. It is imperative that municipal leaders and the general public be given a clearer understanding of the roles and relationships of the Provincial Steering Committee and the regional waste management committees/authorities.

Current Status - Provincially Reduction of dump sites: 1. In 2002, the Waste Management Strategy identified 240 waste disposal sites in the province. • In 2011, there are 158 operating sites, representing a 34% reduction. • Once the landfill in the central region opens in the fall of 2011, all existing sites in that region will close. That will result in a 50% reduction in the number of disposal sites relative to 2002 levels. 2. In 2002, the PWMS identified approximately 50 incinerator sites throughout the province (these 50 are part of the 240 referenced above). • In 2011, eleven incinerators remain in operation. • By the end of 2011, it is anticipated that seven incinerators will remain in operation, primarily in communities that are isolated/remote. Work is ongoing to address these seven sites.

Waste Diversion 1. The first Material Recovery (recycling) Facility (MRF) opened in October 2010 at Robin Hood Bay. In its first four months of operation, the MRF has diverted 1917 tonnes of residential waste from the landfill. 2. Currently, towns using this MRF are in the metro-area and include Conception Bay South, Mount Pearl, Logy Bay/ Middle Cove/Outer Cove, Pouch Cove, Paradise, and St. John’s. • Starting in April 2011, communities in the Conception Bay center area and Conception-Trinity north area will begin using the MRF. Communities captured by the MRF will continue to expand to include the south-west Avalon in the latter part of 2011 and the southern shore in 2012. • All residents serviced by the MRF, regardless of location, will receive the same curb side recycling service. 3. The MRF has only been operating for four months and it is difficult to properly evaluate it’s impact. However, current participation rates are estimated at 65% or higher and residential diversion rates are estimated to be 15%.

Capital Investment 1. As of March 31, 2011, the province will have invested approximately $91 million into the PWMS. • Approximately 84% of this total represents capital investments into the regional sites at Robin Hood Bay and Norris Arm. • Approximately 16% has been used for studies, interim consolidations, site closeouts, and equipment in other regions.

Statistics above received from the Department of Municipal Affairs, Waste Management Division.

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The Consultation Process During MNL’s Small Towns Caucus meeting at the 2010 Municipal Symposium, municipal leaders discussed in detail the PWMS. Concerns were expressed about the perceived lack of direction and leadership at the regional and provincial levels, the lack of communication with local leaders and the limited efforts at generating public awareness. Municipal leaders also voiced concerns about the cost associated with implementing the strategy and the unbalanced implementation from region to region. At the direction of MNL President, Mayor Harry Hallett, a municipal Task Force was struck to investigate and explore the Provincial Waste Management Strategy. The Task Force’s mandate was to examine the current and future implications of the strategy on municipalities and to recommend ideas for and changes to the strategy for MNL to present to government on behalf of its members. The Task Force carried out its mandate using two simultaneous methods. First, MNL conducted extensive research into both the Newfoundland and Labrador strategy and the waste management strategies pursued by other provinces. Second, MNL conducted eleven regional consultations with both member municipalities and local service districts. MNL also worked in conjunction with the Avalon Regional Council of the Rural Secretariat. Ten written submissions from member municipalities were also received.

Task Force Members Members represent all regions and provide varied opinions on how solid waste can be managed in this province. These members are: 1. Mayor Churence Rogers, Committee Chair - Centreville Trinity Wareham 2. Mayor Harry Hallett, MNL President 3. Mayor Bob Hobbs - Bishop’s Falls 4. Councillor Allan Scott - Gander and Chair of the Central Waste Management Authority 5. Mayor Peter Fenwick - Cape St. George and Chair, of the Bay St. George Waste Management Committee 6. Mayor Woodrow French - Conception Bay South 7. Mayor Leo Abbass - Happy Valley - Goose Bay 8. Mayor Ern Simms - St. Anthony 9. Councillor Frank Galgay - St. John’s 10. Mayor Neville Greeley - Corner Brook 11. Darryl Johnson, Town Manager - Trinity Bay North and Chair of the Bonavista Peninsula Regional Waste Management Committee 12. Craig Pollett, Executive Director - MNL 13. Gail Woodfine, MNL Staff

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|  Municipalities Newfoundland and Labrador

Action Item 1: Increase Waste Diversion The provincial strategy on waste diversion is focused on disposal bans, diversion programs, enhanced green depots, researching new waste diversion programs and departmental plans.

Strategy Assessment: •

Programs such as recycling (curb side, construction and demolition, white metals and electronic), household hazardous waste collection and community composting are not available to all residents of the province.

•

Composting (both backyard and community) is considered difficult by residents and there is a common fear that it will cause rodent populations to rise in residential areas.

•

Population distribution makes collection expensive. It is questionable whether diverting waste will be financially beneficial to all municipalities due to the need for different equipment and collection contracts.

•

Municipalities are wondering if it is feasible for them to participate in waste diversion programs and there remains public confusion regarding acceptable recyclable material.

Solutions Identified During Consultations: •

Improve access to waste diversion programs and facilities to make the process more convenient for residents.

•

The provincial government should support efforts to start up waste diversion programs by funding municipal and regional programs. Government must ensure programs are consistent across the province.

•

Provincial regulations for a levy to be placed on the packaging of big ticket items (ie. Television, personal computers) and increase extended producer responsibilities and stewardship programs.

•

Create and distribute an information package to the public that explains the need to divert waste, how to divert waste, how to use waste management programs and the financial and environmental benefits of diverting waste.

•

A provincial waste diversion program must consider regional differences in this province and be flexible enough to adapt to these differences.

•

Promotion and education on backyard and community composting

•

Approach the agriculture sector for assistance with composting initiative.

Additional Comments: •

Small towns have questioned the benefit of sorting and recycling waste in low populated areas where reduced tonnage will result in no financial gain.

Provincial Waste Management - Consultation Summary Report  |



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Action Item 2: A Regional Approach to Waste Management The provincial strategy to regional waste management prioritized the establishment of regional waste management systems and final waste disposal sites; the hiring of regional coordinators; the development of programs and alternatives for waste management in isolated areas; and the investigation of funding options for modern waste management.

Strategy Assessment: •

Regional Waste Management Committees do not have the tools to properly assess options and to independently make decisions that would benefit the taxpayer in their region.

•

Appointed regional waste management committees appear to be less effective than regional bodies that consist of elected members of the communities they serve.

•

Delays in the release of studies by government and engineering firms have crippled the progress of waste management in this province.

•

There is a significant implementation gap between the Central and Eastern regions and the rest of the defined regions within the province, which is causing frustration.

•

Regional waste management committees/authorities are at an impasse without a clearly defined commitment to transportation subsidies from government

•

Municipal taxpayers are currently expected to assume most of the cost associated with operating waste management.

Solutions Identified During Consultations: •

In the interest of accountability, regional waste management committees/authorities must have firm deadlines for responding to reports and engineering studies.

•

Government must show leadership and work with all regional waste management committees/authorities to implement policies and to clearly set identifiable and reasonable deadlines and benchmarks for municipalities to work toward.

•

Government should fund an annual Provincial Waste Management Symposium to allow all Regional Waste Management Committee members the opportunity to work together and learn from each other and experts in the field.

•

Regional Waste Management Committees and temporary landfill sites should receive funding to operate and expand current infrastructure given the significant delays which have greatly impacted the implementation of province-wide strategy.

•

Legislation that establishes a legal framework for Regional waste management committees/authorities to operate effectively must be improved upon.

•

Government must focus on sub-regions facing crisis and provide them with immediate financial assistance to allow them to continue operating.

•

Government to fund the capital cost associated with curb side collection to encourage municipalities to participate in regional curb side collection.

10 |  Municipalities Newfoundland and Labrador

Action Item 2: A Regional Approach to Waste Management continued

Western Regional Issues •

The Province needs to immediately fund a comprehensive study on western waste management so that a definitive decision can be made regarding the location (if any) of western waste disposal site.

•

All committee member appointments and approvals must be done within 60 days of vacancy.

•

Western has proposed seven transfer sites. Government has yet to declare any transfer sites for the western region.

•

Political will for the advancement of waste management in the western regional is lacking. Many factors - lack of leadership and direction at the regional committee level, lack of prioritization - have inhibited the process, which has taken a collective toll on many local leaders.

•

Duplication of work and bureaucratic red tape has delayed progress in the western region by years.

•

Geography, climate and population density were not taken into account when defining the western region. St. Anthony to Rose Blanche is a vast area with unpredictable weather, poor road conditions and a UNESCO World Heritage Site, Gros Morne National Park, all of which creates significant issues that make trucking garbage very challenging.

•

The Bay St. George area is currently designated as a sub-region, but it has not yet been declared by government if it will become a transfer site. Operators at this landfill site are encountering problems because there is no waste diversion programs in place and, therefore, 100% of waste is entering the landfill. This landfill is too small for its proposed purpose. It is government policy that funds are not provided to assist sub-regions with recycling or composting facilities until the regional committee has made its decision regarding the final destination of western waste. Bay St. George landfill site will soon be in crisis if funds are not provided for waste diversion programs and/ or expansion of current infrastructure.

•

The Deer Lake landfill site has also been designated by government as a temporary facility. This site has a life expectancy of another 5 years. However, without proper waste diversion programs this landfill site will be in crisis before the waste management strategy is implemented on the west coast.

•

Green Bay Waste Management Authority fees will increase 5% for the next 5 years, and it anticipates the municipalities it serves will not be able to afford the extra costs.

Eastern Regional Issues •

Municipalities outside the St. John’s metro area but inside the Eastern Waste Management zone feel that their issues are being ignored and that they will be forced to incur extra cost and stress by what they perceive as a confusing and ill-prepared waste management plan.

•

Sunnyside has a well managed landfill site that generates revenue for the municipality. However, its permit to operate requires renewal every 6 months which impedes long term planning for managing waste and generating revenue.

Bonavista •

The 2009 Bonavista Peninsula Waste Management Study, determined that the immediate closure of the three operating tepee incinerators (Trinity Bay North, King’s Cove and Bonavista), in accordance with the time line as set forth by the Government of Newfoundland and Labrador, would require increased landfilling of waste in the near term. The incinerators are now closed and waste on the Bonavista peninsula is currently being diverted to

Provincial Waste Management - Consultation Summary Report  | 11



Action Item 2: A Regional Approach to Waste Management continued

the ten operational landfill sites. To implement the PWMS in the Bonavista region a temporary regional site should be established on the peninsula. However, it is anticipated that such a site will require significant funding and upgrades. •

There is no agreement in place between the provincial government and municipalities on subsidies to offset travel costs for collection areas that are over 100km from a transfer station. Without these subsidies, collection costs for the largest municipalities, Trinity Bay North and Bonavista, will increase, which will result in the majority of the peninsula’s population and businesses paying significantly more for waste management than the residents of the communities that are located further west on the Bonavista Peninsula.

•

Municipalities have been steadfast in their attempts to keep communication open with the regional committees/ authorities and the provincial government. However, the propensity of the provincial government to commission additional consultant studies on waste management has caused delays and uncertainty with regards to the expected timelines for implementing the PWMS.

•

With the recent resignation of the Chairs of both the Eastern and Western Waste Management committees it is anticipated that the implementation of the PWMS will be further delayed. Many communities within the region are currently operating with no collection contracts in place as they anticipate the creation of a consolidated collection system. Concerns are being raised around the sustainability of continuing to operate in this manner.

Northern

• • •

Cost of shipping waste to western or central will greatly increase the cost of waste management for northern communities. Concern was raised over the cost of replacing failing equipment that will be further taxed by having to transport waste long distances. Transfer sites in the Northern region are working well and residents are happy with the results.

Labrador Regional Issues • • • • • •

The geography and distances of Labrador are not being considered by government. Municipal leaders in Labrador question whether the waste management model proposed in 2002 is practical for their region. One committee will not effectively service the whole of Labrador. Labrador requires smaller committees to effectively cover the area. The complexity of Labrador’s coastal regions has not been considered by government. Labrador landfill sites suffer from insufficient staff and from a lack of occupational health and safety training for employees working on landfill sites. Hazardous waste ends up in the landfill 90% of the time. Communities cannot move forward without technical and monetary assistance and training. They need to understand the technology of waste management.

Lab West •

The Lab West landfill site is deemed temporary, which limits the available funding for the site. Currently this landfills site is in crisis.

• • •

This site does not have running water or electricity. The landfill is not qualified to handle the volume of waste it receives. The landfill site has no litter fence and waste is blowing away.

12 |  Municipalities Newfoundland and Labrador

Action Item 2: A Regional Approach to Waste Management continued

Happy Valley - Goose Bay (HVGB) • •

Happy Valley-Goose Bay is currently acting as an informal regional landfill site for its area. Muskrat Falls is planning to utilize the HVGB landfill site which will significantly diminish the lifespan of the site

South East Coast • • •

Government has continually reassessed its waste management plans for this region. Still awaiting approval from government for a regional waste management coordinator Confusion regarding the governments decision to commission more studies. All scenarios should have been considered in the first study. This duplication of work has delayed progress by years.

North Coast • • • •

Rigolet currently buries and burns (open burning) its garbage. Due to high winds much of the garbage blows into the ocean. Communities on the North Coast are allowed to burn during the months of November to April, due to the fact that they cannot bury garbage in winter because of lack of loose soil for cover. Nain is currently running out of space in it’s landfill site and will soon be in crisis. Regional waste is not practical for members on the north coast without a properly installed and maintained road connecting the communities.

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Action Item 3: Modern Standards and Technology The provincial strategy on modern standards and technology is to finalize waste disposal standards and regulations, research new disposal technologies and develop standards for closing landfill sites.

Strategy Assessment: •

Further investigation into waste to energy technologies is required to ascertain whether it can effectively manage a portion of our municipal solid waste. Such an investigation should assess the appropriateness of the province’s model of trucking garbage without incineration.

•

Municipalities are frustrated with the governments plan to close local landfill sites without a new regional facility being completed and online.

•

Newfoundland and Labrador has a large rural area with sparse population. For this reason, government must recognize that it would not be practical or economically feasible for each region to operate without public accessibility to transfer sites.

Solutions Identified During Consultations: •

Implement provincial disposal bans on compostable organic material. Keeping organic materials out of landfills reduces greenhouse gas emissions resulting from methane gas and protects our surface and groundwater from contamination by leachate.

•

Construction of approved transfer sites should not be delayed due to the difficult and lengthy process involved with government approving crown land.

•

The government, through the MMSB, must provide training to inform municipal staff on the technical use and maintenance of landfill sites.

•

Implementation of proper infrastructure (transfer sites) must be completed before active landfill sites are permanently closed.

Regional Comments: •

The municipality of Fogo Island is currently working with the Central NL Waste Management Authority on a waste management plan for the island. Fogo Island received assistance from the Provincial Government to hire a contractor to provide loose ground cover, which allows for the covering of the landfill. Fogo Island’s permit to openly burn garbage has expired. A transfer station has been built on the island to accept waste, however, it is still struggling with ferry issues to transport the garbage from the transfer site to the Norris Arm engineered landfill site.

14 |  Municipalities Newfoundland and Labrador

Action Item 4: Maximize Economic and Employment Opportunities Government will work to maximize the economic and employment benefits of waste management with a focus on stimulating regional benefits.

Strategy Assessment: •

The connection between waste reduction and economic activity in this province remains unclear.

•

Municipal leaders have not focused on the economic benefits as their immediate concern is the perceived tax increases.

Solutions Identified During Consultations: •

Develop a business case that will attract recycling businesses to the province.

•

Consider ways to recover energy from waste while also alleviating stress on regional landfill sites.

•

Non-domestic waste streams should be processed here rather than shipped out of province.

Regional Comments: •

There were no regional comments on this action as waste management in this province is not sufficiently advanced to consider meaningful economic and employment opportunities.

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Action Item 5: Public Education The provincial strategy for public education focuses on the MMSB developing a provincial public education campaign. In addition, MMSB, in conjunction with the regional coordinators, is expected to develop regional public education campaigns.

Strategy Assessment: •

In many regions the current communication efforts are ineffective in getting the general public and local leaders to “buy in.”

•

There is a continued need to change attitudes and behaviours with respect to waste diversion, disposal, and reduction.

•

Many municipalities are unaware of the financial and environmental benefits of diverting waste.

•

Many municipalities are unaware of possible ways to locally divert their waste.

•

Many municipalities want greater access to information.

•

Many municipalities perceive a lack of communication with their Regional waste management committees/ authorities, MMSB and Provincial Government. • Many residents think that the strategy is an option and not mandatory. • Local leaders are unaware of their point of contact for regional waste management in their area. The Central Waste Management Authority and Norpen are the exceptions. • There is confusion regarding who informs municipalities of their responsibilities around the strategy.

Solutions Identified During Consultations: •

Review and assess the current communication mechanisms used to inform the public on the PWMS. Identified communication gaps should be addressed and alternative communication methods should be considered.

•

Communication strategies should help municipalities identify how waste management can save money.

•

Communication strategies should convey a common message to all municipalities.

•

MMSB, Regional waste management committees/authorities and the Provincial Government should assist municipalities to identify ways to locally divert waste.

•

Public education sessions on the specifics of recycling, composting and the PWMS will help municipal councils explain waste management to their residents.

•

Local leaders need solid proof and reassurance that waste management is moving ahead in a positive and productive way.

•

The public needs to be more aware of the goals and milestones reached by the waste management strategy.

•

Printed information and presentations on the PWMS need to be developed and distributed to the municipalities and the general public.

•

More investment in education (for children and adults) on composting and recycling.

•

Increase public awareness on the proper disposal of household hazardous waste.

16 |  Municipalities Newfoundland and Labrador

Action Item 5: Public Education continued Regional Comments: Eastern •

Municipal leaders think that the Eastern Waste Management Committee has been late sending out cost breakdown and invoices and this has forced municipalities to scramble to find the extra funds in their budgets.

•

Many municipalities outside the St. John’s metro area are unaware of what materials are covered by curb side recycling collection.

•

The Eastern Waste Management Committee has not collaborated with municipalities outside the St. John’s metro area. Municipal leaders outside of the metro area feel they have not been involved in the decision making process for regional waste management.

•

Municipal leaders from outside the metro area are demoralized and feel animosity toward the Eastern Waste Management Committee due to a lack of communication. These same local leaders are fearful of the impact the Eastern Waste Management plan will have on the quality of life of their residents.

Labrador •

MMSB must start communicating and implementing programs in Labrador. As well the MMSB should have a representative from Labrador on its Board of Directors.

Provincial Waste Management - Consultation Summary Report  | 17



Other Issues Identified by Task Force At the end of each consultation, we asked participants to identify key issues they believed should be priorities for municipalities, waste management committees/authorities and the provincial government.

Indiscriminate Dumping •

Since the closure of localized dump sites, there has been an increase in illegal dumping.

•

There is a concern that if Municipalities have to enforce bag limits at the curb, illegal dumping will increase.

•

The closure of local dumps before transfer sites are constructed and active has exacerbated the illegal dumping problem.

•

There must be more resources to increase enforcement and awareness of illegal dumping.

•

The Provincial Government must be responsible for clean up of crown lands that have been used for illegal dumping.

•

Lakes and ground water are being affected by cabin owners who are dumping antifreeze in their temporary flush systems which are then dumped into local ponds and lakes.

•

White metal drop off sites must be placed in convenient locations.

•

MMSB should actively promote a campaign against indiscriminate dumping.

•

Legislation should be changed to permit greater fines for those convicted of illegal dumping.

•

Newfoundland and Labrador should follow the lead of Nova Scotia, which conquered its illegal dumping problem through education and the regular clearing of illegal dumping grounds.

Cost •

Local leaders recognize that a realistic waste management plan must balance the cost to taxpayers against the cost to environment.

•

There is concern that the increased cost to municipalities will not lead to improved service for municipalities.

•

Cost of curb side collection in a two stream system is expensive.

•

Uncertainty towards whether municipalities will have to enforce a bag limit at the curb to reduce costs.

•

Regional tendering for curb side collection will not work when the largest community in the region or the closest community to the local landfill site are not participants.

•

There is concern over the potential non-compliance of residents to pay increased waste management fees.

•

The transfer subsidy remains an outstanding issue. Municipalities are not able to make definite plans about moving ahead toward regional landfills when the provincial government remains vague about the size of transfer subsidy they are offering.

•

The cost of regional waste management will impact small and rural remote towns more than urban centers.

•

The cost per household will significantly increase for some municipalities, while for others it will drop or remain the same.

18 |  Municipalities Newfoundland and Labrador

Other Issues Identified by Task Force (continued)

•

The province must create a more comprehensive and accurate budget that fully sets out the cost of implementing the PWMS. This budget should set out the precise costs for the strategy for the next three years and also should be provided to municipalities. Municipalities should then be provided with yearly budget updates from the regional waste management bodies they fall under.

•

Waste diversion activities should reduce cost. (Composting in their own communities)

•

Municipal councils and residents should be informed of cost saving measures.

•

Government must unequivocally state and explain to municipalities the final details of the transfer subsidy that is being offered.

•

The highest priority of the waste management plan should be the implementation of a system that sets an equal cost for all residents. Tipping fees, government subsidies and other cost balancing techniques should be adopted so that all households in the province pay the same per tonne of waste.

Municipal Stress •

Government has put a great financial burden on municipalities to make the PWMS work. This burden has not been coupled with the necessary government support to ensure that municipalities succeed.

•

Local leaders are confused about the progress and plan of PWMS and therefore have a difficult time explaining the strategy to their residents. Municipal leaders require the government provide them with a fact sheet or standard set of speaking notes that can be used by councils to explain the PWMS to residents. This fact sheet should be regularly updated and account for regional differences.

•

Uncertainty remains over the possible relationship between unlined dump sites that leak leachate into the environment and the poor levels of drinking water that exist in the province.

•

In the western region, the lack of direction and help from government has caused tension between municipalities. This tension has taken an emotional toll on the councils tasked to implement the PWMS.

Provincial Waste Management - Consultation Summary Report  | 19



Goals and Recommendations Prioritizing our goals Municipalities Newfoundland and Labrador is recommending the following twelve priorities receive immediate attention to support advancement of the Provincial Solid Waste Management Strategy in Newfoundland and Labrador.

Goals and Recommendations: 1. Goal: All municipalities served by the same regional system paying the same per tonne of waste. Recommendation: Government must use all available tools to minimize the financial impact to municipalities due to transporting waste. 2. Goal: Transportation costs of moving waste must be clearly defined. Recommendation: The provincial government must cover all transportation costs from transfer sites to regional landfills. 3. Goal: Municipal Affairs must develop a detailed multi-year plan and budget to achieve the objectives of the PWMS. This budget should be provided to municipalities. Recommendation: Province must develop and publish a multi-year capital investment plan. 4. Goal: Provincial Government must recognize the potential of waste to energy technologies to manage a portion of the residual Municipal Solid Waste stream in Newfoundland and Labrador. Recommendation: Provincial Government to support research and development of disposal technologies by providing funds such as the MMSB Harris Centre Research Fund. 5. Goal: A thorough review of the 2002 PWMS that takes into account the province’s geography, population, recycling & composting programs. Recommendation: The Provincial Government must conduct an immediate review of the PWMS and invest in a core communications program to better inform municipalities of progress with the implementation of the PWMS. 6. Goal: Authorities and committees should be comprised of elected municipal officials who are elected to the said committees/authorities and they should operate within the legislated authority of their role. Recommendation: The Provincial Government must work with the regional service authorities/committees and legislate the necessary changes to clarify their roles and responsibilities and provide them with the necessary resources to carry out their mandate. 7. Goal: Waste management authorities/committees operate under the guidelines of a clear work plan. Recommendation: All waste management authorities/committees must immediately begin the process of developing both short term and long term work plans. 8. Goal: Minimize and mitigate illegal and indiscriminate dumping. Recommendation: Province must fund enforcement and prevention initiatives at the regional level and enhance the legal tools available for punishing offenders.

20 |  Municipalities Newfoundland and Labrador

Goals and Recommendations (continued)

9. Goal: Equitable and efficient curb side collection throughout the province. Recommendation: Province to provide capital funding to regional service boards to allow regional curb side collection as a feasible alternative for all municipalities. 10. Goal: Waste management authorities that have the ability to study non-domestic waste streams to determine if it would be viable for the authorities to deal with this form of waste at their sites. Recommendation: The province should fund the necessary studies to determine if waste sites could be equipped to handle non-domestic waste. If deemed a viable option, waste management authorities should be given the option and tools to handle this waste at their sites. 11. Goal: All areas of Newfoundland and Labrador should operate under a regional waste management body by the end of 2011. Recommendation: The province must work with municipalities in areas currently operating without a regional body and immediately initiate the process of establishing the structure of regional waste management in those areas. 12. Goal: One regional waste management body is not sufficient to meet the needs of Labrador. The Provincial Government must recognize the vast geographic area and related waste management challenges of the Labrador portion of the province. Recommendation: Currently Labrador has four functioning regions; south coast, north coast, central and western. As such, Labrador should have four waste management authorities/committees.

Provincial Waste Management - Consultation Summary Report  | 21



Appendix A - MNL Task Force Terms of Reference    

MNL Waste Management Task Force Terms of Reference

Rationale MNL  supports  the  vision  and  objectives  of  the  provincial  solid  waste  management  strategy.    The   existing  system  of  local  dumps  is  unsustainable,  particularly  given  the  new  more  stringent   environmental  regulations  adopted  by  the  provincial  Department  of  Environment  and   Conservation.    Few,  if  any,  municipalities  would  be  capable  of  meeting  these  new  requirements  on   their  own.     However,  there  are  continuing  problems  with  communications  related  to  the  roll-­‐out  of  the   strategy,  concerns  are  being  raised  as  to  the  escalating  cost  of  the  strategy,  and  increasing   concerns  are  being  raised  as  to  the  limited  solid  waste  management  alternatives  being  considered   for  us  in  the  strategy.     Municipalities  are  the  central  stakeholder  in  this  strategy  and  they  must  feel  the  strategy   responds  to  their  needs  and  recognizes  their  capacity.     Mandate The  MNL  Solid  Waste  Management  Task  Force  will:   1. Document  municipal  leaders’  concerns  with  the  strategy;   2. Assess  and  document  the  status  of  the  strategy  implementation  in  all  regions  of  the   province;   3. Consider  alternative  approaches  and  technologies  to  those  in  the  current  strategy;   4. Delineate  policy  and  implementation  changes  that  would  allow  municipalities  to  manage  a   viable  and  environmentally  sustainable  solid  waste  management  system;  and,   5. Recommend  a  course  of  action  to  the  MNL  Board  of  Directors.     Proposed W ork Plan The  Task  Force  shall  develop  a  work  plan  that  will  include:   • Consultations  with  member  municipalities   • Consultations  with  waste  management  committees,  authorities  and  representatives  of  the   provincial  government   • Jurisdictional  scan  of  alternative  approaches  and  technologies   • Preparation  of  document  outlining  status  of  the  strategy,  challenges  facing  municipalities,   and  alternatives  for  a  viable  system.     In  particular,  the  Task  Force  will  develop  a  presentation  for  the  2010  MNL  Convention  designed   to  inform  members  of  the  work  being  done  and  to  get  their  input  on  the  challenges  of  the  solid   waste  management  strategy.     The  Task  force  will  provide  the  Board  of  Directors  with  regular  updates  as  to  their  progress,   which  will  be  used  to  inform  the  membership  and  maintain  their  commitment  to  the  project.     The  Task  Force  will  deliver  an  interim  report  to  the  Board  of  Directors  before  the  end  of   September  2010  outlining  any  information  gathered  to  that  point,  any  preliminary   recommendations  and  the  work  plan  for  the  completion  of  the  final  report.    The  final  report  will   be  due  by  the  end  of  January  2011.  

22 |  Municipalities Newfoundland and Labrador

Appendix B - Regional Consultations and Written Submissions

Regional Consultations held: 1. August 13, 2010 - Port au Choix 2. August 28, 2010 - Clarenville 3. September 18, 2010 - Lewisporte 4. November 15, 2010 - Ferryland 5. November 16, 2010 - Carbonear 6. November 25, 2010 - Topsail 7. February 4, 2011 - Port aux Basques 8. February 5, 2011 - Stephenville 9. February 6, 2011 - Deer Lake 10. February 24, 2011 - Happy Valley-Goose Bay 11. March 16, 2011 - Milltown

Written Submissions received from: 1. Town of Gambo 2. Central Newfoundland Waste Management Authority 3. Town of Sunnyside 4. Bay St. George Waste Management Committee 5. Southern Labrador Waste Management Committee 6. Town of Happy Valley - Goose Bay 7. City of Corner Brook 8. Town of Bishop’s Falls 9. Bonavista Peninsula Regional Waste Management 10. Waste Management Division, Department of Municipal Affairs



Provincial Waste Management - Consultation Summary Report  | 23

Appendix C - Waste to Energy Research Research conducted and submitted by Rhea Hutchings, Sustainability Officer - City of Corner Brook

INTRODUCTION The 2002 Provincial Waste Management Strategy promises to divert 50 percent of the materials currently going to disposal, to reduce the number of waste disposal sites by 80 percent, to eliminate open burning at disposal sites and phase out the use of incinerators, to phase out use of unlined landfill sites and to implement full province-wide modern waste management. The strategy focuses on five actions including increasing waste diversion, establishing waste management regions, developing modern standards and technology, maximizing the economic and employment opportunities, and public education. Stated in the Provincial Strategy, solutions to the Province’s waste management problems can be readily identified based on modern environmental and engineering approaches and on the experience in other jurisdictions. It also states under the research of new disposal technologies that Government will encourage and support the research, development and use of new disposal technologies. This document summarizes some of the practices in other jurisdictions across Canada that utilize waste to energy (WTE) technology that have thus far not been included as part of the overall research to identify waste management solutions in Newfoundland. As demonstrated from the Municipal Consultation process by Municipalities Newfoundland and Labrador Waste Management task force, there has been an interest and attention surrounding the potential for WTE technologies to manage a portion of the residual Municipal Solid Waste (MSW) stream in Newfoundland. This reflects a growing interest from municipalities across Canada. As a result of this increased interest, Environment Canada released a report in 2006 that compiled the most current information on MSW thermal treatment in Canada. This report provides an overview of all MSW thermal treatment facilities currently operating in Canada with a capacity in excess of 25 tons per day (tpd). Results from this report are discussed in this document.

Benefits of WTE WTE technologies hold the potential to create renewable energy from waste matter, including MSW. Besides recovery of substantial energy, these technologies can lead to a substantial reduction in the overall waste quantities requiring final disposal, which can be better managed for safe disposal in a controlled manner. Modern WTE systems offer significant opportunities for greenhouse gas emission reductions; the local fossil fuel dependence is reduced; energy is produced domestically benefiting the local community and economy; there are potentially benign effects with regard to the environment; better waste control; and more space availability in landfills. Municipal Waste to Energy Plants are also strictly monitored. These power plants must go through very strict emissions testing, and every aspect of the process is monitored closely.

WTE Technologies The four most prevalent WTE technologies used to treat MSW are conventional combustion, gasification, plasma gasification, and pyrolysis. Conventional combustion and gasification are the most commonly used methods of converting waste into energy. Mass burn incineration (conventional combustion) is the most well-established thermal treatment technology.

Emissions WTE facilities convert municipal solid waste into gaseous, liquid and solid conversion products with a release of heat energy which is captured. Air emissions released are of most concern. These emissions generally arise from the compounds present in the waste stream, and are formed as a normal part of the combustion process. Modern WTE facilities are capable of achieving substantial emission reductions through the use of Air Pollution Control (APC) systems that are used to cool flue gases, scrub acidic gases and capture particulate matter and various contaminants such as NOX, mercury, dioxins and furans, heavy metals, particulate matter, etc. Significant improvements have been made in APC systems of WTE incinerators over the past few decades and advancements continue to be made to the types of APC systems used for MSW.

24 |  Municipalities Newfoundland and Labrador

WASTE TO ENERGY FACILITIES ACROSS CANADA There are currently seven municipal solid waste (MSW) thermal treatment facilities operating in Canada that have a capacity greater than 25 tpd (MSW Thermal Treatment in Canada, 2006). There is one (1) facility in PEI, British Columbia, Alberta, and Ontario, and Quebec has three (3) facilities. All facilities are publicly owned, with the exception of the Ontario and PEI facilities, which are both privately owned. The facilities are all privately operated, with the exception of two (2) facilities in Quebec. These facilities process primarily residential MSW, on average 66%, combined with commercial MSW, which accounts for 30%. The Greater Vancouver Regional District (GVRD) WTE facility in B.C. processes screenings from its wastewater treatment plant, but these account for less than 1% of its waste feed. The Wainwright Regional WTE facility in Alberta is the only facility to process medical waste. In 2006, 72% of its feedstock was medical waste. (MSW Thermal Treatment in Canada, 2006). The bottom ash from the four facilities is disposed of at non-hazardous landfills and in many cases reused. For example, approximately 90% of the bottom ash from the GVRD WTE facility is used as landfill cover. The remaining 10% is used for road-base construction at GVRD’s landfill site or on other GVRD properties. The bottom ash from the Algonquin Power Peel EFW Facility in Ontario is used as landfill cover (74%), as an aggregate substitute (2%) and the remaining 24% of the bottom ash is disposed of in a landfill. Fly ash is generally stabilized and/or sent to secure landfills. (MSW Thermal Treatment in Canada, 2006). According to Environment Canada, all of the thermal treatment facilities are equipped with air pollution control systems. Five of the facilities have energy recovery systems; four of the facilities recover steam as their primary product while the other generates electricity. The GVRD WTE facility and the Quebec City facility generate steam, which they sell to neighboring paper mills. The GVRD WTE facility also produces electricity, which it sells to BC Hydro. The steam that is generated from the PEI System is used in Charlottetown’s district heating system. The steam that the Wainwright facility in Alberta generates is sold to a neighboring oil seed processing facility. The Brampton facility generates electricity, which is fed into the electricity grid and sold to Ontario Power Generation. In 2006, the largest four facilities generated approximately 5,229,000 GJ of energy and sold more than 2,644,000 GJ in the form of steam, electricity and hot water. (MSW Thermal Treatment in Canada, 2006).

1. Metro Vancouver, British Columbia Since opening in 1988, Metro Vancouver’s Waste-to-Energy Facility (WTEF) has played an essential role in the region’s solid waste management system. Owned by Metro Vancouver, the facility is operated and maintained by Covanta Burnaby Renewable Energy Inc. The facility ensures that garbage is managed in an environmentally safe manner, and generates renewable and valuable energy sources: steam and electricity. The WTEF is located in the commercial/industrial area of south Burnaby. It receives waste from Burnaby, New Westminster, and the North Shore and is responsible for the environmentally safe disposal of over 20 per cent of the region’s waste. Each year the WTEF turns 80,000 tons of garbage into steam and electricity. The steam is sold to a paper recycling facility, while the electricity sold to BC Hydro is enough to power 12,300 homes.

Environmental Effects/Controls Strict environmental monitoring confirms that the WTEF is one of the cleanest facilities of its kind. The Solid Waste Association of North America (SWANA) recognizes it as one of the best facilities on the continent with strict standards for environmental protection including the following: ISO 14001 - The WTEF is International Standard Organization (ISO) 14001 certified. This is an international environmental management protocol to ensure regulatory compliance, ongoing monitoring and continual improvements. Dioxins and Furans - Canada has the most stringent standard for dioxins and furans in the world. The WTEF’s emissions are significantly below this level; so low that Environment Canada considers them unquantifiable by modern laboratory techniques. Mercury control - The WTEF has a carbon injection system designed to reduce mercury emissions. Mercury emissions at the plant are one-tenth of the Canada Wide Emissions Standard.

Provincial Waste Management - Consultation Summary Report  | 25



NOx control - An ammonia injection system reduces nitrogen oxide (NOx) emissions with zero liquid discharge. The WTEF has no discharges (excluding washrooms) to the sewer system. This means reduced impacts to the environment by minimizing water use and lowering demand on the sewer system. Air emission control - Strict control over combustion conditions, such as temperature and air flow, minimizes the amount of emissions. Environmental protection technology is then used to treat air emissions. These emissions are continuously monitored and regulated under provincial legislation. Monthly reports are submitted to the Provincial Ministry of Environment, the City of Burnaby and the Fraser Health Authority. Independent stack tests are performed on each processing line three times a year to test for acid gases, total hydrocarbons, metals and particulate matter. The Lower Fraser Valley Air Quality Monitoring Network continuously monitors the ambient air environment at 30 sites throughout the Lower Mainland. No measurable impact has ever been found from the WTEF. For more information about the Waste-to-Energy Facility contact the Metro Vancouver Information Centre at: Phone: 604-432-6200 • Fax: 604-451-6180 • E-mail: [email protected] Website: www.metrovancouver.org/services/solidwaste

2. Charlottetown, PEI The Province of Prince Edward Island has long sought alternative local fuel supply options; similar to Newfoundland, most of the

province’s oil and electricity must be imported. The search for local fuel sources and a proactive solution to the treatment of municipal waste led to the establishment of Canada’s first biomass-fuelled hot water district heating system. Operating since the 1980s, the system has expanded to serve over 100 customers in the downtown core of Charlottetown and contributed to the establishment of a local waste-wood fuel-supply market. With valuable agricultural and revenue-producing land being consumed for landfill, minimizing waste was an important priority. In addition, limiting use of imported fuel sources was also important for ensuring long-term energy price stability. Charlottetown is an excellent example of how provincial energy concerns and municipal waste management issues can be addressed by district energy systems. Between 1981 and 1989, three small district heating plants were constructed in the city by a crown corporation, the PEI Energy Corporation. The first plant was established for the Queen Elizabeth Hospital and used municipal solid waste to produce steam. The other two systems used wood waste from local sources to produce hot water and steam for provincial buildings, as well as the University of Prince Edward Island. In 1995, Trigen Energy Canada Inc. purchased the district energy system from the Province. All three systems were connected to one large district energy system and the production was consolidated at one central district energy plant in the core of Charlottetown. Environmental/Economic Benefits The Charlottetown district energy system burns approximately 66,000 tons of waste materials, including municipal waste and wood waste. Levels of carbon dioxide, sulphur dioxide and nitrogen emissions have been reduced relative to fossil fuel operating systems. Consumption of heating oils by individual building boiler systems was significantly reduced and now serves as a secondary fuel source for back-up. There is improved air quality with the removal of uncontrolled stack emissions from multiple boiler plants in individual buildings and replacement with a single well-managed plant. For more info, contact David Godken, Principal Manager Tel: (902) 629-3960 • Email: [email protected]

3. Region of Peel, Brampton, Ontario The Algonquin Power Energy from Waste (EFW) Facility has been open since 1992. Algonquin Power Systems Inc. operates the EFW facility in Brampton. There are 174,000 tonnes of solid waste being processed each year; 500 tonnes of Municipal Solid Waste per day. The remainder of the waste processed at the facility is international airport waste and industrial, commercial and institutional (IC&I) waste. The facility produces a maximum of 15 MW of electrical energy.

26 |  Municipalities Newfoundland and Labrador

The facility is designed to incinerate non-recyclable materials, including municipal solid waste to produce steam. Steam is used to drive a turbine generator to produce electricity. Five integrated operating systems are in place at this state-of-the-art facility including: • Incinerators • Heat recovery boilers • One turbine generator and condenser • Air pollution control systems • Continuous emission monitoring system

Environmental Controls Stack emissions are continuously monitored and results are submitted to the Ministry of Environment (MOE) on a monthly basis. The Region of Peel also contracts an independent consultant to conduct stack testing on the facility. Emission results are discussed at Public Liaison Committee meetings held by the Region of Peel approximately every two months. The Liaison Committee also acts as a public forum, where public concerns are addressed.

Facility Operations There are three sections of the EFW facility: • Tipping Floor • Two-Stage Incinerators • Air Pollution Control (APC) System with Selective Catalytic Reduction (SCR) Tipping Floor - Collection trucks deliver waste to the facility and unload it onto the tipping floor. The tipping floor acts as a buffer or storage area for the waste prior to being loaded into the incinerator. Here, large items such as mattresses and bicycles are removed. Two Stage Incinerators - The waste is loaded into the five two-stage incinerators from the tipping floor by a front-end loader. Transfer rams feed the primary chamber of the incinerators where the waste is combusted in a controlled air environment (first stage). Off gases are moved into a second chamber where they are combusted in an oxygen-rich environment (second stage). The heat generated in the second stage is fed into a heat recovery boiler creating steam used to run a turbine and generate electricity. The ash remaining from the incineration process in the first stage (bottom ash) is moved into a quench tank to cool. It takes approximately five hours to burn the processed waste from the time the waste is loaded into the primary chamber until the bottom ash is discharged from the quench tank. Air Pollution Control (APC) - The APC system includes: a wet-spray humidifier to cool and humidify flue gases; a venturi dry lime injection tower to remove acidic gases; a powdered activated carbon (PAC) injection system to reduce mercury; a baghouse filtering system to remove particulate and a selective catalytic reduction (SCR) reactor to reduce the Nitrous Oxides (NOx) emissions, dioxins and furans. This state-of-the-art APC system ensures that emissions from the facility are well below provincial air emission standards. Ash Removal & Disposal - Fly ash collected from the baghouse filtering system is hazardous, and is disposed of at a secure hazardous waste landfill site. The bottom ash generated is processed to remove ferrous material and then screened into two size groups. The majority of the processed bottom ash is less than one inch in diameter and is currently being used as landfill daily cover. Research into beneficial end use applications and markets for the processed bottom ash is on-going. Potential applications include asphalt, brick and concrete manufacturing using processed bottom ash as a substitute for traditional granular material. For more information contact Head Office at Tel: 905-465-4500 • Fax: 905-465-4514

Provincial Waste Management - Consultation Summary Report  | 27



4. Wainwright, Alberta The Wainwright Regional Waste-to-Energy Authority serves the needs of approximately 10,000 people. The Authority operates a state-of-the-art incinerator to burn domestic, biomedical, and some non-hazardous industrial wastes to reduce landfill space and generate heat for use at an adjacent processing plant. This state-of-the art municipal Waste-to-Energy combustor began operation in the town of Wainwright, Alberta, Canada in 1995. This 30 tpd system is the first small scale facility built to meet the Canadian Council of Ministers of the Environment (CCME) 1989 operation and air emission standards for Municipal Solid Waste combustors. Faced with substantial increases in the cost of landfill by the Town of Wainwright, funding for a capital project to assess the viability of a Waste-To-Energy Plant was made available in 1984. Wainwright initially selected two modular starved air systems at a capital cost of approximately 4.0 million. Despite incurring numerous problems in combustion that subsequently resulted in the disposal of the two units, the Wainwright Regional Waste-to-Energy Authority and the Province believed that waste-toenergy would be a proper solution to complement its landfill, composting, and recycling programs. Stanley Industrial ConSultants Ltd. of Edmonton was retained to assess small scale waste-to-energy technology to replace the previous units. Additionally, the Authority elected to pursue a Build-Operate-Transfer (BOT) concept for the purchase, installation, and operation of the facility. The Wainwright system was the first municipal solid waste combustor to be permitted under the new CCME operating and Air emission standards for Municipal Solid Waste combustors. It needed to meet strict combustion, particulate, acid gas, metals, and trace organic limit requirements. For more information contact Wainwright Regional Waste to Energy Authority. Tel: 780-8424-051

5. Enerkem, Edmonton, Alberta Enerkem, as part of Enerkem Alberta Biofuels (EAB), has signed a 25-year agreement with the City of Edmonton to build and operate a plant that will produce and sell next-generation biofuels from non-recyclable and non-compostable MSW. This is the world’s first agreement between a large urban centre and a biofuel producer to turn municipal waste into ethanol. As part of the agreement, the City of Edmonton will supply a minimum of 100,000 dry tons of sorted MSW per year. The sorted MSW to be used is the ultimate residue after recycling and composting, which is saved from being landfilled. The project met all required regulatory environmental standards, including air emissions, and was granted a permit, under the Environmental Protection and Enhancement Act of the Province of Alberta, to commence construction and operation of the commercial facility. Construction started during the summer 2010. Enerkem’s project partners, the City of Edmonton and Alberta Innovates – Energy and Environment Solutions, contributed $20 million to the project. In addition, the project has been selected by Alberta Energy to receive $3.35 million in funding, as part of the Biorefining Commercialization and Market Development Program. This program is designed to stimulate investment in Alberta’s bio-energy sector. This facility, which is part of a comprehensive municipal waste-to-biofuels initiative in partnership with the City of Edmonton and Alberta Innovates, will enable the City of Edmonton to increase its residential waste diversion rate to 90 percent. For more information contact Tel (Construction): 780-473-2896 • Tel (Engineering & Operations): 819-347-1111 Fax : 780-473-6418 [email protected]

28 |  Municipalities Newfoundland and Labrador

WASTE TO ENERGY FACILITIES IN THE USA AND WORLDWIDE Worldwide, there are over 600 WTE facilities that produce electricity and steam for district heating. Currently, there are WTE facilities in 35 nations, including large countries such as China and small ones such as Bermuda. Denmark now has 29 such plants, serving 98 municipalities in a country of 5.5 million people, and 10 more are planned or under construction. Across Europe, there are about 400 plants, with Denmark, Germany and the Netherlands in the process of expanding them and building new ones. As of the year 2000, there were approximately 102 “Waste to Energy” facilities using some form of combustion process operating in 31 states in the United States. Most of the “Waste to Energy” facilities in the U.S. became operational between 1980 and 1996. Only three new plants have come on line since 1996 due to environmental concerns involving existing plants that were installed without adequately addressing the environmental issues. Due to new emission standards some of these facilities have closed while the majority are undergoing major renovation. The Major users of WTE in the US include Connecticut (6), New York (10), New Jersey (5), Pennsylvania (6), Virginia (6), and Florida (13).

WASTE TO ENERGY COMPANIES There are several companies claiming to have the modern technology to convert MSW to energy with minimal to no impact on the environment. Two companies are briefly discussed below. It should also be noted that the BC Bioenergy Network in British Columbia has been actively promoting research, development and demonstration projects to maximize the value of BC’s biomass resources including MSW and creating partnerships with various companies.

1. Wright Tech Systems Inc. According to Wright Tech Systems Inc., they can provide a complete turnkey solution from design, engineering, manufacturing, equipment supply and procurement to construction, operation and even financing for organic waste to energy projects from 50 to over 1000 tonnes/day of processing capacity. Wright utilizes a core team of waste, energy and environmental specialists, design engineers, project managers, facility operators and financial advisors to provide unique solutions for clients. At the core of the organic waste to energy projects is their patented Biodryer® technology. Wright also provides the necessary MSW separation, mixing, biofiltration and conveying equipment for a complete processing solution. For example, their Green Energy and Recycling Facility is designed to take mixed municipal solid waste (“black bag”) and separate out the organics (food, paper, wood, etc) from the recyclables (metals, plastics, textiles, glass, etc). The organics are then converted to biomass fuel (“green energy”) and the recyclables are recovered and resold back into the market.

2. Plasco Perhaps the most widely known company is Plasco. Plasco Energy Group Inc. is an innovative technology company that converts post-recycled municipal solid waste into green power and other valuable products. Plasco operates the world’s only commercialscale conversion technology facility that converts municipal solid waste into a consistent syngas that runs reciprocating gas engines, to generate electricity. The Plasco Conversion System is the result of over 30 years of experience with plasma technologies. Since 1986, they have operated research facilities in Ottawa and Spain where their process has been continuously tested and refined. Approximately $270 million in capital has been raised and invested in Plasco since 2005. Public investment includes $9.5 million in funding from Sustainable Development Technology Canada (SDTC) and a $4 million loan from the Ontario Ministry of Research and Innovation. According to Plasco, it will assume all financial responsibility and risk with respect to the construction, completion, commissioning, and on-going operations of a facility. Their finance, build, own, and operate business model ensures there are no capital costs for the community or its taxpayer.

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According to Plasco’s website, more than 98% of the waste processed by the Plasco Conversion System will be diverted from landfill and converted into useful products. A Plasco Facility offers the following benefits to communities: 1.

Improves local air quality and reduces a community’s carbon footprint

2.

Curbs landfill growth and expansion

3.

Eliminates the need for new landfills

4.

Preserves natural resources for future generations

5.

Creates local jobs

6.

Requires zero capital from the tax-payer

7.

Demonstrates a community’s environmental leadership

Plasco’s non-incineration process idiffers from other thermal technology by using plasma only to refine the gases released from the gasification of the waste in an oxygen-starved conversion chamber. With the torches interacting only with the gas, there is limited electricity demand. In the process, garbage is converted into a synthetic gas that is then used to run internal combustion engines. The Plasco process results in net energy production while converting 98% of waste to clean, valuable products. Because the garbage is gasified and not burned, the multiple and capital-intensive pollution abatement systems required by incinerators can be replaced with single string units that yield class-leading environmental performance. The result is ultra-low emission engine exhaust that claim it will meet or beat the world’s toughest environmental standards. On June 25, 2008, Ottawa City Council agreed to issue a letter of intent to Plasco to build, own, and operate a 400 tonne-per-day waste conversion facility. The Plasco Trail Road Commercial Demonstration Facility is a 100 tonne per day design, and is currently operated on a scheduled basis. This schedule enables maintenance and modifications to be performed economically, while providing a platform to directly demonstrate and improve Plasco’s technology. Plasco Trail Road is permitted under specific regulations that allow operations and testing to proceed within defined limits and controls. Since the facility first began processing post-recycled MSW from the City of Ottawa in January 2008, operations at PTR have successfully demonstrated: • Delivery of engine-quality syngas that supports 1.0 MWh/tonne of electricity production • Conversion efficiencies at or above expectations • Compliant environmental performance • Generation of electricity that can be sold to the local utility • Production of commercially acceptable vitrified slag • Water treatment that supports the production of potable quality water

FOR CONSIDERATION Although there seems to be significant evidence supporting the WTE technologies as an effective strategy to manage MSW, significant research has to be developed in Newfoundland looking into the specific local and long term effects for the province. Will Newfoundland have the required tonnage to make it effective? Will there will be transporting of waste across the island; a similar concern of the current strategy? Is there conclusive evidence supporting the improved emission controls? What will be the cost associated with WTE technology versus the current strategy? A number of cities (i.e. City of Los Angeles, New York City, and Metro Vancouver) have completed in-depth studies and reviews regarding alternative waste treatment approaches. It is recommended that the Provincial Government of Newfoundland actively conduct the required research to ensure as we move forward all options have been considered.

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REFERENCES Article by Nickolas J. Themelis in Waste Management World (www.iswa.org), 2003-2004 Review Issue, July-August 2003, p. 40-47 WASTE TO ENERGY: A Technical Review of Municipal Solid Waste Thermal Treatment Practices, Prepared by Stantec, August 27, 2010 MSW Thermal Treatment in Canada 2006, Submitted to: Environment Canada, Submitted by: GENIVAR Ontario Inc., In Association with Ramboll Danmark A/S, Date: March 2007 Review of Dioxins and Furans from Incineration in Support of a Canada wide Standard Review, A Report Prepared for The Dioxins and Furans Incineration Review Group through a contract associated with Canadian Council of Ministers of the Environment Inc. and A.J. Chandler Associates Ltd., 2007 Waste-to-Energy Research and Technology Council (WTERT); Earth Engineering Center, Columbia University 500 West 120th St., New York, NY, July 2008 (http://www.wtert.org) Waste-to-Energy: A Renewable Energy Source from Municipal Solid Waste, The Solid Waste Processing Division (SWPD) of the American Society of Mechanical Engineers (ASME) Design, Installation and Operation of the Wainwright Regional Waste-To-Energy Authority Combustor, Proceedings of the 17th Biennial Waste Processing Conference, ASME 1996. Summary Report: Evaluation of Alternative Solid Waste Processing Technologies, Prepared by: URS Corporation, September 2005. The Waste-to-Energy Research and Technology Council (WTERT), http://www.seas.columbia.edu/earth/wtert/ BC Bioenergy Network, www.bcbioenergy.ca http://www.plascoenergygroup.com/ http://www.wrighttech.ca/



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Resources A By-Law To Regulate The Collection, Handling And Recycling Of Waste And Recyclable Materials In Certain Premises In The City Of Owen Sound. By-Law No. 2006-001. City Of Owen Sound. http://www.owensound.ca/ documents/Mandatory_Recycling_By_Law.pdf. Anaerobic digestion: reducing landfill waste. Improvement and Development Agency. UK. January 2011. http://www. idea.gov.uk/idk/core/page.do?pageId=24781953 Benefits and potential impacts of energy from waste. Improvement and Development Agency UK. January 2011. http://www.idea.gov.uk/idk/core/page.do?pageId=24770568 Building an anaerobic digestion plant in partnership. Improvement and Development Agency. UK. January 2011. http://www.idea.gov.uk/idk/core/page.do?pageId=24797970 Canada-Wide Action Plan for Extended Producer Responsibility. Approved in principle by Canadian Council of Ministers of the Environment October 29, 2009. Central Newfoundland Waste Management Committee Appointed as a Regional Service Board. News Release, Environment and Conservation, Dept. of Municipal Affairs, Government of Newfoundland and Labrador. December 2008. Changing Climate, Changing Communities: Guide and Workbook for Municipal Climate Adaptation. ICLEI Canada Local Governments for Sustainability. http://www.iclei.org/index.php?id=8708 Consultation Paper: Solid Waster Resource Management Strategy. Thinking outside the landfill. Department of Environment, Government of Nova Scotia. http://www.gov.ns.ca/nse/waste/docs/consultationpaper-thinking.outside. the.landfill.pdf Correspondence to Calvin Peach, MHA Bellevue District by Sunnyside Town Council. Sunnyside. NL Demonstrating Results: Municipal Initiatives to Reduce Greenhouse Gases. Federation of Canadian Municipalities. ICLEI Canada Local Governments for Sustainability. 2010. http://fmv.fcm.ca/files/Capacity_Building_-_PCP/PCP_ Resources/Measures_Report_2010_English_Final.pdf Energy From Waste. Improvement and Development Agency. UK. January 2011. http://www.idea.gov.uk/idk/core/ page.do?pageId=23211031 Extended Producer Responsibility and Stewardship, An Inventory of Waste Diversion Programs in Canada – Part 1: Programs Funded in Whole or in Part by Industry and Consumers. Environment Canada. http://www.ec.gc.ca/epr/ default.asp?lang=En&n=4BDD01C2-1 Extended Producer Responsibility and Stewardship, Approaches to EPR and Stewardship. Environment Canada. URL: Extended Producer Responsibility and Stewardship, Inventory. Environment Canada. http://www.ec.gc.ca/epr/ default.asp?lang=En&n=A089CC28-1 Funding Announced for Bonavista Regional Waste Management Committee. Press Release, Environment and Conservation, Dept. of Municipalities, Government of Newfoundland and Labrador. July 2010. Funding Announced for Waste Site Consolidation in Lewisporte Area. News Release, Environment and Conservation, Dept. of Municipal Affairs, Government of Newfoundland and Labrador. January 2009. Government Announces Implementation of $200 Million Provincial Solid Waste Management Strategy. News Release, Environment and Conservation, Dept. of Municipal Affairs, Government of Newfoundland and Labrador. May 2007.

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Resources Green Municipal Fund Grants for Sustainable Community Plans Application Guidelines. Federation of Canadian Municipalities. Ottawa, ON. January 2008. Gros Morne Community Plans for Climate Change. The Telegram, Transcontinental Media. Corner Brook. NL February 2010 http://www.ec.gc.ca/epr/default.asp?lang=En&n=94346F61-1 Joint Council Fed Up with Illegal Dumping. Hutchings, Paul. The Western Star. Transcontinental Media. Cormack. NL Letter to Churance Rogers, Director for Small Towns Municipalities Newfoundland and Labrador regarding Waste Management. Central Waste Management. Gander NL. July 2010. Miller Waste Systems, The Miller Group. Municipal Services. Markham, ON. http://www.millergroup.ca/waste/index. html MMSB Provides Funding for Regional Waste Management Initiatives. News Release, Environment and Conservation, Dept. of Municipal Affairs, Government of Newfoundland and Labrador. November 2008. Municipal leaders point fingers at government. Gale, Frank. The Western Star. Stephenville. NL. February 2011. Municipal Solid Waste and Greenhouse Gases. Environment Canada. http://www.ec.gc.ca/gdd-mw/default. asp?lang=En&n=6F92E701-1; http://www.ec.gc.ca/gdd-mw/default.asp?lang=En&n=EF0FC6A9-1 Newfoundland and Labrador Waste Management Strategy. Dept. of Municipal Affairs, Government of Newfoundland and Labrador. 2002. http://www.ma.gov.nl.ca/ma/publications/pswms/wastemanagementstrategy_apr2002.pdf Newfoundlanders and Labradorians are Encouraged to Reduce Waste. News Release, Environment and Conservation, Government of Newfoundland and Labrador. October 2008. No Waste Management Ideas Coming From MMSB. Bartlett, Dave. The Telegram, Transcontinental Media. St. John’s, NL Planning for Sustainability: Long Term Waste Management Plan 2007-2031. City of Owen Sound. Owen Sound, ON. 2007. Presentation to the Town Council of Happy Valley Goose Bay on Waste Management. 2004 Recycling Waste to Generate Clean Energy. Gem Canada Waste to Energy Inc. Owen Sound, Ontario. http://www. gemcanadawaste.com/index2.html Regional Waste Management System Moving Forward for Burin Peninsula. News Release, Environment and Conservation, Dept. of Municipal Affairs, Government of Newfoundland and Labrador. January 2010. Renewal of Nova Scotia’s Solid Waste Resource Management Strategy, Consultation Summary Report. Dept. of Environment, Government of Nova Scotia. Nova Scotia. 2009. http://www.gov.ns.ca/nse/waste/docs/ SolidWasteStrategy.2009.Renewal.pdf Results, Analysis and Recommendations Report, Solid Waste Management Study. Serco Environmental Services for The Town of Happy Valley Goose Bay. Goose Bay, NL. December 2001. Schedule 1 to By-Law No. 2006-001. City of Owen Sound. http://www.owensound.ca/documents/2006-001Recycling_Schedule1.pdf Stewardship Plan For Used Oil, Antifreeze, Oil Filters and Oil and Antifreeze Containers. British Columbia Oil Management Association. BC. September 2010. http://rcbc.bc.ca/files/u7/BCUOMA_AntifreezeOilStewardshipPlan. pdf



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Resources Suffolk’s Wood Fuel Programme. http://www.idea.gov.uk/idk/core/page.do?pageId=24067046 Terms of Reference, Southern Labrador Waste Management Study. 2009 The 2010 ERC Directory of Waste-to-Energy Plants. Michaels, Ted. The Energy Recovery Council, Washington, DC. December 2010. http://www.wte.org/userfiles/file/ERC_2010_Directory.pdf Trash Pile Keeps Growing, Wabush Mayor frustrated with lack of decision on landfill site. Stewart, Michelle. The Telegram, Transcontinental Media, Wabush. NL October 2010. Viessmann Climate of Innovation. Heating with Wood. Viessmann Manufacturing Company Inc. Waterloo, ON. 2009. Waste Audit Manual: A Comprehensive Guide to the Waste Audit Process. Fenco MacLaren Inc. in association with Angus Environmental Inc. under contract for the Canadian Council of Ministers of the Environment. April 2006. www.ccme.ca/assets/pdf/pn_1210_e.pdf Waste Management Authorities What Authority? Correspondence to the Honourable Dianne Whalen, Minister of Municipal Affairs, Government of Newfoundland and Labrador by Peter Fenwick on behalf of the Bay St. George Waste Management Committee. Undated. Waste Management Site Presentation and Discussion document. Sunnyside Town Council. Sunnyside, NL. Waste to Energy - MNL Report Submission from the City of Corner Brook. By Rhea Hutchings, Sustainable Development Officer, City Corner Brook. NL. Waste Management Industry Survey: Business and Government Sectors 2008. Statistics Canada. Western waste management decision still uncertain; subsidy key in shipping garbage to central. Hurley, Corey. The Western Star, Transcontinental Media. Corner Brook. NL. February 2011. What We Heard Indiscriminate Dumping and Litter Abatement Roundtable Discussion and Presentation. MultiMaterials Stewardship Board. October 2010. Why Manage Waste? Environmental Association for Universities & Colleges. www.eauc.org.uk

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