Stage 1: Existing Solid Waste Management System - Integrated Solid Waste & Resource Management Plan - Capital ...
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Integrated Solid Waste & Resource Management Plan
Stage 1: Existing Solid Waste
Management System
Prepared for
Capital Regional District
By
Maura Walker and Associates Environmental Consultants
27 July 2012
July 27, 2012 Anke Bergner Environmental Resource Management Capital Regional District 625 Fisgard Street PO Box 1000 Victoria BC V8W 2S6 Dear Ms. Bergner, Re: Stage 1 Report on Existing Solid Waste Management System We are pleased to submit the Stage 1 report that describes the existing solid waste management system in the Capital Regional District and provides a review of the implementation status of the current Solid Waste Management Plan. This report has been reviewed by CRD staff, the Public and Technical Advisory Committee and staff at the Ministry of Environment. This report will be supplemented by a memorandum on issues and opportunities identified during the Stage 1 process. This memo, along with this report on the existing system, will complete the Stage 1 documentation. We appreciate this opportunity to be of service and look forward to working with you on this planning process. Yours very truly, MAURA WALKER AND ASSOCIATES ENVIRONMENTAL CONSULTANTS Maura Walker Principal, Lead Planner
S t a ge 1 R ep or t : Exis t in g So li d W as t e Ma nag e men t Sys te m Executive Summary The Capital Regional District is updating their Solid Waste Management Plan – a document that provides a region-wide vision for solid waste and resource management for the next 10-20 years. The new plan is intended to be an Integrated Solid Waste and Resource Management Plan (ISWRMP) which links solid waste management goals, infrastructure and services with the other regional programs, plans and strategies. This report describes the current system to manage solid waste in the CRD, as well as provides the status of the implementation of the current Solid Waste Management Plan as of June 2012. This report is intended to provide the baseline from which the ISWRMP will be developed. In 2011, there was 136,414 tonnes of solid waste disposed of at Hartland Landfill and an estimated 116,031 tonnes of waste diverted through various 3Rs programs, resulting in a diversion rate of 46%. From 1989 to 2011, the CRD reduced the per capita disposal at Hartland from 0.67 tonnes per capita per year down to 0.36 tonnes per capita; a reduction of 46%. Waste composition studies conducted by the CRD at Hartland Landfill indicate that the largest components of waste in the landfill (by weight) are organics, paper, plastic and wood, and that an estimated 75% of the material landfilled is potentially recyclable or compostable. Solid waste activities in the CRD include: curbside collection services, recycling depots, return centres for EPR products, transfer stations, recycling processing facilities, composting facilities and landfill sites. These activities are undertaken by public, private and non-profit organizations and are reflective of a complex and mature solid waste management system The annual budget for the CRD’s solid waste services is $17 million, which includes all activities at Hartland Landfill and all solid waste diversion programs, including the curbside recycling program. The solid waste services are funded primarily through tipping fees revenue. Additional revenue is received through the sale of recyclables and energy generated by landfill gas. One of the most significant challenges for the CRD in the near future will be the funding of diversion programs. Because these programs have been funded from tipping fees associated with disposal, the success of these programs has resulted in less waste being landfilled and consequently less revenue. In order to continue to enhance diversion programs and decrease the amount of waste landfilled, consideration of alternative mechanisms for funding diversion programs will be required. Draft_2012july4 i
S t a ge 1 R ep or t : Exis t in g So li d W as t e Ma nag e men t Sys te m
Glossary
Term Definition/Description
CD Construction and demolition
CD Waste Waste materials generated from construction, demolition and renovation activities.
CD materials often contain bulky, heavy materials, such as concrete, wood, metals,
glass, and salvaged building components.
Carpet Carpet, rugs
Clean wood waste Uncontaminated wood or wood products, from which hardware, fittings and
attachments, unless they are predominantly wood or cellulose, have been removed
(e.g., clean wooden shakes and shingles, lumber, wooden siding, posts, beams or logs
from log home construction, fence posts and rails, wooden decking, millwork and
cabinetry). Clean wood waste excludes:
Any engineered or chemically treated wood products, such as products with
added glues or those treated for insect or rot control (oriented strand board,
plywood, medium density fibre board, wood laminates or wood treated with
chromated copper arsenate, ammoniacal copper arsenate, pentachlorophenol
or creosote);
Upholstered articles;
Painted or varnished wood articles or wood with physical contaminants, such
as plaster, metal, or plastic;
Any wood articles to which a rigid surface treatment is affixed or adhered.
Clean wood waste also excludes other materials found in the construction and
demolition waste stream such as gypsum or drywall, fiberglass, asphalt or fiberglass
roofing shingles, metals or plastics.
Composite materials Packaging and products comprised of more than one type of material, such as plastic
laminated to paper or foil. Examples of composite materials include dog food bags,
children’s toys made of plastic and metal, diapers, sanitary products, and bulky Items
like luggage and sofas.
Compostable Paper Fibre products and packaging which can be composted after use. Examples include
Products paper coffee cups, paper bags, facial tissues, paper toweling
CRD Capital Regional District
Dirty wood waste Treated wood, painted wood. All wood products and materials that are not “clean”
(refer to definition of “clean wood waste” above)
Disposal Waste that is sent to landfill
Diversion Waste that is generated but that is handled through recycling or reuse instead of being
disposed.
EA Electoral area
E-waste Electronic waste
Extended Producer An environmental policy approach in which a producer’s responsibility (physical and/or
Responsibility (EPR) financial) for a product is extended to the post-consumer stage of a product’s life cycle.
There are two key features of EPR policy: (1) the shifting of responsibility (physically
and/or economically, fully or partially) upstream to the producer and away from local
governments, and (2) to provide incentives to producers to take environmental
considerations into the design of the product.
Fines Cigarette butts, bottle caps, bits and pieces, etc.
Glass Beverage containers (deposit and non-deposit bearing containers)
Glass food containers (jars)
Non-container glass (broken glass, picture frames etc)
Gypsum Drywall
HHW Household Hazardous Waste: Includes items covered by stewardship programs (such
as compact fluorescent light bulbs, paint, solvents, used oil and containers, batteries)
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S t a ge 1 R ep or t : Exis t in g So li d W as t e Ma nag e men t Sys te m
Term Definition/Description
and items not covered by stewardship programs
ICI Industrial, commercial and institutional
ICI waste Waste generated by institutions (such as schools), commercial establishments (such
as stores, restaurants) and industrial establishments (light manufacturing)
Inert Waste Dirt, rocks, ash
Metal Beverage containers(deposit and non-deposit bearing containers)
Metal food containers (cans)
Household metal (keys, nails, hangers etc.)
Non-household metal (siding, pipes)
MF Multi-family
MPP Mixed paper products
MSW Municipal solid waste: Includes predominantly household and commercial waste. MSW
excludes commercially-generated hazardous wastes.
OCC Old corrugated cardboard
ONP Old newsprint (including flyers)
Organics and Kitchen The portion of the waste stream that is considered readily compostable, including food
Scraps waste, yard waste and compostable paper (non-recyclable paper such as paper
toweling and facial tissues).
Pet Waste Dog feces, cat litter box waste
Plastics #1-7 #1 PET: pop bottles and water bottles, some jars, some clear boxes used for bakery
and fresh produce
#2 HDPE: milk bottles, detergent bottles, grocery/trash/retail bags, and some
household goods such as laundry baskets and backyard composters
#3 PVC: loose-leaf binders and plastic pipes
#4 LDPE: dry cleaning bags, produce bags and squeezable bottles
#5 PP: medicine bottles, aerosol caps, drinking straws and food containers (such as
yogurt, ketchup bottles and yogurt tubs)
#6 PS: compact disc jackets, foam packaging and peanuts, and plastic tableware
#7 Other: reusable water bottles, certain kinds of food containers, plastic consumer
goods
Polycoated Containers Juice boxes, dairy and dairy substitute containers, soup boxes, etc.
Product Stewardship A term used in British Columbia to describe a government strategy to place the
responsibility for end of life product management on the producer and consumers of a
product and not the general taxpayer or local government. Also known as Extended
Producer Responsibility (EPR).
Reduction Waste that is prevented from being generated. This may be achieved through changes
in consumption habits or changes in the way products are sold.
Residential waste Waste generated by households
SF Single family (usually includes duplexes and triplexes and may include townhouses)
Textiles Clothing ,footwear, rags, cloth material
Waste management A concept that refers to the 5Rs of waste management: reduce, reuse, recycle,
hierarchy recover, residuals management. The hierarchy places greater emphasis on up-stream
waste management activities, such as reduce and reuse.
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S t a ge 1 R ep or t : Exis t in g So li d W as t e Ma nag e men t Sys te m
Table of Contents
Letter
Executive Summary
Glossary
1 Introduction ................................................................................................................................. 1-1
2 Background ................................................................................................................................. 2-1
3 Plan Area ...................................................................................................................................... 3-1
3.1 Population and Growth Estimates.................................................................................... 3-4
3.2 Economic Data ................................................................................................................. 3-5
3.3 Housing ............................................................................................................................ 3-5
4 Characterization of the Solid Waste Stream ............................................................................ 4-1
4.1 Composition of Waste Disposed ...................................................................................... 4-1
4.1.1 Change in Overall Waste Composition from 1991 to 2010 ............................. 4-6
4.2 Disposal and Diversion .................................................................................................... 4-6
4.2.1 Disposal and Diversion of CD Waste .............................................................. 4-8
4.2.2 Import and Export of Waste ............................................................................. 4-8
4.3 Contributors to Waste Disposed .................................................................................... 4-10
5 Existing Waste Management System...................................................................................... 5-10
6 Reduction and Reuse Activities .............................................................................................. 6-12
7 Recycling ..................................................................................................................................... 7-1
7.1 Collection Services for Single-Family Homes .................................................................. 7-1
7.2 Collection Services for Multi Family Homes .................................................................... 7-1
7.3 Recycling in the Electoral Areas ...................................................................................... 7-2
7.4 Recycling Services for the Industrial, Commercial and Institutional Sectors ................... 7-3
7.5 Recycling at Hartland Landfill .......................................................................................... 7-3
7.6 Pilot Projects .................................................................................................................... 7-4
7.7 Private Recycling Depots ................................................................................................. 7-5
7.8 Recycling Services on First Nations Lands ..................................................................... 7-5
7.9 Event Recycling ............................................................................................................... 7-5
7.10 Processing and Marketing of Recyclables ....................................................................... 7-5
7.11 Telephone Book Recycling Program ............................................................................... 7-6
7.12 Diversion Credits .............................................................................................................. 7-6
8 Extended Producer Responsibility ........................................................................................... 8-1
8.1.1 EPR Facilities in the CRD ................................................................................ 8-3
9 Composting & Organics Recycling ........................................................................................... 9-5
9.1 Policies ............................................................................................................................. 9-5
9.2 Backyard Composting ...................................................................................................... 9-5
9.3 Residential Yard Waste Collection................................................................................... 9-5
9.4 Residential Kitchen Scraps Collection ............................................................................. 9-5
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9.5 Multi-Family Collection ..................................................................................................... 9-7
9.6 ICI Collection .................................................................................................................... 9-7
9.7 Composting Facilities Regulation Bylaw .......................................................................... 9-7
9.8 Processing ....................................................................................................................... 9-7
10 Resource Recovery and Residual Waste Management ........................................................ 10-1
10.1 Resource Recovery........................................................................................................ 10-1
10.2 Garbage Collection ........................................................................................................ 10-2
10.2.1 Single Family Residential .............................................................................. 10-2
10.2.2 Multi-Family Buildings .................................................................................... 10-3
10.2.3 ICI .................................................................................................................. 10-3
10.3 Transfer Stations ............................................................................................................ 10-4
10.4 Hartland Landfill ............................................................................................................. 10-4
10.4.1 Phase 1 and Phase 2 History ........................................................................ 10-5
10.4.2 Infrastructure .................................................................................................. 10-5
10.4.3 Landfill Gas Management Plan ..................................................................... 10-6
10.4.4 Monitoring ...................................................................................................... 10-6
10.4.5 Estimated Lifespan ........................................................................................ 10-7
10.4.6 Disposal Bans ................................................................................................ 10-7
10.4.7 Landfill Disposal Charges .............................................................................. 10-8
10.4.8 Disaster Debris Management Planning ......................................................... 10-8
10.5 Private Disposal Facilities .............................................................................................. 10-9
10.6 Highwest Landfill ............................................................................................................ 10-9
10.6.1 Landfill Design ............................................................................................. 10-10
10.7 Closed Landfills ............................................................................................................ 10-10
10.7.1 Blackburn Road Landfill ............................................................................... 10-11
10.7.2 Galiano Island Landfill ................................................................................. 10-11
10.7.3 Saturna Island Landfill ................................................................................. 10-11
10.7.4 Port Renfrew Landfill ................................................................................... 10-11
11 Construction and Demolition Waste Management ................................................................ 11-1
12 Land Clearing Waste Management ......................................................................................... 12-1
13 Household Hazardous Waste .................................................................................................. 13-1
14 Illegal Dumping ......................................................................................................................... 14-1
14.1 Community Clean-up Program ...................................................................................... 14-1
14.2 Non-Profit Recyclers Program ....................................................................................... 14-1
14.3 Illegal Dumping Strategy ................................................................................................ 14-1
15 Education and Outreach .......................................................................................................... 15-1
15.1 School Outreach Program ............................................................................................. 15-1
15.2 The Hartland Learning Centre ....................................................................................... 15-1
15.3 Landfill & Recycling Tours ............................................................................................. 15-2
15.4 My Recyclopedia ............................................................................................................ 15-2
15.5 CRD Hotline ................................................................................................................... 15-2
15.6 EcoStar Awards ............................................................................................................. 15-2
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16 Financing of CRD Solid Waste Services................................................................................. 16-1
17 Linkages with Regional Plans and Goals ............................................................................... 17-2
17.1 CRD Strategic Plan (2009-2011) ................................................................................... 17-2
17.2 Regional Sustainability Strategy .................................................................................... 17-2
17.3 Core Area Liquid Waste Management Plan .................................................................. 17-2
17.4 Official Community Plans ............................................................................................... 17-3
List of Figures
Figure 3-1 Map of the Capital Regional District ................................................................................... 3-2
Figure 3-2 First Nation Reserves in the CRD ....................................................................................... 3-3
Figure 3-3 2011 CRD Population by Administrative Area .................................................................... 3-4
Figure 4-1 Composition of All Waste Landfilled at Hartland (2009/10), by Weight .............................. 4-2
Figure 4-2 Composition of Residential Waste Landfilled at Hartland (2009/10), by Weight ................ 4-3
Figure 4-3 Composition of ICI Waste Landfilled at Hartland (2009/10), by Weight.............................. 4-4
Figure 4-4 Composition of Construction & Demolition (CD) Waste Landfilled at Hartland
(2009/10), by Weight ........................................................................................................... 4-5
Figure 4-5 Disposal and Diversion (1989-2011) ................................................................................... 4-7
Figure 4-6 Per Capita Tonnes of Waste Landfilled at Hartland (1989-2011) ....................................... 4-8
Figure 4-7 Sectors Contributing to Waste Disposed .......................................................................... 4-10
Figure 7-1 Hartland Public Drop Off Area ............................................................................................. 7-4
Figure 10-1 Landfill Gas Utilization Facility at Hartland Landfill ........................................................... 10-1
Figure 10-2 Aerial View of Hartland Landfill ......................................................................................... 10-4
Figure 10-3 Location of Highwest Landfill ............................................................................................ 10-9
List of Tables
Table 2-1 Implementation Status of 1995 Solid Waste Management Plan and Amendments ........... 2-2
Table 3-1 Housing in the CRD............................................................................................................. 3-5
Table 4-1 Overall Waste Composition in 1991 and 2010 .................................................................... 4-6
Table 4-2 2011 Quantitative Diversion ................................................................................................ 4-9
Table 8-1 EPR Product Return Locations in the CRD......................................................................... 8-4
Table 9-1 Single-Family Residential Organic Waste Collection Services ........................................... 9-6
Table 10-1 Single Family Residential Garbage Collection .................................................................. 10-2
Table 10-2 Municipal Garbage Collection Limits ................................................................................. 10-3
Table 10-3 Materials Banned from Disposal ....................................................................................... 10-7
Table 10-4 2012 Tipping Fees at Hartland Landfill ............................................................................. 10-8
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C a pi t al R eg io na l D is tr ic t I SW R MP: S t ag e 1 R e por t 1 Introduction The Capital Regional District is updating their Solid Waste Management Plan which is a document that provides a region-wide vision for solid waste management for the next 10-20 years. The new plan is intended to be an Integrated Solid Waste and Resource Management Plan (ISWRMP) which links solid waste management goals, infrastructure and services with the other regional programs, plans and strategies, including the CRD Strategic Plan, Regional Sustainability Strategy, Climate Action Plan and the Core Area Liquid Waste Management Plan. In particular, the planning process will consider opportunities to integrate solid waste options with liquid waste programs and energy recovery options. Critical to the development of the plan will be to consider the material discards of the CRD as a potential resource rather than a “waste”. The process to review the Plan will be conducted in accordance with the BC Ministry of Environment’s “Guide to the Preparation of Regional Solid Waste Management Plans”.1 As per the Guidelines, the planning process will be conducted in three stages. The first stage is an assessment of the current system and a report on the implementation status of the current Plan and subsequent amendments. The second stage is the review of options to address the region’s future solid waste management needs, the selection of preferred options, and the development of a draft Plan. The third and final stage will be a community consultation process to obtain input into the selected options and subsequent finalization of the updated Plan. Throughout the process, a combined public and technical advisory committee and a political steering committee will be involved in the assessment and selection of options and providing feedback to the CRD Board on the Plan’s development This report is part of the Stage 1 process and is an overview of the system to manage solid waste in the CRD in 2011/12. 1 This document is available online at http://www.env.gov.bc.ca/epd/epdpa/mpp/gprswmp1.html Draft_2012july4 1-1
C a pi t al R eg io na l D is tr ic t I SW R MP: S t ag e 1 R e por t 2 Background A regional Solid Waste Management Plan (SWMP or Plan) is a legally binding document that is mandated by the Province for all Regional Districts. The CRD’s first SWMP was approved by the Province in 1989. It was updated in 1991 and again in 1995. The 1995 update was approved by the BC Ministry of Environment in 1996 and is the considered to be the most recent update of the Plan. Since it was approved, seven amendments have been added to the Plan and most of the original goals have been achieved. The Province of BC has requested that the CRD update the Plan to reflect the changes that have been made since 1995, including the 7 amendments and changes to the solid waste management system. In addition, this process to update the Plan allows for consideration of future options for solid waste management and to create an updated vision. Table 2-1 lists the key actions that were included in the 1995 Plan and subsequent amendments and the current status of those actions. The CRD has been actively pursuing all aspects of the 1995 Plan and amendments and has successfully implemented the majority of actions outlined in those documents. Draft_2012july4 2-1
C a pi t al R eg io na l D is tr ic t I SW R MP: S t ag e 1 R e por t
Table 2-1 Implementation Status of 1995 Solid Waste Management Plan and Amendments
1995 Solid Waste Management Plan Component Implementation Status
3Rs Components
10.1.1 Maintain residential user pay garbage collection Maintained. Currently 1 can limit.
10.1.2 Continue to provide grants to non-profit repair and reuse organizations Maintained.
10.1.3 Continue to operate reusable goods salvaging area at Hartland landfill Maintained. Operated in cooperation with local non-profit organizations.
10.1.4 Continue with Awards Recognition Program Continued. Currently referred to as the EcoStar award program.
10.1.5 Continue with Diversion Council Council disbanded in 2002 due to redundancy with other committees.
10.1.6 Maintain the policy that once a viable recycling alternatives have been Maintained. As of January 2012 bans are in place on 20 recyclable material
identified for specific recyclables, that material will be banned from disposal categories.
10.1.7 Maintain $75/tonne tipping fee for approximately 3 years and adjust Complete. Since January 2011, the tipping fee is $107/tonne. Solid waste
thereafter as required programs are funded through tipping fee revenues.
10.1.8 Continue to provide residential curbside recycling service and add new Since 1996 the CRD curbside collection program has expanded to include:
materials when feasible. Continue with drop boxes in rural areas where curbside Cardboard and rigid plastic containers (2000)
services are not provided Pizza boxes and rigid plastic packaging (2005)
Polycoat cartons ( 2012)
In addition, collection of kitchen scraps was piloted in 2007 and 2008.
The drop depot service was cancelled in 2000. However, a CRD recycling depot is
provided in Port Renfrew; and recycling depots operated by local community
associations are located on Galiano, Mayne , Pender , Salt Spring and
Saturna Island . Piers Island has an annual collection event.
10.1.9 Continue to provide apartment recyclables collection and add new materials Direct collection was replaced with a recyclables collection funding program in
when feasible. 2000. CRD provides outreach support, supplies apartment tote bags and pays for
the processing of the container stream.
10.1.10 Continue to operate depots at established locations The addition of mixed paper, cardboard and plastics to the curbside program in
2000 made the depots redundant and funding was discontinued in 2001.
10.1.11 Discontinue plaza recycling depot program Complete.
10.1.12 Continue to provide a recycling depot at the landfill and add new materials In 2012, there are 25 product categories and 80 products/materials that can be
when feasible recycled at Hartland.
10.1.13 Continue to provide operating grants to Salt Spring and Southern Gulf Continued. (see item 10.1.8)
Islands recycling depots
10.1.14 Continue telephone book recycling program Discontinued in 2012. Telephone directories are accepted in the curbside recycling
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1995 Solid Waste Management Plan Component Implementation Status
program.
10.1.15 Develop a diversion credit program Requested proposals to receive diversion credits for mattresses, asphalt shingles
and household batteries. No proposals received. No further initiatives are planned.
10.1.16 Monitor residential demand for home composters and initiate additional Over 27,000 home composters were distributed between 1992 and 2007. Units
distribution when required continue to be offered through CRD-funded Victoria Compost Education Centre.
10.1.17 Discontinue apartment worm composter distribution program Complete
10.1.18 Continue to promote worm composting in schools Worm composting in schools continues to be promoted through the Greater
Victoria Compost Education Centre (GVCEC).
10.1.19 Continue to provide funding to the Greater Victoria Compost Funding is provided to GVCEC through a service agreement.
Education Centre
10.1.20 Move composting operation to the north side of the landfill site and, The composting operation was moved to the north side of the landfill (Willis
subject to funding and Board approval, establish an agreement with a private Point) but the CRD Board did not ratify the agreement for the in-vessel
corporation to construct and operate an in-vessel composting plant composting plant. In 2002 the composting operation was discontinued and
yard and garden waste is instead collected at the bin area, ground and used
onsite. The yard and garden waste drop-off service continues.
Instead of pursing in-vessel composting, the CRD regional composting bylaw
was approved in December 2005 to set the stage for private composting
facilities. Presently, there is one licensed in-vessel composting facility in the
CRD.
Hartland Landfill
10.1.21 Upgrade the gas collection system and potentially modify to allow for A revenue-generating landfill gas-to-electricity system has been constructed
energy recovery and began operating at Hartland landfill in January 2004. Gas utilization
generates energy requirements for 1,600 homes
10.1.22 Establish a quarrying operation to provide aggregate for internal use On-going, as required.
10.1.23 Continue to accept screenings and waste sludge as controlled waste On-going.
10.1.26 Continue to accept non-anatomical biomedical waste for disposal. Only non-hazardous and non-anatomical waste from biomedical facilities is
received for disposal at Hartland. Sharps from domestic sources are received as
controlled waste.
10.1.27 Close Phase 1 and open Phase 2 in accordance with plans for the site Complete.
and utilize the property for a number of other solid waste related functions
Disposal
10.1.28 Resolve the issue of including the Highwest Waste Recycler site in An independent technical review of the burning activities at the Highwest
the SWMP by 30 April 1996 Waste Management Facility (HWMF) site was conducted. In 2008, the Ministry
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1995 Solid Waste Management Plan Component Implementation Status
approved SWMP Amendment No. 6 which allows the inclusion of the HWMF
into the SWMP. HWMF operate under a new Operating Certificate as a landfill
and is no longer burning wood waste.
10.1.29 Prohibit the disposal of solid waste at any site within the region other Hartland landfill is the only site in the region that accepts municipal solid waste
than at Hartland landfill and any other sites listed within the SWMP for disposal. The HWMF continues to accept construction and demolition
(C&D) debris under a new operating certificate.
11.1.2 and 11.1.3 Establish Land Clearing Debris receiving centres to No sites established. Given the goal of a total burn ban, no future burn site
accumulate waste, then burn the material under an operating certificate using proposals are anticipated.
an air curtain burner only. Review policy in 1998 with a goal of a total burning
ban by 2000
11.2.2 Examine the banning of yard waste once land clearing debris receiving No receiving centres were established. Yard waste burning continues to be
centres have been established subject to existing local burning bylaws. A chipping pilot was conducted on
Pender Island in 2010.
11.4.2 No burning of CD debris is allowed except at the HWMF Burning of clean wood at the HWMF ceased in 2009.
11.5 Subject to Board approval, possibly purchase air monitoring equipment to Air monitoring equipment was not required because no electoral receiving
monitor air emissions from the HWMF facility and to ensure that the electoral centres were established and the HWMF ceased burning CD waste.
‘receiving centres are operating properly
Other Programs and Activities
10.1.24 Maintain and continue with environmental education programs Maintained. Launched Hartland Learning centre in October 2011
10.1.25 Paint Stewardship Program: Develop a permanent depot system A network of depots, including Hartland, has been established in the region for
within the region paint, pesticides, solvents and flammable liquids.
Other Hazardous Wastes: Work with industry and the province to provide safe On-going rotation of HHW collection events on Gulf Islands. Provide
disposal for batteries, pesticides, herbicides, reactives and corrosives assistance with HHW collection at municipal clean-up events.
12.0 Use a stepped approach to prevent the abandonment of waste materials Step one, circulating storage limit guidelines to industrial property owners, was
collected for recycling implemented in 1996. It has not been necessary to proceed with additional
steps as further incidents of recyclable materials abandonment have not
occurred.
Section 25 of the Environmental Management Act allows regional districts to
license and set operating conditions for various facilities, if desired.
13.0 CRD bylaw restricts the disposal of solid waste at Hartland landfill Bylaw remains in place. In 2007, the CRD Board authorized acceptance of
originating from outside the region and the plan is to only allow the HWMF and out-of-region waste from the CVRD in the event of an emergency.
composting facilities to receive waste from outside the region
14.0 Develop a plan to manage the potentially large amounts of debris that Staff are planning to develop a disaster debris management plan in 2012.
may be produced by a natural disaster
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1995 Solid Waste Management Plan Component Implementation Status
Financial
15.1 Funding for all landfill capital projects will be drawn using available funds All funding for capital projects has been, and continues to be, drawn from these
in Bylaws 1905, 1994, 1604 and 1783 as well as funds generated from sources. In 2008, the Minister approved SWMP Amendment No. 7 to allow for
operations borrowing funds to finance Hartland capital works projects. In 2012, capital
works were funded from the Sustainability Fund.
15.2 All funding for the Solid Waste operating budget is derived from tipping 100% of the Solid Waste operating budget continues to be derived from tipping
fees, the sale of recyclable materials or other revenues generated from fees, the sale of recyclables or other revenues generated from operations.
operations
Amendment 1 (2005) Implementation Status
To allow the Capital Regional District (CRD) to regulate composting in the CRD through the adoption of Bylaw implemented
a regulatory bylaw under Section 25 (3) of the Environmental Management Act.
Amendment 2 (2001) Implementation Status
To allow the Capital Regional District (CRD) to regulate transfer stations on Salt Spring Island through Bylaw implemented
the adoption of a regulatory bylaw.
Amendment 3 (2004) Implementation Status
To modify the legal description of Hartland Landfill to include additional land that was acquired as a buffer strip. Implemented
Amendment 4 (2004) Implementation Status
Add a new Section 16.0 that outlines the CRD’s public review process for solid waste related matters. Implemented
Amendment 5 (2004) Implementation Status
Establishes procedures for resolving conflicts associated with the Hartland Landfill. Implemented
Amendment 6 (2007) Implementation Status
Include the Highwest Waste Management Facility in the SWMP and set operating requirements (replaces Section Implemented
10.1.28 in the Plan). This section includes cessation of burning at the site by the end of 2009.
Amendment 7 (2007) Implementation Status
Replace Section 15.1 of the Plan with “Funding for all Hartland Capital Works will be borrowed through loan Implemented
authorization bylaws or cash flow generated from solid waste operations in accordance with the CRD Solid Waste
Disposal Local Services Establishment Bylaws.”
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3 Plan Area
The Capital Regional District (CRD) is the regional government for 13 municipalities and three electoral
areas, covering an area of 2,341 sq. km on the southern tip of Vancouver Island. A map showing the
administrative boundaries of the CRD is provided in Figure 3-1.
Member municipalities include:
Central Saanich
Colwood
Esquimalt
Highlands
Langford
Metchosin
North Saanich
Oak Bay
Saanich
Sidney
Sooke
Victoria
View Royal
Unincorporated areas are organized into electoral areas. The three electoral areas in the CRD are:
Salt Spring Island Electoral Area;
Southern Gulf Islands Electoral Area, which includes Galiano Island, North Pender Island, South
Pender Island, Saturna Island, Mayne Island, and smaller islands in the vicinity; and
Juan de Fuca Electoral Area, which includes East Sooke, Malahat, Otter Point, Port Renfrew,
Shirley, Willis Point, and inland rural areas.
First Nations communities located within the region include: Beecher Bay, Esquimalt, Malahat,
Pacheedaht, Pauquachin, Penelakut, Songhees, Tsartlip, Tsawout, Tseycum and T’Sou-ke Bands. Each
of these Bands has reserve lands within the boundaries of the CRD as shown in Figure 3-2.
Draft_2012july4 3-1Regional Planning Services
Capital Regional District CAPITAL REGIONAL DISTRICT
534 Yates Street, Victoria BC V8W 2S6
Capital Region Municipalities Tel: (250) 360-3160 Fax: (250) 360-3159
City of Vict oria District of Oak Bay E-mail: regionalplanning@crd.bc.ca
District of Saanich Town of Sidney Web: www.crd.bc.ca
Township of Esquimalt Town of View Royal
District of Central Saanich City of Colwood
District of North Saanich District of Highlands Chemainus Souther n
City of Langford District of Metchosin Gulf
Ga
District of Sooke lia Islands
no EA
Unincorporated Areas (Electoral Areas)
Juan de Fuca EA Salt Spring Island EA
Southern Gulf Islands EA Ma yn e
Salt
Spring
I sland
Duncan Pend er Saturna
EA
Cowichan Valley
Regional District Cowichan Bay
No rth
Mill Bay
Saan ich
Sidne y
JdF Ce ntr al
Port R enfrew
EA Saan ich
17
Capital Regional District Hig hland s
Saan ich
1
Ha
Jua n de Fu ca E A
ro
Langford Oak
S
tr a
Bay
it
Str a Co lwo od Victor ia
it of Sooke
Ju a 14 View
n de
F uc Me tchosin Ro ya l Esquimalt
a
JdF EA
Figure 3-1
Map of Capital Regional District
0 3 6 12 18
Kms.Reserve: Galiano Island 9
Capital Regional District Band #: 650 1st Nation: Penelakut
2011 Pop: 0
Population on First Nations Reserves, 2011
Southern
Gulf
First Nations Reserves within the Capital Regional District are shown on this map. Islands
Data includes Reserve Name, Band #, First Nations name and population.
Source: Statistics Canada 2011 Census, 2006 Census EA
1:400,000 Cowichan Valley
.
Regional District
Kms
0 5 10
Salt Spring
Projection:: Universal Tranverse Mercator, Zone 10, North. North American Datum 83
Island EA
DISCLAIMER
Important This map is for general information purposes only. The Capital Regional District (CRD) makes no representations or warranties
Reserve: Union Bay 4
regarding the accuracy or completeness of this map or the suitability of the map for any purpose. This map is not for navigation. The CRD
Band #: 655 1st Nation: Tseycum
will not be liable for any damage, loss or injury resulting from the use of the map or information on the map and the map may be
2011 Pop: 116
changed by the CRD at any time.
June 2012 | First Nations Reserves 2011.mxd
Reserve: Cole Bay 3
Band #: 652 1st Nation: Pauquachin
Reserve: Gordon River 2 2011 Pop: 322
Band #: 658 1st Nation: Pacheedaht Reserve: Goldstream 13
2011 Pop: 96 Band #: Common Ownership:
Reserve: South Saanich 1
647: 1st Nation: Malahat North Sidney
!
!
Band #: 653 1st Nation: Tsartlip
652: 1st Nation: Pauquachin
2011 Pop: 818 Saanich
!
653: 1st Nation: Tsartlip !
654: 1st Nation: Tsawout
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!
2006 Pop: 0
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Central
JdF EA Saanich Reserve: East Saanich 2
Capital Band #: 654 1st Nation: Tsawout
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2011 Pop: 1,709
!!
Juan de Fuca EA
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Regional Highlands
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Saanich
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View
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District
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Royal
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Langford
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Oak
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Esquimalt
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Bay
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Colwood Victoria
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Reserve: New Songhees 1A
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Sooke
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Reserve: T'Sou-ke Metchosin
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Band #: 656 1st Nation: Songhees
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Band #: 657 1st Nation: T'Sou-ke
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2011 Pop: 1,678
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2011 Pop: 219
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Reserve: Esquimalt
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JdF EA
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Band #: 644 1st Nation: Esquimalt
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2011 Pop: N.A.
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Figure 3-2
!
Reserve: Beecher Bay 1
Reserve: Beecher Bay 2
!
First Nations Reserves in the Band #: 640 1st Nation: Beecher Bay
2011 Pop: 324 Band #: 640 1st Nation: Beecher Bay
CRD 2006 Pop: 0C a pi t al R eg io na l D is tr ic t I SW R MP: S t ag e 1 R e por t
3.1 Population and Growth Estimates
There were approximately 376,000 people residing in the CRD in 20112. Figure 3-3 shows the proportion
of CRD population of each municipality and electoral area. Population growth estimates indicate that the
CRD will grow by 11% by 2021 and by 21% by 2031.3
Figure 3-3 2011 CRD Population by Administrative Area4
Salt Spring Southern Gulf Juan de Fuca, 1% Central Saanich, 4%
Island, 3% Islands, 1%
Colwood, 4%
Indian Reserves, 1%
View Royal, 3% Esquimalt, 5%
Highlands, 1%
Langford, 8%
Victoria, 22% Metchosin, 1%
North Saanich, 3%
Oak Bay, 5%
Sooke, 3%
Sidney, 3%
Saanich, 30%
2 CRD Regional Planning Services
3 Source: http://www.bcstats.gov.bc.ca/StatisticsBySubject/Demography/PopulationProjections.aspx
4 Data source: BC Stats 2011 Census of Population and Housing
Draft_2012july4 3-4C a pi t al R eg io na l D is tr ic t I SW R MP: S t ag e 1 R e por t
3.2 Economic Data
The CRD has a well-diversified economy. Tourism and a large public sector including the Provincial
government offices, universities and colleges and military installations, are the key drivers of this area’s
economy. The area also has a growing technology and health services sector. Retirement living and
residential expansion continue to shape the demographics of this community.
Based on 2006 statistics, the main employment sectors in the CRD are public administration (13% of
employment), health care (12%), retail (11%) and accommodation and food services (9%).5
3.3 Housing
Table 3-1 provides a breakdown of the housing types in the CRD, based on 2006 Statistics Canada data
and building permits for residential structures.6
Table 3-1 Housing in the CRD7
Housing in the CRD (Estimated as of June 2011)
# %
Single Detached Houses 71,511 44.0%
Semi Detached Houses* 26,629 16.4%
Row Houses 10,076 6.2%
Apartments (all types) 52,371 32.2%
Mobile Homes 1,922 1.2%
Total 162,509 100.0%
* includes apartments, duplex
5 Source: BC Statistics Community Profile for Capital Regional District
6 Data provided by the CRD. Does not include housing on First Nation Reserves.
7CRD
Draft_2012july4 3-5C a pi t al R eg io na l D is tr ic t I SW R MP: S t ag e 1 R e por t
4 Characterization of the Solid Waste Stream
This section provides a characterization of the solid waste generated in the CRD, including an estimate of
how much waste is disposed and recycled, and the composition of waste landfilled at the Hartland landfill.
This information, along with the system description in Section 5 provides the baseline for the solid waste
management planning process.
4.1 Composition of Waste Disposed
Figure 4-1 shows the estimated composition, by weight, of the waste landfilled at Hartland based on a
waste composition study conducted at the site in 2009 and 2010. The first chart shows the composition
by type of waste material (paper, glass, organics, etc.). The second chart shows the estimated diversion
potential of what is currently landfilled, including what percentage is potentially recyclable, compostable or
could be managed through an extended producer responsibility (EPR) program. (See more about EPR in
Section 8).
Figures 4-2 to 4-4 show the estimated composition of landfilled waste from each of the main types of
waste generators:
1. Residential Waste;
2. Industrial, Commercial and Institutional (ICI) Waste, which includes garbage generated by multi-
family residential buildings; and
3. Construction and Demolition (CD) Waste.
The data shows that although the detailed composition varies between sectors, in all sectors about three
quarters of the waste being disposed could be recycled or composted.
It should be noted that the information on waste composition in this section reflects only solid waste
disposed at Hartland Landfill.
Draft_2012july4 4-1C a pi t al R eg io na l D is tr ic t I SWRMP: S t ag e 1 R e por t
Figure 4-1 Composition of All Waste Landfilled at Hartland (2009/10), by Weight
Hazardous Waste Electronics
1% 2%
Composite Products
5% Other
Rubber 5% Paper
1%
17%
Glass
Textiles 2% Ferrous Metal
5% 2%
Construction & Non‐Ferrous Metal
Demolition 1%
6%
Plastics
Wood 13%
10%
Organic Waste
30%
Draft_2012july4 4-2C a pi t al R eg io na l D is tr ic t I SW R MP: S t ag e 1 R e por t
Figure 4-2 Composition of Residential Waste Landfilled at Hartland (2009/10), by Weight
Hazardous Waste Electronics
1% 2%
Other
Composite 7% Paper
Products 15%
Rubber Glass
7%
0% 2%
Ferrous Metal
3%
Textiles Non‐Ferrous Metal
6% 1%
Construction &
Demolition
3%
Wood Plastics
4% 14%
Alternative View of the Residential Waste Disposed
Organic Waste
35%
Garbage
25%
Recyclable
42%
Compostable
33%
Draft_2012july4 4-3C a pi t al R eg io na l D is tr ic t I SW R MP: S t ag e 1 R e por t
Figure 4-3 Composition of ICI Waste Landfilled at Hartland (2009/10), by Weight
Hazardous Waste Electronics
1% 2%
Composite Products Other
4% Rubber 4%
1% Paper
21%
Textiles
Construction &
5%
Demolition Glass
3% 2%
Wood Ferrous Metal
6% 3%
Non‐Ferrous
Metal
1%
Plastics
15%
Organic Waste
32%
Alternative View of the ICI Waste Disposed
Garbage
24%
Recyclable
47%
Compostable
29%
Draft_2012july4 4-4C a pi t al R eg io na l D is tr ic t I SW R MP: S t ag e 1 R e por t
Figure 4-4 Composition of Construction & Demolition (CD) Waste Landfilled at Hartland (2009/10), by Weight
rock/sand/dirt
6%
other pallets
4% 5%
carpet and underlay
6%
asphalt shingles
wood shingles
21%
48%
other wood
(contaminated)
other wood (clean) Alternative View of the CD Waste Disposed
9%
1%
Garbage
11%
Recyclable
89%
Draft_2012july4 4-5C a pi t al R eg io na l D is tr ic t I SW R MP: S t ag e 1 R e por t
4.1.1 Change in Overall Waste Composition from 1991 to 2010
Table 4-1 shows the change in overall waste composition between 1991 and 2010 as recycling became
more prevalent as a means of managing solid waste. In particular, as paper and paperboard have been
diverted to recycling, organic waste has become the single largest material component of the waste
landfilled at Hartland. Paper and paperboard, plastics, and wood and wood products remain substantial
portions of the waste stream despite the existence of established diversion programs for those materials.
Table 4-1 Overall Waste Composition in 1991 and 2010
Waste Category 1991 2010
Composition (%) Composition (%)
Paper and Paperboard 39 17
Glass 3 2
Ferrous Metal 6 2
Non-Ferrous Metal 1 1
Plastics 10 13
Organic Waste 19 30
Wood and Wood Products 5 10
Construction and Demolition Material 2 6
Textiles 2 6
Rubber 1 1
Composite Products 2 5
Hazardous Waste 2 1
Electronics n/a 2
Other 8 5
Total 100% 100%
4.2 Disposal and Diversion
The amount of waste landfilled is typically a reflection of two primary drivers: the range of diversion
opportunities (recycling and composting) available for residents and businesses, and the level of
economic activity in the region. Figure 4-5 shows the amount of waste disposed8 and diverted in the
CRD from 1989 to 2011. The figure shows a significant reduction in the amount of waste sent to landfill
during the 1990s, but that this trend stopped from 2000 to 2005. In more recent years, 2006-2011, the
downward trend has resumed. Figure 4-6 shows the annual per capita waste disposed at Hartland
Landfill from 1989 to 2011. During this time, the CRD has reduced the per capita disposal from 0.67
tonnes per capita per year down to 0.36 tonnes per capita (Hartland Landfill only); a reduction of 46%.
8 At Hartland Landfill
Draft_2012july4 4-6C a pi t al R eg io na l D is tr ic t I SW R MP: S t ag e 1 R e por t
Figure 4-5 Disposal and Diversion (1989-2011)
Figure 4-5 shows two types of diversion: quantitative and qualitative. Quantitative diversion represents
data collected from CRD and municipal programs. Table 4-2 provides a list the programs and facilities
that contributed to the quantitative diversion shown in Figure 4-5. Qualitative diversion represents an
estimate of the diversion activities by the ICI sector plus the impact of policies and programs that
encourage waste reduction, such as promotion of backyard composting. The uppermost line of the graph
was established using the CRD’s 1989 per capita waste disposal rate of 0.67 tonnes per year multiplied
by the population for each year from 1989 to 2011.
Draft_2012july4 4-7C a pi t al R eg io na l D is tr ic t I SW R MP: S t ag e 1 R e por t
Per Capita Disposal
0.70
0.60
0.50
0.40
0.30
0.20
0.10
0.00
1989
1990
1991
1992
1993
1994
1995
1996
1997
1998
1999
2000
2001
2002
2003
2004
2005
2006
2007
2008
2009
2010
2011
Figure 4-6 Per Capita Tonnes of Waste Landfilled at Hartland (1989-2011)
4.2.1 Disposal and Diversion of CD Waste
An estimated 25,000 tonnes of CD waste was landfilled in 2011 at the Tervita Highwest Landfill; a
privately owned landfill that receives only non-putrescible waste. Recycling and reuse of CD waste is
primarily handled by the private sector, and as such diversion data for this type of waste is not publicly
available. It is believed that a significant portion of CD waste is recycled or used as a fuel substitute.
4.2.2 Import and Export of Waste
In addition to the waste disposed at the Hartland Landfill and the Tervita Highwest Landfill, there is some
export of waste to private landfills outside of the CRD. Waste is also believed to be imported into the
CRD from private haulers that provide service in the Cowichan Valley Regional District. Although the
specific quantity of export and import of waste is not known, the volume is believed to be negligible.
Draft_2012july4 4-8C a pi t al R eg io na l D is tr ic t I SW R MP: S t ag e 1 R e por t
Table 4-2 2011 Quantitative Diversion
Mixed Containers 2
Plastic (large rigid)
Plastic Containers
Glass Containers
Metal Containers
Metal Appliances
Asphalt Shingles
Miscellaneous 4
Propane Tanks
HHW Orphans
Oil, Filters and
Product Care 3
Mixed Fibres 1
Wood Waste
Mixed Paper
Food Waste
Yard Waste
Newspaper
Plastic Film
Mattresses
Electronics
Containers
Program
Cardboard
Antifreeze
Batteries
Drywall
Metals
Toilets
Books
Total
Tires
Curbside Collection (Blue Box/Bag Recycling / Household Organics)
Saanich 5,091 1,659 6,750
Victoria 2,096 723 2,819
Oak Bay 954 311 188 1,453
Esquimalt 723 255 978
Central Saanich 1,095 359 1,454
Langford 1,122 382 1,504
North Saanich 686 229 915
Colwood 784 267 1,051
Sidney 411 137 548
Sooke 439 149 588
View Royal 345 120 260 725
Metchosin 239 81 320
Highlands 120 40 160
Juan de Fuca EA 347 118 465
Total 14,452 4,830 448 19,730
Other Recycling
Apartment Containers 294 294
Oak Bay Recycling Depot 159 115 26 5 305
Total 159 115 26 294 5 599
Hartland Diversion Programs
Recycling 178 151 42 948 48 416 265 127 739 156 120 3 52 87 1,358 706 4 5,400
HHW 5 56 52 32 165 18 328
Total 178 151 42 5 948 56 48 416 265 52 127 739 156 32 120 3 165 18 52 87 1,358 706 4 5,728
Electoral Area Recycling Depots
Salt Spring Island Depot 232 134 142 41 50 2 7 34 58 39 11 26 3 11 790
Pender Island Depot 53 40 3 2 4 49 12 4 7 1 34 209
Mayne Island Depot 49 21 3 10 29 23 135
Galiano Island Depot 5 17 23 44 5 7 1 2 104
Saturna Island Depot 2 9 8 1 4 2 >1 26
Port Renfrew 21 6 38 2 67
Total 60 307 226 21 193 50 69 6 4 7 39 174 39 2 12 17 33 4 68 1,331
GRAND TOTAL 60 644 492 14,473 193 50 95 5,172 5 948 60 48 423 304 448 52 127 913 195 34 132 25 198 18 56 87 1,358 706 72 27,388
1 Includes new spaper, cardboard and mixed paper
2 Includes metal cans, glass bottles and jars and plastic containers and packaging
3 Product Care includes paint at all depots, pesticides/solvents and fluorescents/CFLs at Hartland and Salt Spring Island depots
4 Includes: cooking oil, Stryofoam and reusable goods at Hartland, milk cartons and Styrofoam on Salt Spring Island; deposit containers on Pender and Mayne Islands
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