Embed Size (px)
Citation preview
THE REGIONAL MUNICIPALITY OF PEEL
WASTE MANAGEMENT STRATEGIC ADVISORY COMMITTEE AGENDA WMSAC - 1/2017 DATE: January 19, 2017 TIME: 11:00 AM – 1:00 PM LOCATION: Regional Council Chamber, 5th Floor Regional Administrative Headquarters 10 Peel Centre Drive, Suite A Brampton, Ontario MEMBERS: F. Dale; A. Groves; J. Innis; J. Kovac; M. Mahoney; M. Palleschi; C.
Parrish; K. Ras; R. Starr 1.
ELECTION OF CHAIR AND VICE CHAIR
2.
DECLARATIONS OF CONFLICT OF INTEREST
3.
APPROVAL OF AGENDA
4.
DELEGATIONS
5.
REPORTS
5.1.
Anaerobic Digestion Facility Siting Update
6. 6.1 6.2
COMMUNICATIONS Norman Lee, Director, Waste Management, Project/Issue Update dated January 2017, Strategy for a Waste Free Ontario: Building The Circular Economy (Receipt recommended) Norman Lee, Director, Waste Management, Project/Issue Update dated January 2017, One Million Tonnes of Marketed Recyclable Materials (Receipt recommended)
7.
IN CAMERA MATTERS
8.
OTHER BUSINESS
WMSAC 1/2017 -2- Thursday, January 19, 2017
9.
NEXT MEETING Thursday, March 2, 2017, 11:00 a.m. – 1:00 p.m. Regional Administrative Headquarters Council Chamber, 5th Floor 10 Peel Centre Drive, Suite A Brampton, Ontario
10.
ADJOURNMENT
REPORT Meeting Date: 2017-01-19
Waste Management Strategic Advisory Committee
DATE: January 10, 2017
REPORT TITLE: ANAEROBIC DIGESTION FACILITY SITING UPDATE
FROM: Janette Smith, Commissioner of Public Works
RECOMMENDATION That staff continue to search for a suitable site for the Region of Peel’s planned anaerobic digestion facility; And further, that the staff expand the search beyond the Cities of Brampton and Mississauga to include the Town of Caledon and properties outside of Peel in co-operation with the local municipality as described in the report from the Commissioner of Public Works, titled “Anaerobic Digestion Facility Siting Update”. REPORT HIGHLIGHTS
At a special meeting held on October 8, 2015, Regional Council approved a plan to develop a 120,000 tonne per year Anaerobic Digestion (AD) Facility to be constructed at a new site located in either the City of Brampton or the City of Mississauga to enable organics to be delivered directly to the facility (resolution 2015-742).
Site search for the AD Facility began in late 2015. Working with Peel’s Real Estate division, staff assessed the suitability of 149 properties, eleven of which passed a preliminary assessment. Negotiations to acquire three of the most suitable properties were initiated but none resulted in a successful deal.
The GTAA has indicated that a proposal to locate the AD Facility at a new site within the airport’s Primary Bird Hazard Zone (PBHZ) may not be approved. Since the PBHZ covers much of the industrially-zoned land in Brampton and Mississauga, eliminating the PBHZ from the site search has extended the time required to find a suitable site.
The original project schedule required that the site be identified by November 2016, which has not happened. The project will be delayed until the issue of siting is resolved.
Staff assessed a number of options to reduce or eliminate the delay but each option came with its own risks so staff recommends continuing to search for a suitable site.
Staff will continue to search for a suitable site and may expand the search beyond the Cities of Brampton and Mississauga to include the Town of Caledon and properties outside of Peel in co-operation with the local municipality.
Staff will provide a further update on the site search to Waste Management Strategic Advisory Committee no later than Fall 2017.
5.1-1
ANAEROBIC DIGESTION FACILITY SITE UPDATE
- 2 -
DISCUSSION 1. Background
In 2014, Regional Council endorsed the Waste Management Infrastructure Development Plan which included a new Anaerobic Digestion (AD) Facility to process Peel’s organics material stream (resolution 2014-626). In 2015, Regional Council approved a plan to develop a 120,000 tonne per year AD Facility to be located at a new site in either the City of Brampton or the City of Mississauga to enable organics to be delivered directly to the facility (resolution 2015-742).
2. Property Search Update
Staff began the search for a suitable site for the AD Facility in 2015. Peel’s Real Estate Division identified available industrial and commercial properties in the Cities of Brampton and Mississauga. Waste Management staff evaluated the suitability of these properties by applying the technical, planning, environmental, social and financial criteria set out in Appendix I of this Report.
To date, a total of 149 properties have been identified and evaluated for suitability. Eleven properties satisfied the suitability criteria, some to a greater degree than others. Steps to acquire three of the most suitable properties were initiated but were terminated; in one case due to a conflict with the Greater Toronto Airport Authority (GTAA)’s bird hazard risk policies (explained below) and in two cases the owners decided not to sell the property for private business reasons. Staff consulted with the GTAA regarding a potential site for the AD Facility located within close proximity to Pearson International Airport (the ‘Airport’). From this consultation, staff learned that flight traffic at the Airport is increasing and so to minimize the potential risk of bird strikes to aircraft, the GTAA is now applying a more rigorous assessment of risk when reviewing new proposed developments within the Primary Bird Hazard Zone (PBHZ), shown in Figure 1. Within the PBHZ, aircraft arriving at or departing from the airport are flying at low elevations and are more vulnerable to bird strikes, which can have serious or catastrophic consequences. Proposed new developments considered to be potentially attractive to birds for food, nesting or perching, are assessed for their impact on the risk of bird strikes. GTAA staff indicated that proposals to locate the AD Facility in close proximity to the Airport would not be approved. GTAA staff did offer that proposals to locate the AD Facility near the periphery of the PBHZ would be considered on a case-by-case basis and may be permitted if the risk of bird strikes can be effectively mitigated. Staff continues to work with the GTAA to clarify the components of a mitigation approach that would enable the AD Facility to be located at the periphery of the PBHZ. The PBHZ covers a large portion of the industrially zoned land within the Cities of Brampton and Mississauga. Since the GTAA is likely to reject proposals to locate the AD Facility at any site within the PBHZ and in close proximity to the Airport, much of the suitably zoned land in Brampton and Mississauga must be excluded from the AD Facility site search. Excluding the PBHZ from the site search will extend the time required to find a suitable site.
5.1-2
ANAEROBIC DIGESTION FACILITY SITE UPDATE
- 3 -
Figure 1: GTAA’s Primary Bird Hazard Zone Map
5.1-3
ANAEROBIC DIGESTION FACILITY SITE UPDATE
- 4 -
In addition to the challenges presented by the various airport and planning policies, the real estate market has seen unprecedented high demand recently. The particular type of industrial property being sought for the AD facility is in very high demand in the market, with very limited supply and highly competitive purchasers. The original project schedule required that the site be identified by November, 2016 so that the procurement process could be completed in time to bringing a report recommending a contract award to this term of Regional Council. The procurement process will be delayed until the siting issue is resolved and it is now unlikely that the process can be completed within this term of Regional Council. To manage the delay, staff considered the following options:
developing the AD Facility at the Peel Integrated Waste Management Facility (PIWMF) site;
inviting the private sector to supply a site for the AD Facility through the procurement process; or,
continuing and expanding the site search. The options are described in the following sections. a) Develop AD Facility at PIWMF Site
An AD facility to process 120,000 tonnes per year of organics can be accommodated at the PIWMF site but it would displace either the Material Recovery Facility (MRF) or the composting facility and the waste transfer station, as shown on Figure 2 below. If the MRF is to be displaced by the AD Facility, replacement processing capacity for the entire tonnage of Peel’s recyclables will be required. Staff has surveyed existing MRFs and have determined that replacement capacity currently does not exist. Staff is not aware of any new MRF capacity being developed in proximity to Peel. Investment in new MRF capacity in the province is largely on hold until uncertainties surrounding the implementation of the Waste Free Ontario Act (Bill 151) are resolved. Displacing the existing MRF is therefore not recommended at this time. If the composting facility and waste transfer station are displaced by the AD Facility, interim garbage transfer and organics transfer and processing services will be required during the period of AD Facility construction. Securing interim organics transfer services will be difficult since no private waste transfer station in Peel is permitted to receive municipal organic waste. There may be interest in the marketplace to develop a facility to transfer Peel’s organics, but only if suitable contract terms are offered by Peel. This would represent a significant risk for Peel until the province provides more details regarding the Organics Action Plan which is identified in Bill 151. Displacing the existing organics facility is therefore not recommended at this time.
5.1-4
ANAEROBIC DIGESTION FACILITY SITE UPDATE
- 5 -
Figure 2: AD Facility located at the PIWMF site
Further, as indicated above, the PIWMF site is within the PBHZ so the proposed development would be subject to approval by the GTAA. Staff will continue to engage with the GTAA to determine their support for developing an AD Facility at the PIWMF site in case this option has to be reconsidered in the future but the level of GTAA support is unknown at this time. Finally, the approved Waste Management Infrastructure Development Plan reserves the PIWMF site for a future facility for processing Peel’s garbage streams in order to meet the 3Rs and total diversion targets. Locating the AD Facility at the PIWMF would create the need for an even more difficult search to find a new site for the garbage processing facility. For all the above reasons, staff recommends against locating the AD Facility at the PIWMF site at this time.
5.1-5
ANAEROBIC DIGESTION FACILITY SITE UPDATE
- 6 -
b) Private Sector Supplied Site
Staff considered whether the challenge of finding a suitable site could be transferred to the private sector. Two approaches were identified and assessed:
expand the procurement of a Region-owned facility to also include a site; and,
procure long-term processing capacity at a privately-owned facility. In the first approach, the requirement to find a site for the Region-owned AD Facility, and to transfer ownership of the site to the Region, would be included in the procurement process. If Peel requires the site to be within the Region of Peel, respondents will likely experience similar challenges in acquiring a suitable site. If the site location is left open, the site will likely be located outside of the Peel Region. If the AD Facility is located outside of Peel Region an organics transfer station located in Brampton or Mississauga would be required. Locating the AD Facility outside of Peel could invite opposition from the host community (unless the host community were a partner in the Facility) and would cause the economic benefit and jobs associated with the Region’s investment in the AD Facility to benefit the host community more so than Peel. And finally, including the requirement to supply a site would increase the cost, risk and complexity of the procurement for proponents and a significant reduction of interest and competition could result. In the second approach the procurement would be for long-term processing capacity only and both the site and the facility, or facilities, would be privately owned. No existing organics processing facility in proximity to Peel could accommodate the Region’s projected organics tonnage and few existing facilities are permitted to receive an organics stream that includes an expanded list of materials that includes diapers and similar items. Therefore, the procurement is likely to produce a new, or significantly modified existing, privately-owned facility located outside of Peel. The second approach creates the possibility of several undesirable outcomes. The cost of the new facility would be passed on to Peel through tipping fees, causing the Region to bear the costs of developing the facility without the control and security of owning the asset. Further, the Region may not be able to accrue the same carbon reduction and other environmental benefits associated with organics diversion if the organics are managed at a private facility. And finally, a long-term processing contract would expose the Region to the risk of service disruptions in the event that the private facility is unable to control odours or otherwise maintain the technical or financial conditions needed for successful operation. Staff does not recommend considering either approach until, and unless, all other options for securing a suitable site within Peel are exhausted without success. In the meantime, staff will conduct market sounding interviews with industry leaders and project developers to determine if a procurement process, which includes a siting component, is a viable option for the AD Facility procurement.
5.1-6
ANAEROBIC DIGESTION FACILITY SITE UPDATE
- 7 -
c) Continue the Site Search
Continuing the site search for the AD Facility was also considered and would include the following:
continue to evaluate the suitability of properties as they become available on the market; and,
identify properties that best satisfy the suitability criteria and ask the owners if they are willing to sell.
Further, if continuing the search as described above fails to identify available and suitable properties, the search may be expanded by:
relaxing the site suitability criteria by giving more consideration to properties requiring rezoning (if otherwise suitable);
expanding the search to include properties in the Town of Caledon and elsewhere in the Region that may not enable direct delivery of all organics (in which case organics transfer capability would be required); and,
exploring opportunities to partner with neighbouring municipalities.
With respect to expanding the site search to include the Town of Caledon; searching for a suitable site in Caledon faces challenges different from but no less significant than those faced in Brampton or Mississauga. The availability of properties with industrial zoning that permits waste processing is extremely limited. Available properties are likely to require rezoning which may not be possible, particularly in the large areas of Caledon covered by the Niagara Escarpment Plan, the Oak Ridge Moraine Conservation Plan, and the Greenbelt Plan. Also, access to the water, sewer and natural gas services required to support the AD Facility are not available in much of Caledon. Staff will consider sites in Caledon requiring rezoning if all other property suitability criteria are satisfied. Staff will also re-assess the transfer of organics, from the PIWMF site or some other location(s) within Peel, to an organics facility located outside of the Cities of Brampton and Mississauga where direct delivery of organics may not be practical.
Continuing and expanding the site search as described above should identify more available and suitable properties which should increase the likelihood of acquiring a site for the AD Facility. Therefore, and with consideration of the other options previously described, staff recommends continuing an expanded search for a site for a Region-owned AD Facility.
5.1-7
ANAEROBIC DIGESTION FACILITY SITE UPDATE
- 8 -
CONCLUSION Staff considered a number of options for meeting the challenge of securing a site for the AD Facility. Staff recommends continuing the search for a site for the AD Facility and expanding the site search by using relaxed suitability criteria and including the Town of Caledon and properties outside of Peel Region in co-operation with the local municipality, as described in this report. Staff will provide a further update on the site search to Waste Management Strategic Advisory Committee no later than Fall 2017.
Janette Smith, Commissioner of Public Works Approved for Submission:
D. Szwarc, Chief Administrative Officer APPENDICES
Appendix I: AD Facility Site Suitability Criteria For further information regarding this report, please contact Brian van Opstal, Manager, Infrastructure Development, Waste Management, extension 4534, [email protected].
5.1-8
APPENDIX I ANAEROBIC DIGESTION FACILITY SITING UPDATE
AD Facility Site Suitability Criteria
Major Criteria Sub-Criteria Group Description
Technical
Site and its location provide for an efficient design of the AD Facility and the efficient operation of the waste management system.
Developable Area Amount and configuration of developable area accommodates an efficient design of the AD Facility including all associated structures.
Utility Connections Ability to connect to existing water, sewer, natural gas and electricity services with sufficient, available capacity.
Waste Management System Operational Efficiency
Located close to the centroid of organics generation to minimize transportation and handling required to convey organics from the curb to the facility.
Truck Access Safe and efficient movement of vehicles entering or leaving the site and close proximity to a major road.
Planning
Regulation of intended use in policies and plans of external agencies
Municipal Policies Ability to comply with land use policies including official plans, zoning and separation requirements.
Federal and Provincial Policies
Ability to comply with existing Federal or Provincial policies applicable to the intended use.
Planned Projects Not in an area identified for future public sector project such as transit or other infrastructure.
Environmental
Minimize potential impacts on the natural environment.
Potential to impact areas designated as environmentally significant
Located so as to minimize potential impacts on areas designated as environmentally significant, such as Areas of Natural and Scientific Interest, Environmentally Sensitive Areas, fisheries, conservation lands source water protection areas. Includes consideration of impact mitigation.
Green House Gas (GHG) emissions
Located so as to minimize GHG emissions from collection and haulage vehicles.
5.1-9
APPENDIX I ANAEROBIC DIGESTION FACILITY SITING UPDATE AD Facility Site Suitability Criteria
5.1-10
January 2017
Strategy For A Waste Free Ontario: Building The Circular Economy
This project update for Regional Council pertains to the recently released final draft “Strategy for a Waste Free Ontario: Building the Circular Economy”. The Strategy provides a framework for recovering resources and reducing waste in Ontario and implementing the recently approved Waste Free Ontario Act. Background On November 26, 2015, the provincial government introduced Bill 151, the Waste Free Ontario Act (WFOA) and an accompanying draft “Strategy for a Waste Free Ontario: Building the Circular Economy” (the draft Strategy). Staff was engaged in the review of the WFOA and the draft Strategy and developed comments, which were presented to the Waste Management Strategic Advisory Committee on February 18, 2016 and approved by Regional Council on March 10, 2016 (Council Resolution 2016-209) before being sent to the province. WFOA Proclamation and Final Draft Strategy On November 30, 2016, the Waste Free Ontario Act was proclaimed. On December 16, 2016, the final draft of the Strategy was released for comment. The 45-day comment period ends on January 30, 2017. Staff is working diligently with our counterparts across the province to review the final draft of the Strategy and prepare comments to the province. These comments will be included in a verbal update staff is preparing for the January 19, 2017 meeting of the Waste Management Strategic Advisory Committee. The final draft of the Strategy can be found on the Environmental Registry at: https://www.ebr.gov.on.ca/ERS-WEB-External/displaynoticecontent.do?noticeId=MTMxMjM2&statusId=MTk4OTcx&language=en If you have any questions, please contact me directly at 905-791-7800 ext. 4703 or by email at [email protected] Norman Lee, Director Waste Management CC: D. Szwarc, CAO
J. Smith, Commissioner Public Works
6.1-1
January 2017
Janette Smith, Commissioner of Public Works, Region of Peel, 905-791-7800 ext. 4395
Waste Management One Million Tonnes of Marketed Recyclable Materials Staff is pleased to report that as of the week of December 12th, 2016, the Region recovered and marketed one million tonnes of recyclable materials over a ten year period at its Material Recovery Facility (MRF) located at Peel Integrated Waste Management Facility (PIWMF). To celebrate this milestone, a special one hour event was held at the MRF on December 15th, 2016 with a number of staff, current and previous MRF processors and other stakeholders. Of interest, please see the following web link for a Brampton Guardian news report: http://www.bramptonguardian.com/news-story/7034251-peel-recycling-facility-has-sorted-equivalent-of-182-000-elephants-in-last-decade/ In addition, staff has developed a number of poster boards for a display which members of Council can view outside of Council chambers on January 19th at the Waste Management Strategic Advisory Committee and / or on February 9th at Regional Council. Attached are copies of the posters. These poster boards help demonstrate the significance of this achievement. Council is encouraged to view the poster boards and speak with staff at the display. If you have any questions, please contact me directly at 905-791-7800 x4703 or by email at [email protected]
Norman Lee, Director Waste Management CC: D. Szwarc, CAO
J. Smith, Commissioner Public Works
6.2-1
Janette Smith, Commissioner of Public Works, Region of Peel, 905-791-7800 ext. 4395
6.2-2
Janette Smith, Commissioner of Public Works, Region of Peel, 905-791-7800 ext. 4395
6.2-3
Janette Smith, Commissioner of Public Works, Region of Peel, 905-791-7800 ext. 4395
6.2-4
Strategy for a Waste-Free Ontario Building the Circular Economy
Norman Lee Director, Waste Management
Region of Peel
1 1 1
Waste Management Strategic Advisory Committee
January 19, 2017
Todays Presentation
Provincial Strategy Final Draft issued for comment
Provincial Strategy Proposed Circular Economy
Provincial Strategy Vision and Goals
Provincial Strategy Objectives and Actions
Provincial Strategy Proposed Timelines
Key Implications for Peel
Recommended Comments by Peel
Next Steps
2
Provincial Strategy Final Draft Issued for Comments
3
In December 2015 the province introduced: Waste-Free Ontario Act Strategy for a Waste-Free Ontario:
Building the Circular Economy
The Waste-Free Ontario Act has since been adopted and promulgated
In December 2016 the province issued the final draft, Strategy for a Waste-Free Ontario Building the Circular Economy Comments are due January 31, 2017
Provincial Strategy Proposed Circular Economy
4 Source: December 2016 Final Draft Strategy for a Waste-Free Ontario: Building a Circular Economy
Provincial Strategy Vision and Goals
Vision The vision for Ontario is one
where waste is seen as a resource that can be recovered, reused and reintegrated to achieve a circular economy.
Goals The goals are to achieve:
A zero waste Ontario. Zero greenhouse gas
emissions from the waste sector.
5 Source: December 2016 Final Draft Strategy for a Waste-Free Ontario: Building a Circular Economy
Provincial Strategy Objectives and Actions
6 Source: December 2016 Final Draft Strategy for a Waste-Free Ontario: Building a Circular Economy
Provincial Strategy Proposed Timelines
7 Source: December 2016 Final Draft Strategy for a Waste-Free Ontario: Building a Circular Economy
Key Implications for Peel
Proposed strategy is well aligned with Peel’s 75% 3Rs target.
Producer Responsibility and Organics Action Plan will have operational impacts for Peel.
Blue Box, MHSW, WEEE and Used Tires will transition to Producer control under new Act Producers will be responsible for 100% of the cost of the program. Producers will determine how to design and operate the program. Peel could be a service provider for collection and / or processing.
New Materials will be designated for EPR over time.
Organics Action Plan could require new collection and / or processing elements.
8 Subject to negotiations between producers and service providers
Recommended Comments by Peel
9
In general, Peel supports:
The finalization and issuance of the Provincial Strategy.
The move to a circular economy.
The development of provincial policy statements.
The move to 100% EPR.
The use of disposal bans.
The inclusion of interim targets.
The development of an Organics Action Plan.
The designation of additional materials for EPR.
The harmonization of materials collected across Ontario to facilitate Promotion and Education.
Approvals modernization.
See January 19, 2017 draft letter to MOECC for all 22 comments
Recommended Comments by Peel (continued)
10
Peel also:
Acknowledges the need for producers to control EPR programs.
Requests that the Province show expected contribution to interim targets by Residential and ICI sectors.
Requests that the Blue Box transition occur prior to implementation of any organics ban.
Requests details on which materials will be designated for EPR and when.
Requests more clarity on the timing of initiatives.
Recommends early disposal bans for materials where diversion programs and processing capacity exist.
Recommends that disposal bans prevent “export for disposal outside of Ontario”.
Requests that Cap and Trade funding be made available for diversion activities that reduce GHG.
Recommends that components of the Strategy be implemented in a way that promotes fair and open competition.
Requests continued consultation with Peel and other municipalities.
See January 19, 2017 draft letter to MOECC for all 22 comments
Next Steps
Feedback on recommended comments is appreciated.
Staff will bring a report with recommended comments directly to Council on February 9, 2017.
11
