COUNTY OF SIMCOE
To:
COMMITTEE OF THE WHOLE
Section:
Corporate Services – Solid Waste Management
Item Number:
CCW 15-180
Meeting Date:
May 26, 2015
Subject:
Solid Waste Management Strategy Update – Current Status Report
Recommendation:
THAT the general process for updating the Solid Waste Management Strategy continue as outlined
within Item CCW 15-180;
AND THAT the proposed timeline of the Strategy update be approved as outlined in Item CCW 15-180.
Executive Summary:
The County’s Solid Waste Management Strategy (Strategy), approved by County Council in 2010,
provides a framework for both short- and long-term diversion and waste disposal programs for the next
twenty years. With a mandate to encourage and increase diversion, more than twenty-five of the
Strategy’s major recommendations have been undertaken. An update was recommended to be
completed at various times throughout the Strategy’s planning period as detailed timelines could not
realistically be developed beyond a 5-year period. The first update was begun in 2015 and will be
undertaken in a series of three reports outlining the current state of the waste management system and
performance, potential options and initiatives, re-evaluation of performance targets, and final approval.
Report No. 1 – Current Status Report, is provided with this Item as a summary of initiatives undertaken
since 2010 and resulting performance of our waste management system. It will serve as a benchmark
for moving forward. Highlights include – successful standardization of collection services throughout
the County, preservation of existing County landfill capacity through system modification and garbage
export, and establishment of many innovative diversion programs at waste management facilities. The
result has been stable diversion performance (59.0% in 2014 – unaudited), with the County consistently
ranking in the top ten of Ontario municipalities reporting to Waste Diversion Ontario.
Although there has been much success, the report outlines that the County’s diversion rate is relatively
stagnant, with no significant increase since the inception of the green bin program in 2008. Initial 2015
audit data suggests this is due to decreasing capture of source-separated organics at the curb (37% in
2015, down from 44% in 2012). This equates to 43% (by weight) of curbside garbage being comprised
of green bin material that could have been diverted through our existing program.
May 26, 2015
Committee of the Whole CCW 15-180
2
The per capita waste generation rate has increased 18% since 2010 (+3.6% per year), failing to meet
the Council-approved target of a minimum 1% annual decrease. Given the 2015 audit data, diversion
statistics, and increasing waste generation, it is apparent the two diversion targets set for 2020 (71%)
and 2030 (77%) cannot be met without substantial system changes.
Going forward, the Strategy update will now shift focus to the future, providing guidance on the next set
of 5-year initiatives. It is anticipated that various options and initiatives will be presented to County
Council, each outlining their potential impact on diversion, the waste generation rate, securing longterm disposal/processing, and/or changes to services. With this, Council will be given the opportunity
to re-evaluate performance targets and provide direction. It is recommended that as the update
process moves forward, it remain flexible to align with pending provincial legislation, set to replace the
existing Waste Diversion Act. This new/revised version of the Waste Reduction Act (Bill 91, 2013) is
anticipated to outline new extended producer responsibility measures which will significantly impact
Ontario municipalities and their diversion programs.
With Council direction, the update will continue with procuring of consulting services, moving towards
presentation of potential options and initiatives in late 2015.
Background/Analysis/Options:
The County’s Solid Waste Management Strategy (Strategy) was approved by County Council in 2010
and provides the framework for both short- and long-term diversion and waste disposal programs. Its
vision emphasises a commitment to diversion and reducing the demand for disposal of residual waste.
In addition, it outlines a mandate to ensure secure and cost-effective long-term processing or disposal
capacity. An update was recommended to be completed at various times throughout the Strategy’s
planning period as detailed timelines could not realistically be developed beyond a 5-year period.
This first update of the Strategy was initiated in early 2015, with County Council approving a general
process and timeline for the review. Given the scope of the Strategy, the update will be multi-staged
and comprehensive, provided in a series of three main reports to County Council:
Report No. 1 – Current Status Report
Report No. 2 – Potential Options and Initiatives
Report No. 3 – Approved Recommendations and Initiatives
Report No. 1 – Current Status Report
Report No. 1 is intended to act as a baseline – an overview of the current status of the County’s waste
management system and summary of performance. For reference, the report entitled “Strategy 5-Year
Update – Current Status Report”, is attached as Schedule 1. In addition, supporting documentation on
related Staff reports presented to County Council since 2010 and subsequent direction is attached as
Schedule 2.
The purpose of this Item is to:

outline the initiatives that have been undertaken since the Strategy’s inception and document
the successes, challenges, and deferred tasks;

document the County’s current waste generation patterns and composition, diversion rates, and
volumes of residual waste currently being managed; and

present a revised process and timeline for the update in consideration of pending provincial
legislation.
May 26, 2015
Committee of the Whole CCW 15-180
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Key Highlights
As outlined in the report, many of the Strategy’s key 5-year initiatives have been completed. These
include:
 transition to a new 7-year County-wide collection contract in 2013. Overall, this contract has
brought consistency and positive response from residents and represents a signification cost
savings of $2.6 million annual compared with previous collection costs;
 provision of standardized special collections (leaf and yard waste, Christmas trees, and bulky
items) throughout the County;
 development of a call-in bulky collection service, operating on a fee-for-service basis, which now
allows the collection contractor to sort items and determine if they can be reused or recycled;
 development of Industrial, Commercial & Institutional diversion programs – including the
collection of recycling and source-separated organics at municipal buildings and elementary
schools throughout the County;
 continued commitment to environmental stewardship as demonstrated by landfill remediation
projects (e.g. Site 25 – Creemore);
 provision of larger blue boxes and the addition of new plastic materials to the curbside recycling
program. This resulted in an immediate increase in blue box recycling capture;
 enhancements such as the installation of additional scales and improved site layouts at waste
management facilities. This has reduced wait times and improved traffic flow, ultimately
encouraging greater participation in drop-off diversion programs (Sites 2, 10, 16 and 24);
 development of additional diversion programs – such as mattresses, bulky rigid plastics, and
window glass – at all waste management facilities. There are now 19 innovative on-site
diversion programs offered, with in-house processing of materials such as wood and asphalt
shingles;
 ongoing development of two large infrastructure projects – a Materials Management Facility (for
transfer of garbage, organics, and recycling) and an Organics Processing Facility;
 preservation of County landfill capacity through the management of bulkier, drop-off garbage at
one site, Site 2 – Collingwood. A shredding system was also developed in late 2014,
substantially improving landfill densities and extending the life of the site by 4 years;
 review of the County’s waste export policy, with Council approving a 5-year waste export
contract in 2013. A portion of curbside garbage is now being processed at Emerald Energy
from Waste in Brampton; and
 continued promotion and education efforts – including development of a Mobile Education Unit
(MEU) and community outreach activities.
May 26, 2015
Committee of the Whole CCW 15-180
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Overview of System Performance
The Strategy outlined several best practices and various initiatives related to monitoring and measuring
of system performance. Measures such as improved on-site record keeping, utilization of new scale
data management software, and regular curbside audits have allowed for better assessment of not only
materials managed and diverted but opportunities for improvement. For reference, a summary of
tonnages of materials managed from 2010 thru 2014 and direct diversion rates (this does not include
deductions for processing residuals) is provided as reference in Schedule 3.
In order to receive Blue Box Program funding, Ontario municipalities are required to complete an
annual Waste Diversion Ontario (WDO) Municipal Datacall which includes reporting of all aspects of
residential waste generation and diversion. Information is released yearly, providing detailed
information and statistics on other municipal comparators. Most recent audited Datacall information
indicates the County of Simcoe, with a 2013 overall residential diversion rate of 55.7%, is ranked
seventh in the province and first amongst comparators in our municipal grouping. Based on the most
recent unaudited submission, the County’s diversion rate for 2014 was 59.0%, representing a
significant increase from 2013. It is noted this increase is attributed to facilities diversion programs
such as rubble, wood, brush, and leaf and yard waste.
In regards to performance monitoring, the Strategy outlines three key targets that continue to guide
waste management operations:
71% diversion rate by 2020
77% diversion rate by 2030
Minimum 1% per year reduction in per capita waste generation
As summarized in the Current Status Report, the County continues to be a leader in diversion with
respect to reuse and recycling initiatives at our waste management facilities, with approximately
36,000 tonnes of material diverted at County facilities in 2014 (equating to a 69% direct diversion rate).
Curbside capture rates of blue box recyclables are also excellent for both fibres and containers. Initial
2015 audit data indicates, however, that there is decreasing capture of curbside source-separated
organics (SSO) and that curbside garbage currently consists of over 40% of materials which could be
diverted in the green bin. Decreasing capture of SSO has been compensated by increased diversion at
County facilities, resulting in a relatively stagnant overall diversion rate. The per capita waste
generation rate has increased 18% since the 2010 (+3.6% per year), failing to meet the Countyapproved target of a minimum 1% annual decrease.
To summarize, current data indicates the:

diversion rate is relatively stagnant approaching 60% – with no significant increase since the
inception of the organics program in 2008. This is largely attributed to decreasing capture of
curbside organics, with a capture rate of approximately 37% (from initial 2015 data, down from
44% in 2012);

per capita waste generation continues to increase and the per capita waste reduction target of a
minimum of 1% is not being met;

waste disposed per capita continues to increase; and

given the 2015 audit data, diversion statistics, and increasing waste generation, it is apparent
that the two diversion targets set for 2020 (71%) and 2030 (77%) cannot be met without
substantial system changes.
May 26, 2015
Committee of the Whole CCW 15-180
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Considerations for Next Planning Period
In June 2013, Council deferred consideration of two major initiatives to this 2015 update – pursuing
further restrictions on curbside garbage (such as pay-as-you-throw or a mandatory diversion by-law)
and development of landfills Site 9 – Medonte and Site 12 – Sunnidale (for contingency garbage
disposal). In a broader sense, it is anticipated that the next planning period will entail three main
considerations for Council:

the County’s stagnant diversion rate and potential options which could produce some gain –
including furthering restrictions on curbside garbage;

limited landfill capacity within the County and future planning for garbage disposal and/or
processing; and

effectively planning for future servicing in regards to drop-off waste management facilities.
Moving Forward
In January, Council approved a timeline for the Strategy update as follows:
Spring 2015
Report No. 1 – Current Status Report
Assessment of current performance targets – where do we want to go?
Fall 2015
Report No. 2 – Potential Options and Initiatives
Early 2016
Report No. 3 – Approved Recommendations and Alternatives
Determining a set course of action has since been complicated by uncertainty in regards to pending
provincial legislation which could significantly impact waste management operations. As outlined in the
Current Status Report, municipalities continue to wait on extended/full producer responsibility
(EPR/FPR) legislation, set to replace the existing Waste Diversion Act. This legislation will be a
new/revised version of the Waste Reduction Act (Bill 91, 2013) that effectively died with the 2014
provincial election. It is Staff’s understanding this is imminent – likely to be forthcoming this fall. Its
impact on County diversion programs, long-term performance targets, and changes to funding
allocation/cost of services is currently unknown.
The implications of pursuing the Strategy update at this time – despite lack of clear direction on the
province’s intentions – have been considered. It is expected this legislation will have far-reaching
impacts on most areas of the County’s waste management system – policy, collections, curbside and
facilities diversion, recycling processing, organics processing, and our public education strategy. Of
primary concern is that commissioned consulting work for this update, which will draft a new set of 5year initiatives, will not be compatible or align with the direction the province intends to take in regards
to EPR/FPR. Conversely, delaying this work may be unnecessary as the timeframe in which the
province will implement any proposed changes remains ambiguous – discussion on provincial EPR
measures has been on-going for many years. Although the Ministry of the Environment and Climate
Change (MOECC) has indicated that the industry can expect a new Act this year, it may be some time
until its full impact is felt by municipalities and operational changes are warranted. Council will have the
opportunity to reassess direction of initiatives with the second Strategy update in 2020.
Taking the above into consideration and with Council’s direction, it is proposed that the Strategy update
cautiously move forward with a revised timeline, allowing for some flexibility to align with the pending
legislation. It is recommended that the assessment of current performance targets be considered in
conjunction with potential options and initiatives, set to be presented to County Council in the fall. By
then, there may be greater clarity in regards to EPR and how it may impact the County’s diversion
programs and long-term diversion targets.
May 26, 2015
Committee of the Whole CCW 15-180
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Consulting Services – Scope of Work
Further to this report and with Council direction, Staff will proceed with preparation of a Request for
Proposal for consulting services related to the update. It is anticipated that the scope of work will
include:

assessment and refining of projections for diversion rates and materials, quantities of residual
waste, and remaining landfill capacity;

identification and evaluation of a range of alternatives to meet the future waste management
needs of the County and to facilitate program delivery both in regards to curbside collection and
at facilities;

alternatives for transfer, recycling and organics processing, and garbage disposal and/or
processing and identification of upgrades or expansions to existing facilities and infrastructure
that may be required to support future programs and growth;

an overview of the status of waste management outside of the County – including updated
information on municipal comparators, provincial legislation, and current trends both in North
America and globally; and

development of an implementation plan with a series of initiatives – providing direction for waste
management operations over the subsequent 5 years.
Financial and Resource Implications:
The 2015 Solid Waste Management Operating Budget allocated up to $150,000 for all works related to
the Solid Waste Management Strategy update. These funds will be allocated toward items such as
consulting services related to reporting, presentations to Council, and public information sessions/
stakeholder meetings (noting that consulting costs will be determined through a forthcoming
procurement process). This budget also includes anticipated costs associated with public consultation
and advertising. It is expected that a portion of this year’s budget will be brought forward into 2016 with
final completion of the update. As outlined within this Item, consulting work proceeding prior to new
provincial legislation may not be compatible or align with the direction the province ultimately pursues.
Relationship to Corporate Strategies:
As outlined in Section 14.2 of the Strategy, it was recommended that periodic reviews and updates to
the Strategy be conducted at various times throughout the 20-year planning period as detailed timelines
could not realistically be developed beyond the 5-year planning period. The purpose of the first review
is to outline the goals and objectives met in previous years, summarize issues that may have hindered
implementation of the Strategy, provide a detailed implementation timeline for the next planning period,
and to potentially adjust the waste diversion and/or per capita waste reduction targets.
Reference Documents:
Solid Waste Management Strategy, Appendices, and Annual Reports
http://www.simcoe.ca/SolidWasteManagement/Pages/strategy.aspx
Item CCW 15-021 – Solid Waste Management Strategy Update (January 27, 2015)
http://docs.simcoe.ca/ws_cos/groups/public/@pub-cos-sta-com/documents/web_content/rsc463591.docx
May 26, 2015
Committee of the Whole CCW 15-180
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Attachments:
Schedule 1 – Strategy 5-Year Update – Current Status Report (County of Simcoe, May 2015)
CCW 15-180 Schedule 1.pdf
Schedule 2 – Key Staff Reports and Directives – 2010 to February 2015
CCW 15-180 Schedule 2.pdf
Schedule 3 – Managed Tonnages and Direct Diversion Rates – 2010 thru 2014
CCW 15-180 Schedule 3.pdf
Prepared By:
Stephanie Mack, P.Eng., Special Projects Supervisor
Approvals:
Date
Rob McCullough, Director, Solid Waste Management
Debbie Korolnek, General Manager, Engineering, Planning and Environment
May 13, 2015
May 13, 2015
Trevor Wilcox, General Manager, Corporate Performance
Mark Aitken, Chief Administrative Officer
May 19, 2015
May 19, 2015