Agenda Index City of Vancouver

POLICY REPORT
ENVIRONMENT

TO: Vancouver City Council

FROM: General Manager of Engineering Services

SUBJECT: Liquid Waste Management Plan: Revised Policies and Commitments

RECOMMENDATION

COUNCIL POLICY

In the early 1970s, Council approved the policy of separating sanitary and storm sewers, starting in the West End and Downtown areas, in order to begin reducing and eliminating combined sewer overflows.

In 1981, the sewer separation policy was reaffirmed with the adoption of the 1% life cycle replacement policy for sewer mains as part of the Sewers Long Range Capital Plan.

Both of these policies were reaffirmed in the 1991 Policy on Vancouver's "Design and Service Level Standards for Sewer Collection Infrastructure", and have been reaffirmed as part of every Capital Plan since.

In October 1999, Council approved continued funding of the sewer main separation program, to replace approximately 1% of the sewer system annually, to target elimination of combined sewer overflows by the year 2050.

Council has also previously approved a number of recommendations concerning theLiquid Waste Management Plan. Directions under the City Plan approved by Council include:

· consider environmental impacts when making decisions on land use, transportation, and City services;

· establish spending priorities for City and regional sewer, water and transportation improvements.

PURPOSE

This report outlines key changes that have recently been made to the GVRD's LWMP Stage 2 Policies and Commitments document. It recommends that Council endorse this revised document, dated March 2000 (LIMITED DISTRIBUTION), which is to be submitted for approval to the GVRD Board in June and to the Provincial Government a short time later.

BACKGROUND

In accordance with the provincial Waste Management Act, the GVRD began a process to develop a LWMP to regulate liquid waste discharges in the region in 1986. The Stage 1 report was completed and forwarded to the Province in 1989. In response to the submission, the Province mandated a number of measures including the provision for secondary treatment at the Annacis and Lulu Island sewage treatment plants (STPs), fast tracking combined sewer overflow (CSO) reductions, implementing a regional source control bylaw, and implementing an environmental assessment program.

Since that time, considerable effort has been expended throughout the Region in meeting these requirements including construction of secondary treatment at the Annacis and Lulu Island STPs, improved source control bylaws and enforcement, and CSO reductions through sewer separation and operational improvements. In Vancouver, these efforts have resulted in CSO reductions of 30% overall and 40% at Clark Drive. Environmental assessments of treatment plant and storm outfalls have also been performed leading to an improved understanding of the impacts that these outfalls have on their receiving waters.

In August, 1999, a draft LWMP Stage 2 report was completed which provided policy statements and commitments for the GVRD and member municipalities. The commitments made on behalf of Vancouver involve policies which the City already has in place. On October 5, 1999, Council endorsed the Stage 2 Policies and Commitments document, dated August 30, 1999, and approved the continued funding of the sewer main separation program, which replaces approximately 1% of the sewer system annually, to target elimination of combined sewer overflows by the year 2050, in accordance with the Stage 2 Plan.

All other GVRD municipal councils also approved the proposed August 1999 LWMP. Concurrent to receiving endorsements from municipal councils, the GVRD received letters from senior regulatory agencies advising that the draft LWMP report required further revisions before approval could be granted. As a result, on November 10, 1999, the GVRD Board passed a motion to apply to the Minister of Environment, Lands and Parks to extend the deadline for submittal of the Stage 2 LWMP for a period of six months to allow time to refine the report. This six month extension was granted by the Minister.

DISCUSSION

Over the past six months, there have been intense negotiations between GVRD staff, the Regional Engineers Advisory Committee (REAC) and senior levels of government regarding revisions to the proposed Plan. As a result of these negotiations, the Stage 2 LWMP Policies and Commitments document has been revised and is acceptable to REAC.

The key issues addressed with the Province over this period include:

· Clarifying the Ministry's designation of receiving water uses and water quality objectives and the role of the District and municipalities in this process. A consultation process will be carried out prior to finalizing the designations to allow for input and to avoid any surprises.

· Defining the base level of treatment at the District's wastewater treatment plants and the triggers that would require higher levels of treatment to be implemented. It is not anticipated that upgrading at any of the plants will be required for 10 - 15 years unless environmental problems arise.

· Documenting the potential range of future District expenditures if higher levels of treatment are required to protect the receiving waters.

· Committing to the long-term elimination of combined sewer overflows by the City of New Westminister to be consistent with Provincial policy as well as GVRD, Burnaby and Vancouver policy.

· Committing to monitoring the environment on an on-going basis and to review the LWMPs' performance every five years.

The key issue from the Federal Governments' perspective is the need to harmonize the LWMP with applicable federal legislation. The federal agencies have agreed to sign an addendum to the multi-agency BIEAP/FREMP (Burrard Inlet Environmental Action Program/Fraser River Estuary Management Program) memorandum of understanding that would establish, as a pilot, a program for the purposes of linking the LWMP to federalregulatory requirements.

Recognizing that there are federal laws which can be enforced, we need to assess the environmental impacts of our discharges. This is achieved by regular monitoring of the discharges but more importantly by assessing those discharges on the quality of the environment.

The revised LWMP now provides a balance between the following two objectives:

1. A fundamental commitment by the Region to monitor the effects of sewage plant discharges on the environment and further to correct any negative environmental impacts through increased levels of treatment. This is what is called the science-based approach where good information drives corrective actions.

2. Avoid, to the extent possible, the Provincial and Federal regulations based solely on standards (numbers) to drive major capital investments. In other words, avoid investing hundreds of millions of dollars on treatment plant upgrades based solely on standards which may bear little relationship to environmental impacts.

Commitments made by the GVRD on behalf of the region, such as treatment plant upgrades at Iona and Lions Gate, will impact Vancouver financially. If the LWMP is approved as submitted, the additional costs to Vancouver are believed to be reasonable. However, if the Provincial or Federal Governments mandate further upgrades to any treatment plants, the financial impact could be considerable.

Based on the above, it is recommended that Council adopt the revised LWMP Stage 2 Policies and Commitments document dated March 2000 and authorize the GVRD to submit the Plan to the Province pursuant to the Waste Management Act.

CONCLUSION

The LWMP Stage 2 Policies and Commitments document, has been revised since it was initially endorsed by Council in October, 1999. Changes have been made as a result of comments and requirements from senior governments. The Regional Engineers Advisory Committee have endorsed the changes. If the Stage 2 LWMP is approved as submitted, the additional costs to Vancouver are believed to be reasonable. However, if the Provincial or Federal Governments mandate further upgrades to any treatment plants, the financial impact could be considerable.

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