SUPPORTS ITEM NO. 2
CS&B AGENDA
JANUARY 9, 1997
ADMINISTRATIVE REPORT
Date: November 29, 1996
TO: Standing Committee on City Services & Budgets
FROM: General Manager of Engineering Services
SUBJECT: Changes in Solid Waste Operations and Organization
RECOMMENDATION
A. THAT Council approve reducing the hours the Vancouver Landfill
is open to the public, i.e., 7:00 a.m.-6:00 p.m., and staff
report back within six months if further changes are required.
B. THAT $4,000 be provided from the Solid Waste Capital Reserve
for advertising this change in operating hours.
C. THAT Council approve the addition of a Landfill Manager, and
one Superintendent to manage the Vancouver Landfill, subject
to classification by the Director of Human Resources, and
these positions be largely funded through elimination of a
CEII in the Solid Waste Management Branch and the existing
Foreman at the Vancouver Landfill. The net increase in costs
will be funded from users of the Vancouver Landfill.
D. THAT temporary mobile office accommodation be leased for the
Vancouver Landfill staff at approximately $15,000 per year and
$5,000 be provided for truck rentals and $1,500 for cellular
phones annually with funding provided from all Landfill users
through the Landfill Operating Budget.
E. THAT office furnishings, office set up and computer equipment
be provided at a one-time cost of $25,600 with Vancouver's
share funded from the Solid Waste Capital Reserve and the
remainder funded from other Landfill users through the
Landfill Operating Budget.
F. THAT one diesel-powered, four-wheel drive pick-up truck,
complete with City radio, be provided for the Landfill
Manager, at a one-time cost of $40,000, funds to be provided
from the Solid Waste Capital Reserve.
CITY MANAGER'S COMMENTS
The City Manager notes that these projects do not impact the
Operating Budget and Council can, therefore, deal with these
recommendations without impacting the public information and
consultation process related to the 1997 Budget and taxation
levels.
COUNCIL POLICY
On February 4, 1994, Council resolved that departments and boards be
instructed that any recommendations for increased staff or enhanced
programs be accompanied by recommendations for matching cost decreases
or related revenue increases in non-tax revenue, subject to Council
discretion.
PURPOSE
The purpose of this report is to recommend reorganization of the
Vancouver Landfill (VLF) and management to reflect both changing public
needs and supervision requirements, while complying with operational and
environmental demands.
BACKGROUND
The Vancouver Landfill, owned and operated by Vancouver as part of the
Regional Solid Waste Management Plan, serves Vancouver, University
Endowment Lands, Richmond, Delta and White Rock. Our costs of operation
are shared with the Greater Vancouver Regional District users on a cost
per tonne basis so that all expenses and savings accrue to Vancouver on
a proportional basis; Vancouver is reimbursed 74% of costs by G.V.R.D.
and commercial users. Liability for problems at the Vancouver Landfill,
however, affects Vancouver directly (although the G.V.R.D. shares some
financial liability). Accordingly, it is important and cost-effective
for Vancouver to have adequate management and services at the Vancouver
Landfill.
(1) Vancouver Landfill Hours Open to the Public
For many years, the hours the Vancouver Landfill, located in Delta, has
been open to the public are as follows:
Monday to Friday 7:30 a.m. - 9:00 p.m.
Saturday and Sunday 9:00 a.m. - 9:00 p.m.
In winter, usage of the Vancouver Landfill is less than three vehicles
per hour after 6:00 p.m., while in summer, usage is generally less than
10. In 1989, the Vancouver South Transfer Station opened to both
residential and commercial solid waste haulers. Similar to the other
waste disposal facilities in the Lower Mainland, the Vancouver South
Transfer Station hours are 7:00 a.m. - 5:00 p.m. weekdays and 9:00 a.m.
- 5:00 p.m. weekends (while the Recycling Depot closes at 6:00 p.m.).
(2) Vancouver Landfill and Vancouver South
Transfer Station Staffing
It is important to have supervision at our facilities during public
hours to handle inquiries from the public and resolve misunderstandings
related to charges and acceptability of commodities. It is also
important to ensure our facilities have adequate supervision to manage
environmental issues appropriately and comply with the Solid Waste
Management Plan.
Currently, the Vancouver Landfill is open to the public 92 hours per
week (71 proposed), and the Vancouver South Transfer Station is open 69
hours. Together, these facilities are open to the public 161 hours (140
hours proposed) and are supervised by three Foremen covering
approximately 120 hours. There is an obvious disparity between Foreman
supervisory time and opening hours to the public of the two facilities.
The only direct supervision at the Vancouver Landfill in Delta currently
is provided by one Foreman working weekday dayshift. With the
environmental responsibilities and the changes in activities at the
Vancouver Landfill, it is important to increase the level of supervision
and technical expertise available to adequately administer the Vancouver
Landfill operation.
DISCUSSION
(1) Vancouver Landfill Hours Open to the Public
The Vancouver Landfill is under-utilized by the public after 6:00 p.m.,
although it has been open until 9:00 p.m. each day of the week as a
convenience to Delta and Richmond users. Closing the Vancouver Landfill
to the public at 6:00 p.m., would reduce the time the Vancouver Landfill
requires direct supervision and could improve efficiencies. This
earlier closing time is in line with the other waste disposal facilities
in the GVRD, but still allows a reasonable driving time for residents in
the more distant sections of the three main tributary municipalities.
By closing at 6:00 p.m., there is also the opportunity to generate some
cost-savings since less personnel time is needed at the on-site
Residential Drop Off Facility (RDO). Savings would be mainly in a Scale
Operator plus one Labourer II position. The waste processing operation,
however, of handling, placing, compacting and covering refuse would
continue 24 hours a day as it is now to comply with Provincial
Regulations.
It is proposed to undertake this 6:00 p.m. closing time change
commencing in 1997. If staff determine there is a need for further
adjustments, Council will be apprised within the next six months. Staff
in the Municipality of Delta have been notified of this proposal, since
this proposal would reduce convenience to Delta residents.
To minimize inconvenience to the public, it is important that this new
closing time is well advertised, especially in Delta and Richmond. The
cost to advertise in local papers is estimated to be $4,000.
(2) Vancouver Landfill
The Vancouver Landfill and Vancouver South Transfer Station supervision
was last reviewed and revised in 1988. Since that time, a number of
significant environmental initiatives have taken place as summarized
below:
(a) Composting Facility - a major composting facility has been added,
including a 1.8 hectare paved surface, a grinding plant, a hopper
and conveyer, a front-end loader, windrow turner, and trommel
screen.
(b) Propane Tank Flaring and Recycling - propane tanks are now brought
to the Vancouver Landfill and the surplus gas is flared by City
crews prior to recycling.
(c) Residential Drop-Off - expanded for a yard-waste collection bay and
additional space for metals. A new mattress recycling building is
in use.
(d) Gypsum Recycling - small amounts of gypsum are being accepted in
20-yard bins.
(e) Soil as Cover Material - soil from City excavation projects (rather
than purchased sand from a contractor) is now screened on site and
used as primary cover material.
(f) Asbestos - all commercial loads require a manifest. It is disposed
in trenches provided for this sole purpose.
(g) Other Hazardous Wastes - a drop-off facility has been constructed.
Trained City workers handle these products which are subsequently
shipped off site.
(h) Leachate/Drainage Ditches - the ditches are regularly being
expanded to surround the expanded waste disposal areas.
Refinements were also adapted to store leachate in exceptionally
wet periods and improve pumping capacity to the sewage treatment
plant.
(i) Landfill gas collection and flaring - Landfill gas has been
collected and flared since 1991 and is due for further expansion
and development of beneficial use.
Our operation will require further substantial changes over the next two
years to ensure compliance with Provincial regulations.
To comply with the Waste Management Act, extensive engineering studies
have also taken place regarding:
- Stability
- Hydrogeology
- Compaction
In the l990's, the number and complexity of regulations governing wastes
for disposal or prohibited from disposal have increased substantially.
In the short term future, more regulations and refinements are
anticipated controlling waste products, e.g., cardboard and garden
wastes. The gas and leachate collection systems will also need to be
expanded and utilization of gas must be implemented. These expanded
needs are both of an operational and engineering design nature and
attract potential liability.
To address these challenges, the focus of on-site management must be
environmental compliance to bring the appropriate skills to the
facility. It is proposed that an on-site Landfill Manager position,
with design capabilities, be created and appointed to supervise the
Vancouver Landfill. This is desirable to ensure compliance with the
Waste Management Act, and our agreements with Delta and the GVRD.
The detailed design problems associated with these types of problems
will also require support from Engineering consultants from time to
time, as well as possible secondment of other Engineering Department
staff. To support ongoing technical field work, it is also proposed to
transfer the existing Landfill Technician position (Engineering
Assistant IV) from the Solid Waste Management Branch to the Vancouver
Landfill.
The existing Civil Engineer II position in the Solid Waste Management
Branch would be eliminated, and much of the technical work would
transfer to the new Landfill Manager.
With the expanded complex responsibilities and increased technical
knowledge requirements, combined with the environmental and public
liability of managing the landfill, it is proposed that the supervision
be provided by a Superintendent with the existing Foreman position being
eliminated.
It may be necessary to provide additional front line supervision on
weekends and after dayshift hours when many employees are working and
the public is present. The Landfill Manager with assistance from a
Superintendent will undertake a detailed evaluation of the best way to
meet those needs and report back to Council on this matter within six
months.
PERSONNEL IMPLICATIONS
This report recommends the creation of two supervisory positions, an
on-site Landfill Manager and a Superintendent I position. It also
recommends the elimination of a Senior Design Engineer (CE II) in the
Solid Waste Management Branch, and a Labourer II, and a reduction in
shifts for the haul-on truck and weighmaster at the Vancouver Landfill
and elimination of a Foreman at the VLF. These positions would be
subject to a classification review by the Director of Human Resources.
CUPE 15, CUPE 1004 and the Foreman's Association have been provided
copies of this report and have indicated an interest in appearing as
delegations to committee.
FINANCIAL IMPLICATIONS
The costs of operating the Landfill are recovered by charging VLF users
for each tonne of garbage disposed (except Delta residential).
Twenty-six percent of the Vancouver Landfill costs are funded by
Vancouver property owners and the other 74% of VLF costs are paid by
other users of the Landfill (G.V.R.D. Municipalities and commercial
haulers). The recommended changes at VLF (excluding the RDO) would
increase costs by $18,600. The City's share of the cost, $4,800, is
available from within the existing departmental operating budget. The
$70,700 decrease in RDO staff costs will impact RDO user fees.
One time costs incurred by these changes are $65,600. The City's share
of these costs would be funded from the Solid Waste Capital Reserve
(SWCR) with the remainder funded from other VLF users. (Details in
Appendix A).
CONCLUSIONS
It is proposed, to change the closing time at the Vancouver Landfill
from 9:00 p.m. to 6:00 p.m. daily with a report back from staff if
additional changes are required. This new closing time is consistent
with other waste disposal facilities in the Lower Mainland. The
adjustment will permit some cost savings.
An increased level of knowledge and supervision for the Vancouver
Landfill in the form of an additional Landfill Manager and a
Superintendent is also recommended, with the personnel costs
substantially offset by staff reductions elsewhere in the division.
Office furniture, supplies and vehicles would be provided from the Solid
Waste Capital Reserve and other VLF users.
* * *
APPENDIX A
ESTIMATED ANNUAL SAVINGS AND COSTS
I. Vancouver Landfill Reductions
- Fewer Weighmaster shifts ($ 27,800)
- VLF Foreman ($ 61,100)
Subtotal: ($ 88,900)
II. Additional Vancouver Landfill Supervision
- Vancouver Landfill Manager $ 80,800
- One Superintendent I $ 71,400
Subtotal: $152,200
III. Reduction in Solid Waste Management Branch Staff
Civil Engineer II ($ 66,200) ($ 66,200)
IV. Additional Annual VLF Equipment Cost
Truck Rental $ 5,000
Portable Office Lease $ 15,000
Two cellular phones (2 x $750/yr) $ 1,500
Equipment annual costs: $ 21,500
Total changes at VLF (excluding RDO) $ 18,600
V. One Time Costs
One additional pick-up truck (diesel+4wd)
(one-time costs) $ 40,000
Portable Office set-up $ 10,000
Office Equipment
Computers (2 x $5830) $ 11,600
Furniture (1 x $4000) $ 4,000
Advertising change in open hours
at Vancouver Landfill $ 4,000
Total "once off" costs: $ 69,600
VI. Residential Drop Off Reductions
- One Labourer II ($ 60,000)
- Fewer haul-on shifts ($ 10,700)
Total: ($ 70,700)
Note all salaries are at medium range pay and include fringe benefits
and extra pay grades for extra hours where appropriate.