Agenda Index City of Vancouver

ADMINISTRATIVE REPORT

TO:

Standing Committee on City Services and Budgets

FROM:

General Manager of Engineering Services

SUBJECT:

Yard Trimmings Collection Program & Year 2000 Solid Waste Utility Fee

 

RECOMMENDATION

CONSIDERATION

The General Manager of Engineering submits F, G, H, I1 OR I2 below for CONSIDERATION.

OR if weekly Blue Box collection is to be retained by rejecting recommendations F through I1

GENERAL MANAGER'S COMMENTS

POLICY

Council has established a goal of reducing the solid waste stream by 50%.

All expenditures from the Solid Waste Capital Reserve require Council approval.

SUMMARY

Staff investigated several methods for providing collection and processing of yard trimmings to single family dwelling (SFD), duplex, and conversion dwelling residents as part of the City's waste reduction program. The investigation included: market survey's of residents, reviews of other agencies operations, a variety of collection schemes and collection schedules, and the opportunity to integrate yard trimmings with recycling operations. Ultimately, the cost and reactions of residents identified a preferred option involving alternating recycling and yard trimmings collection.

Based on the results of a pilot program for yard trimmings collection (June - September, 1999), staff recommend a biweekly yard trimmings collection program in which residents would set out their yard trimmings in reusable containers (i.e. spare garbage can), clear plastic bags, kraft paper bags, and/or bundles. Residents would be provided a label to place on their reusable container that would indicate to crews that the container contains only yardtrimmings. Only one label would be provided initially with additional labels provided free of charge at the request of the resident. The use of plastic bags would be discouraged through education. There would be a limit of 3 items per pickup (every two weeks) with unlimited pickup of leaves from October 1 through December 31.

To minimize the cost impact of this new program staff recommend that the Blue Box collection program be modified to provide collection on a biweekly schedule, down from a weekly schedule. Furthermore, collection for both programs will alternate so that a particular resident will receive recycling collection on one week, then yard trimmings collection the next week.

A majority of the residents that receive garbage and recycling collection from the City of Vancouver support yard trimmings collection, either on a monthly or biweekly basis. There is also majority support to minimize cost to taxpayers by implementing alternating recycling and yard trimmings collection. A recent telephone survey, as well as a back lane survey of Blue Box participation reveals that biweekly recycling collection would work for our customers. Some households would require an additional box or bags to store recyclables for an additional week.

It is recommended that the proposed program begin on February 1, 2000, at the end of the current garbage and recycling collection calendar year.

The annual cost of the proposed yard trimmings program is $2,930,000. This amount includes approximately $1,170,000 in composting and administrative costs that were previously funded from the Blue Box fees.

The staffing requirements for the yard trimmings program include a two year temporary Foreman II position and a yearly average of six two person collection crews (Truck Driver III). The yard trimmings foreman position will be re-evaluated once the program is established (after two years).

The observed reduction in residential garbage collected as a result of the City's various waste reduction initiatives, including yard trimmings collection, allows for a 2 crew reduction in our residential garbage collection fleet. The anticipated savings is approximately $350,000 per year in staff and equipment and approximately $350,000 per year in reduced tipping fees.

The proposed biweekly Blue Box schedule would save approximately $390,000 annually by eliminating three recycling crews and would cost an additional $15,000 for one time promotion and Blue Box and recycling bag distribution.

The proposed 2000 Solid Waste Utility Fee for a Basic Customer Unit of service is $155 per Basic Customer Unit ($89 for garbage, $32 for recycling, and $34 for yard trimmings). The 1999 SWU fee was $145.

PURPOSE

The purpose of this report is to seek Council's approval to implement a biweekly, year round yard trimmings collection and composting program for residential dwellings currently receiving garbage and recycling collection from the City. This report recommends that Blue Box collection occur on a biweekly basis such that the City's residential customers would receive yard trimmings and Blue Box collection on an alternating basis. This report also seeks Council approval of the Solid Waste Utility Fee for each Basic Customer Unit of Service for 2000.

BACKGROUND

On December 3, 1998, Council approved a reduction in the can limit from 3 cans to 2 cans for each Basic Customer Unit of garbage collection service provided by the City. At that time, Engineering Services was instructed to report back to Council with residential yard trimmings collection alternatives that could be implemented as a service to assist with the new can limit.

On April 29, 1999, Council approved for implementation a pilot program of yard trimmings collection for those residents receiving City garbage and Blue Box collection service. The pilot program allowed for once per month collection of up to 5 bags of yard trimmings from each residence from June through September. Yard trimmings collection from October through December is as per the scheduled fall leaf collection program.

Since implementation of the two can refuse limit (February, 1999) and the yard trimmings pilot program (June, 1999), there has been a significant reduction in the quantity of garbage collected in our curbside program as illustrated in Appendix I. It is impossible to say how much of the reduction can be attributed specifically to the can limit reduction or the yard trimmings collection pilot or other factors such as expanded bottle deposit legislation.

The 1999 yard trimmings collection pilot program collected over 1,600 tonnes of yard trimmings from June through September. Approximately 75% of the yard trimmings were in plastic bags, 5% in paper bags and 20% were bundled. Some compliments and a few complaints were received relating to the program. The complaints that were received related mainly to missed collections, odour, or the frequency of collection.

The yard trimmings pilot collection program provided valuable information on issues pertaining to the City's yard trimmings collection, but consideration of alternate arrangements and determination of public perception and needs was required. As a result, MarkTrend Research was hired in August, 1999 to conduct a public survey on yard trimmings and recycling in Vancouver. 509 residences were surveyed, with the survey being offered in English, Mandarin, Cantonese or Punjabi.

Of the 509 respondents, 62% were aware of the City's yard trimmings pilot program and 38% had participated in the program. Of the 38% that had participated, 80% were either satisfied or very satisfied with the program and those who were not satisfied would like increased collection frequency and a higher limit on quantities. A more detailed summary of the MarkTrend survey results is provided in Appendix II.

The Blue Box curbside recycling program debuted in 1989. Since that time, quantities of recycled material collected has grown on a fairly steady basis. In the fall of 1998, the Provincial Government enacted expanded bottle deposit legislation. This has resulted in a reduction of mixed containers in Blue Boxes of about 25%. The expanded bottle deposit program has had no impact on the materials recovered from the blue or yellow bags (newspaper and mixed paper categories).

To assess the feasibility of biweekly Blue Box collection, the MarkTrend survey included some questions pertaining to recycling. Of the 509 respondents, 59% claim to set out recyclables every week and 61% support alternating collection of recyclables and yard trimmings to minimize costs.

In addition to the MarkTrend survey, staff conducted a back lane survey of 662 homes across Vancouver over four weeks from August through early October, 1999. It was recorded which homes set out their blue box, blue bags and yellow bags. Whether or not each "container" was more or less than half full was also recorded. A container that was more than half full was considered to be full.

In each week, an average of 48% of homes set out some recyclables (at least one box or bag) for collection. For three consecutive weeks in August, less than 1% of the participants set out a full blue box (mixed containers) in all three weeks, 1% set out a full blue bag (newspaper) in all three weeks, and 2% set out a full yellow bag (mixed paper) in all three weeks. A more detailed summary of the back lane survey results is provided in Appendix III.

The back lane and MarkTrend survey results clearly demonstrate that most Blue Box users could get by without difficulty if recyclables were to be collected every other week since only a very small minority set out full recycling containers every week.

DISCUSSION

The issue of yard trimmings collection impacts the other two aspects of the Solid Waste Utility (garbage and recycling collection). For simplicity, this report presents all three categories, and their impact on the utility, separately.

Yard Trimmings Collection

· Yard trimmings collection every other week (biweekly)
· Component of year 2000 utility fee: $34
· Includes some items previously funded by Blue Box recycling fee

Staff conducted a preliminary analysis of 15 different yard trimmings collection and financing alternatives. A preliminary cost analysis was performed for each alternative on a biweekly collection basis and then the alternatives were evaluated based on several criteria including: cost, risk, environmental, and social impacts. A detailed list of the evaluation criteria is provided in Appendix IV. From the preliminary analysis, four alternatives were selected for a more thorough review. The four alternatives that were reviewed are described in detail in Appendix V.

After analysis based on the evaluation criteria, staff recommend the "Any Container Utility" yard trimmings collection alternative on a biweekly collection schedule.

The "Any Container" program would have the City provide a label to residents to add to a container of their choice (perhaps a leftover garbage can that is no longer needed). The label would indicate to crews that the container contains only yard trimmings. One label would be provided initially, as part of the collection calendar mailout, and additional labels would be provided free of charge at the request of the resident. Through education and promotion, the use of plastic bags, while accepted, would be discouraged because of their negative impact on the environment. Kraft paper bags and bundled materials would continue to be accepted.

This program provides an additional alternative for yard trimmings set out which should appeal to residents. Residents will save money by using an existing container, or even buying a new container over purchasing disposable bags. The biweekly schedule is much less expensive than a weekly schedule while still meeting the requirements of most Vancouver residents (only 15% indicated that they require weekly service in the MarkTrend survey). As well, the biweekly schedule results in half the truck visits per lane per year which reduces air and noise pollution from vehicle exhaust.

A limit of three items per pick up would be imposed to encourage residents to continue self management practices such as grasscycling and backyard composting. The limit also helps to ensure that the program is equitable. During the fall months (October 1 through December 31), there would be no limit on leaf pick up as per the regular fall leaf program.

The annual cost of this program is $2,930,000 or $34 per property. The annual cost includes $1,760,000 in new program costs and $1,170,000 in program costs that were previously funded from the Blue Box recycling user fee. As a result, there is a reduced rate for Blue Box recycling. A detailed cost analysis table is provided in Appendix VI.

The increase in yard trimmings generated by this program requires expansion of the compost facility at the Vancouver Landfill. The expansion costs include $350,000 to increase the size of the composting area and $250,000 to purchase a new loader. It is recommended that these one time costs be funded from the Solid Waste Capital Reserve as an environmental initiative at the Vancouver Landfill. In 2000, staff intend to report back on long term financing of all charges as they relate to the landfill.

Garbage Collection

· Quantity of garbage collected down over 10%
· Component of year 2000 utility fee: $89

There has been a significant reduction in the amount of garbage collected by the City in 1999 over previous years as can be seen in Appendix I. The reasons for this reduction include the 1999 yard trimmings collection pilot, implementation of the 2 can limit, and the expanded beverage deposit legislation. This reduced rate of garbage collection is expected to continue. It is therefore recommended that the City's waste collection program eliminate two collection crews beginning February 1, 2000. The two crew reduction, the savings in disposal costs, and other minor changes in program costs result in a $8 per Basic Customer Unit drop in the garbage component of the utility rate over 1999. The garbage component of the year 2000 utility rate is $89.

Recycling Collection

· Biweekly recycling is achievable with a savings of about $390,000 per year
· Biweekly blue box fee is $32 (2000). Weekly collection would be $36.

Given the best value in a biweekly yard trimmings collection program, staff have reviewed the Blue Box program in the process of determining how biweekly yard trimmings could be accommodated.

As can be seen from the survey results in Appendices II and III, most residents can accommodate biweekly recycling collection without difficulty. Only a small number of households (less than 3%) put out a full blue box and/or bags every week. Providing an additional box and/or bags will assist these customers in managing their recyclables over a two week collection period.

Staff estimate that biweekly recycling collection would save about 14% of our recycling collection costs. The efficiency is gained through increasing the proportion of full containers set out and also increasing the percentage of houses that participate on a given collection day. For example, instead of 50% of the homes in a block having recyclables out for collection, 75% are forecast to participate for each collection. This reduces driving time between stops and increases the number of customers served per day. Some setouts will take a little longer to service as there will be more materials to collect.

Some of the apartment buildings would continue to be serviced weekly, however smaller apartment buildings serviced by the City would likely be placed on biweekly service. There will be no other impact on the apartment recycling program.

The net reduction in recycling work would lead to the elimination of three recycling crews at a cost savings of approximately $390,000 per year.

Vancouver would not be the first municipality to implement biweekly recycling collection. In fact, a number of local jurisdictions have gone from weekly to biweekly collection, including 3 on Vancouver Island (Capital Regional District, Nanaimo Regional District and the City of Nanaimo). White Rock's recycling program has always been biweekly. The motivating factor to biweekly collection is increased efficiency and lower costs. The disadvantage is that because of the added complexity of the schedule, some people will no longer recycle. The Capital Regional District and the City of Houston, Texas found that their participation rate dropped by up to five percent when they switched to biweekly recycling. If implemented, Vancouver would be the first municipality in the District to change from weekly to biweekly recycling collection.

On a per tonne basis, the cost of Blue Box recycling is slowly approaching that of garbage collection and disposal. Currently, the Blue Box program cost (net after revenues) is approximately 20% more on a dollar per tonne basis than garbage collection and disposal. By going to biweekly collection, and with the coming increase in the landfill rate due to required landfill improvements, the cost per tonne of recycling could drop below that of refuse collection for the first time ever during the year 2000.

Implementation of yard trimmings collection allows for a reduction in the Blue Box recycling component of the utility fee as existing yard trimmings programs (leaf collection etc.) were funded from the Blue Box program. These changes allow the Blue Box utility fee for weekly service to drop from $48 in 1999 to $36 in 2000. Implementation of biweekly recycling collection will allow this rate to drop a further $4 to $32.

Alternating Yard Trimmings and Recycling

· Proposed program would see recyclables collected one week, then yard trimmings the next

Unlike garbage, both yard trimmings and recycling programs are suited to less frequent collection because of the absence of putrescible materials. The proposed program would see recycling collection alternate with yard trimmings collection. Biweekly collection of both yard trimmings and recyclables is more efficient than weekly collection of these streams. The cost savings in biweekly recycling would keep the cost of adding a yard trimmings program to a minimum. Garbage collection would not be changed and both yard trimmings and recycling would continue to be collected on the same day as garbage. There is consensus from other jurisdictions that in order for a biweekly collection program to function well, collection must be on the same day as garbage.

The alternating schedule (Blue Box one week, yard trimmings the next) will help residents remember when to set out their materials for collection thereby reducing the number of missed pick ups. Another advantage is that there will still only be two trucks servicing a lane on any given collection day rather than three with the added yard trimmings program.

Implementation of this alternating schedule will require that an additional clerk (Clerk II) be added to the Garbage and Recycling Hotline for three months to assist with increased call load.

There is little question that biweekly collection of yard trimmings and recyclables is less convenient than weekly collection. Developing a calendar that is comprehensible and easy to use will be a challenge. Missed set outs will have to wait an additional two weeks until the next collection day. And with the skip-a-day collection program, the Christmas and Easter breaks will see a small number of residents wait up to 19 days between scheduled collections (instead of up to 14 days under the current skip-a-day schedule). The first year of biweekly collection will see an increase in the number of replacement bags and boxes delivered as some residents will require more recycling storage. There will need to be a period of adjustment; however, staff feel that with an appropriate education and information program, these difficulties can be overcome.

ENVIRONMENTAL IMPLICATIONS

The yard trimmings collection program is expected to collect up to 10,500 tonnes of yard and garden trimmings per year from Vancouver residents. It is anticipated that this will include up to 8,000 tonnes of yard trimmings that are diverted from landfill or that were collected in previous City programs, with the rest coming from other sources such as reduced usage of the VSTS drop-off or a reduction in self management by residents.

The biweekly schedule reduces air and noise pollution by reducing truck traffic in each lane.

The use of reusable containers for yard trimmings will eliminate the landfilling of up to 700,000 clear plastic bags per year.

There will likely be a small reduction in the participation rate for recycling. However, the overall material diversion rate will increase significantly as yard trimmings are removed from the refuse stream.

PERSONNEL IMPLICATIONS

The average staffing requirements for each component of a biweekly yard trimmings and an alternating biweekly yard trimmings and recycling program are outlined in Table 1. The level of staff required will fluctuate with seasonal changes in the tonnage of yard trimmings collected.

Table 1

Annual Staffing Requirements

 

Biweekly Yard Trimmings and Blue Box

Biweekly Yard Trimmings Only (Weekly Blue Box)

 

# Crews

Total Staff

# Crews

Total Staff

Biweekly yard trimmings collection

6

12

6

12

Reduction in scavenging

-2

-4

-2

-4

Reduction for biweekly recycling

-3

-3

0

0

Yard Trimmings Foreman

1

1

1

1

Total New Positions

  

6

  

9

It is recommended that a temporary Foreman II position be created to supervise and manage the yard trimmings collection program. This position is required to ensure successful start-up of the yard trimmings program and will be temporary for two years at which time the position will be re-evaluated. Once the program is established, it may be possible for an existing recycling foreman to cover the yard trimmings foreman duties. However, at this time, with the proposed changes to the Blue Box program, and the recent implementation of apartment recycling, it is not possible for an existing recycling or garbage foreman to supervise the yard trimmings program.

Implementation of alternating biweekly yard trimmings and recycling will require an additional Clerk II for three months to assist with increased call load.

FINANCIAL IMPLICATIONS

An alternating biweekly yard trimmings and recycling collection program is the most effective way of delivering these services. A summary of the total program costs are outlined in Table 2.

Capital and one time start-up funding would be financed from the Solid Waste Capital Reserve.

The Solid Waste Utility functions as a self-sustaining operation, with fees based on full cost recovery. Any deficit (or surplus) is absorbed by the Solid Waste Capital Reserve.

Changes to Schedule `B', the fee schedule for the Refuse and Recycling Bylaw are found in Appendix VII (for alternating biweekly programs).

Appendix VIII includes changes to Schedule `B' if biweekly yard trimmings is added to the existing garbage and recycling collection programs.

Table 2

Summary of Proposed Program Costs (2000)

     

Biweekly Yard Trimmings and Blue Box

Biweekly Yard Trimmings Only

YARD TRIMMINGS COLLECTION

    
 

Capital & Start-up Costs

    
   

Compost Facility Expansion (Capital Reserve)

$350,000

$350,000

   

Compost Facility Loader (Capital Reserve)

$250,000

$250,000

   

Total Capital and Start-up Costs

$600,000

$600,000

 

Annual Operating Costs

    
   

6.1 Yard Trimmings Collection Crews

$1,060,000

$1,060,000

   

Foreman and Vehicle

$79,000

$79,000

   

Transfer and Processing

$606,000

$606,000

   

Annual Promotion

$15,000

$15,000

   

Yard Trimmings Collection cost

$1,760,000

$1,760,000

 

Related Composting Costs & OH (already funded)

$1,170,000

$1,170,000

TOTAL YARD TRIMMINGS PROGRAM

$2,930,000

$2,930,000

GARBAGE COLLECTION

$7,616,000

$7,616,000

   

Year 2000 collection and disposal costs, including 2 crew reduction

  

RECYCLING COLLECTION

$2,721,000

$3,083,000

   

Year 2000 collection and material processing and marketing costs, including elimination of leaf and Christmas Tree programs and anticipated increase in material revenues. Does not include apartment recycling

TOTAL UTILITY COSTS

$13,267,000

$13,629,000

COST PER CUSTOMER

$155

$159

Annual funding is recovered from user fees as part of the Solid Waste Utility. Table 3 shows the components of the 1999 and the proposed 2000 Solid Waste Utility Fee.

Table 3

SOLID WASTE UTILITY FEES

SWU Fees

1999

2000

2000

   

Alternating Yard Trimmings and Blue Box

Biweekly Yard Trimmings; Weekly Blue Box

Garbage

$97

$89

$89

Recycling

$48

$32

$36

Yard Trimmings

$0

$34

$34

Total

$145

$155

$159

IMPLEMENTATION PLAN

It is proposed that the new services be implemented at the start of the new refuse and recycling calendar year, February 1, 2000. This will allow the new calendar to clearly explain the new program, collection dates, etc. Any other date before February 1, 2001 will cause considerable confusion amongst residents.

It is anticipated that volumes of yard trimmings will begin slowly, and build over time. Other jurisdictions have found that it can take two to three years before the quantity of yard trimmings collected levels off. As a result, crews will be added to the program as necessary. The first year of operation (2000) may not see the stated average number of crews over the entire program year.

In addition, it is anticipated that only two recycling crews would be cut February 1, 2000. The remaining crew would be used to help cope with the variations in quantities and user confusion during the first two months. As the yard trimmings collection program proceeds, staffing levels will be monitored and continue to be optimized. Additional garbage and recycling crew reductions may occur in the longer term. The temporary yard trimmings foreman position will be re-evaluated after two years.

COMMUNICATIONS PLAN

As this proposal incorporates major changes to collection services provided by the City, effectively communicating with our customer base is of paramount importance. For this reason, additional funding is being provided for one time start-up costs (in addition to the regularly funded promotional program). The communications plan includes the following:

Press release describing new program. While adding yard trimmings collection is not high profile news, it is anticipated that changing the Blue Box program to biweekly collection in conjunction with yard trimmings collection will garner a lot of press.

Advertisements in local newspapers. Advertising in the local print media (Vancouver Courier, as well as ethnic papers) will be increased. The ads will include pre-calendar notices, so people watch for their calendar, as well as a copy of the calendar if possible.

Calendar and yard trimmings label mailout. The change to alternating recycling and yard trimmings collection will require a complete makeover of our existing refuse and recycling calendar. Staff will simplify the calendar as much as possible, while making it clear to users how the new program works. In addition, the mailout will include an explanatory letter regarding the changes in service. One yard trimmings label will be included for each household to attach to an acceptable reusable container of their choice. Residents requiring additional labels (for up to two additional reusable containers) will be able to obtain them for free by calling the City's Garbage and Recycling Hotline.

CONCLUSION

A majority of the residents that receive refuse and recycling collection from the City of Vancouver support yard trimmings collection, either on a monthly or biweekly basis. There is also majority support to minimize cost to taxpayers by implementing alternating recycling and yard trimmings collection. A recent telephone survey, as well as a back lane survey of Blue Box participation reveals that biweekly recycling collection would work for our customers. Some households would require an additional box or bags to store recyclables for an additional week.

To optimize collection efficiency, minimize negative environmental impacts, and to provide more service at a minimal additional cost to our customers, it is recommended that a permanent yard trimmings collection program be implemented on a biweekly collection schedule. In order to help reduce the cost impact of this new program it is also recommended that the Blue Box collection program be modified to provide collection on a biweekly schedule, down from a weekly schedule. Furthermore, collection for both programs will alternate so that a particular resident will receive recycling collection on one week, then yard trimmings collection the next week.

It is recommended that this program begin on February 1, 2000, at the end of the current garbage and recycling collection calendar year.

The annual cost of the proposed yard trimmings program is $2,930,000 which includes $1,170,000 in composting and administrative costs that were previously reflected in the Blue Box recycling fee. Expansion of the compost facility is required, at a cost of $600,000. It is recommended that this funding come from the Solid Waste Capital Reserve.

The staffing requirements for the yard trimmings program include a two year temporary Foreman II position and a yearly average of six two person collection crews (Truck Driver III). The yard trimmings foreman position will be re-evaluated in two years once the program is established.

The yard trimmings program, and observed reduction in refuse, allow for the elimination of two garbage collection crews, at a cost savings of approximately $700,000 per year (includes reduced tipping costs).

The proposed biweekly Blue Box schedule would save approximately $390,000 by eliminating three recycling crews and would cost an additional $15,000 for one time promotion and Blue Box and recycling bag distribution (funded from user fees as part of the Solid Waste Utility).

The proposed 2000 Solid Waste Utility Fee is $155 per Basic Customer Unit ($89 for garbage, $32 for recycling, and $34 for yard trimmings).

This program will add yard trimmings collection, a service that 72% of Vancouver residents feel is important, at a level of service (biweekly) that will meet the needs of 85% of Vancouver residents (according to the MarkTrend survey). The cost to taxpayers and the environmental impacts of collection will be minimized by the biweekly schedule and by allowing residents to use a reusable container for setting out yard trimmings. Further cost savings and environmental benefits will be realized by implementing the yard trimmings program on an alternating biweekly schedule with recyclables. A biweekly Blue Box program will meet the needs of Vancouver residents and will lower the cost of recycling, possibly causing the recycling rate to drop below that of refuse collection. By improving the efficiency of an existing program (Blue Box) the City of Vancouver will be able to provide a new program (yard trimmings) for a minimal increase in the 2000 Solid Waste Utility Fee.
NOTE FROM CLERK: APPENDICES NOT AVAILABLE IN ELECTRONIC FORM - ON FILE IN THE OFFICE OF THE CITY CLERK.

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