anagement What We Heard Spring 2017 Engagement saskatchewan.ca/environment

+ anagement What We Heard Spring 2017 Engagement saskatchewan.ca/environment

Contents 1. Introduction... 1 1.1. Overview... 1 1.2. Vision for a Solid Waste Management Strategy... 1 1.3. Commitment to Stakeholder Engagement... 1 2. Engagement... 1 2.1. Engagement Activities... 1 3. Informing the Strategy... 2 3.1. Summary of Stakeholder Input... 2 3.2. Landfill Management... 2 3.3. Waste Stewardship and Recycling... 4 3.4. Government Leadership... 7 4. Moving Forward... 9 Appendix A: Participating Organizations... 10

1. Introduction 1.1. Overview The Ministry of Environment launched a public engagement process in March 2017 regarding the future of waste management in Saskatchewan through the release of the Saskatchewan Solid Waste Management Strategy, Discussion Paper (March 2017). The discussion paper outlined the current state of waste management in the province, previous engagement efforts and potential for the future of solid waste management. This document provides a summary of the engagement activities completed between March and May 2017, which included three in-person engagement sessions in Regina, Saskatoon and Prince Albert, an online webinar and an online survey. 1.2. Vision for a Solid Waste Management Strategy The Solid Waste Management Strategy (the strategy) will serve as Saskatchewan's roadmap for waste reduction and management by outlining long-term goals and actions to support change. It will contribute to the management and protection of Saskatchewan's environment for the well-being of the province, its people and its future. The strategy will affirm the government's commitment and direction regarding the management and diversion of solid waste in Saskatchewan. Our vision is to create a practical, sustainable and integrated solid waste management system that considers best practices for waste reduction, disposal, economic development, innovation and environmental protection. The strategy aims to support these goals and objectives within three strategic priorities: waste stewardship and recycling; landfill management; and government leadership. 1.3. Commitment to Stakeholder Engagement Saskatchewan embedded its commitment to engage the public, including First Nations and Métis communities, co-regulators, industry, and non-governmental organizations in helping define a provincial vision for solid waste management in the Ministry of Environment Plan for 2017-18. The goal of the engagement plan was to work directly with interested participants to better understand their concerns and aspirations, and give them an opportunity to contribute to the strategy as much as feasible through a multifaceted approach that included engagement workshops, an online webinar and a survey. Comments and input received from the engagement sessions will inform the provincial solid waste management strategy, and further develop areas of action for future short- and medium-term plans. 2. Engagement 2.1. Engagement Activities During the first week of May 2017, the Government of Saskatchewan facilitated in-person engagement sessions in Regina, Saskatoon and Prince Albert. These engagement sessions included members of the general public, First Nation and Métis communities, rural and urban municipalities, consultants, private waste facility operators, stewardship organizations involved in waste management, and recycling representatives. Online survey participants were also diverse, consisting of a large cross-section of different sectors, with most representing municipal governments. A total of 115 people attended the in-person workshops and the May 28 webinar; the ministry received 64 responses through the online survey and 32 written submissions. In total, 97 organizations (Appendix A) were represented in the engagement process. 1

The in-person engagement sessions included presentations by ministry personnel on the current state of waste management in the province and factors for consideration for the development of the strategy, followed by indepth group discussion sessions to obtain feedback on participant concerns, aspirations and ideas for waste management in the province. Key questions on the overarching strategy, and specific to each of the three strategic priorities (landfill management, waste stewardship and recycling and government leadership), helped identify public concerns and overall interests. Participants were asked a series of questions on the three strategic priorities during the in-person engagement sessions. The purpose of the group discussions was to identify current issues, personal experiences, and future aspirations for waste management in Saskatchewan. The group discussions, along with input received from the webinar, online survey and written comments, were compiled and analysed. Common themes emerged and are outlined in the next section. 3. Informing the Strategy 3.1. Summary of Stakeholder Input Input from engagement activities is organized under the three strategic priorities outlined in the strategy, which include landfill management, waste stewardship and recycling, and government leadership. A number of common themes were identified throughout the engagement activities including: funding, geographic challenges, regionalization, harmonization, enhanced regulatory and enforcement requirements, and education, among others. 3.2. Landfill Management Funding Many participants, including 66 per cent of online survey respondents, raised concern about the true costs of landfilling not being accurately reflected in the cost to users for utilizing landfills for their waste. Forty-two per cent of survey respondents felt that tipping fees are too low to cover the costs of operation and decommissioning. Participants also expressed concern that tipping fees are not consistent from one municipality to the next and provided examples of instances where waste is dumped in neighbouring municipalities with lower tipping fees. Some municipalities with higher tipping fees find that waste is illegally dumped elsewhere. Feedback received from participants, including 46 per cent of survey respondents, stated that landfill operation certification programs and training are necessary for municipal landfill operators. Those respondents believe this would provide municipal landfill operators with accurate information regarding the true costs of operating landfills, how to appropriately separate and manage wastes, and how to establish site-specific tipping fees. Participants further indicated that in parallel to certification of landfill operators, there must also be enhanced education and awareness for the general public so they are aware of appropriate waste disposal methods, why tipping fees are created, how they are calculated, how the money is used, and the environmental and legal consequences of illegally dumping waste. Participants also expressed concern that landfill operators incur large capital expenditures. They would like to see government provide more regulatory certainty to avoid risk and financial liability. It was also suggested that there is a need to find sustainable solutions to address the logistical costs and challenges created by the distances between landfills. 2

Respondents also suggested implementing a waste management levy to ensure facilities are able to cover the costs of construction, operation, decommissioning and monitoring of facilities according to government regulations and industry best practices. Regionalization During the engagement sessions, many participants either expressed concern about the number of landfills in Saskatchewan, or agreed that the number of landfills is high and unsustainable. While most participants agree that the number of landfills should be reduced, methods for reducing the number of landfills were a matter of debate. When asked about potential methods for reducing landfills some participants indicated that the implementation of regional waste management authorities is necessary and that by reducing the number of landfills to a manageable number, those landfills could then be more sustainable and properly engineered. Some participants recommended that regions be designated across the province similar to the municipal Planning Districts or Transportation Regions. However, others voiced the opinion that the development of regions may make sense for municipalities where economies of scale may provide greater efficiencies and ease cost burdens; though other municipalities should not be forced into a region. Some participants voiced concern that recent and significant investments made into their landfills may be lost if they were forced to close as a result of regionalization. Others raised concern that regionalization could result in other issues such as increased greenhouse gas (GHG) emissions due to longer distances travelled for hauling waste, negative impacts to municipal infrastructure (roads and bridges) through increased use, and an increase in littering as people will not want to travel further distances to properly dispose of their waste. The results of the survey capture this division of opinion as an equal percentage of respondents. While 20 per cent of survey respondents reported that mandating municipal landfills to join regional waste management authorities would be very important, 20 per cent also indicated that they believe regional waste management will have no value in supporting responsible waste management. Some participants had concerns that the potential regionalization and closure of certain landfills, as well as the adoption of new measures for waste management, pose significant costs for some municipalities, which expressed that this would be overwhelming. Suggestions were made that government funding would be necessary to assist municipalities in achieving sustainable, long-term solutions. Regulations and Enforcement The enforcement of regulations was a topic of great interest during the engagement sessions and nearly half of survey respondents, 49 per cent, feel that a lack of enforcement of regulations poses a barrier to appropriate waste management for the province. We heard that the regulatory enforcement of The Municipal Refuse Management Regulations (MRMR) needs to be firm and should better scrutinize un-engineered landfills. This would reduce the number of at-risk landfills and facilitate the movement towards sustainable landfill solutions. The survey results also reflected that 55 per cent of respondents feel that the closure and decommissioning of landfills that do not meet regulatory requirements would help advance appropriate waste management for the province. Some participants indicate that they believe audits are beneficial, and advocate for more frequent audits to help regulate landfills and encourage sustainable practices. 3

Education and Awareness Participants expressed the need for enhanced educational programs to raise awareness of MRMR, and to assist in enhancing regulatory compliance. Likewise, a well-researched and constructed educational program for the implementation of MRMR will allow government to better understand and address municipalities issues and barriers to compliance. Such programming would allow the regulated community and government to better understand one another s regulatory needs. Many participants recognized that MRMR was relevant to the issues of waste management in the early 1980s, but voiced that those regulations are outdated and need to be reviewed and revised to be relevant to waste management issues and best practices of today. Harmonization Throughout the engagement sessions, and in the online and written submissions, stakeholders indicated that they believe there is a need to clearly identify the roles and responsibilities for all levels of government. Stakeholders pointed out that while landfills on First Nation reserves are federally regulated, many First Nation reserves share landfills with neighbouring northern municipalities. Due to this federal-municipal overlap, it was recommended that when regulating landfills in northern and remote regions, including First Nation reserves, there needs to be ongoing collaboration between the federal and provincial government, and with the First Nation and municipality. 3.3. Waste Stewardship and Recycling Waste Diversion and Reduction Many participants stated that waste diversion, through reuse and recycling efforts, is critical to the success of a solid waste management strategy for Saskatchewan. With regards to diversion, participants strongly expressed that a diversion program for household hazardous waste (HHW) materials is needed within the province. HHW was identified as the top priority among respondents, with 78 per cent of online survey respondents stating that a regulated program for HHW was important or very important for responsible waste management in the province. Participants expressed concerns that in the absence of a program for HHW, toxic materials are disposed of inappropriately, resulting in environmental harm and forcing operators to shoulder the high processing costs of HHW without dedicated budgets. Participants indicated that the provincial government should implement landfill bans on those products for which there are imminent risk (i.e. HHW) and stewardship programs should be available to divert certain wastes from landfills. While HHW was a top concern amongst participants, survey respondents also identified the following priorities for regulatory programs by rating them as either important or very important: small appliances at 64 per cent; large appliances at 63 per cent; construction, renovation and demolition waste at 62 per cent; furniture and mattresses at 60 per cent; institutional, commercial and industrial waste at 59 per cent; and organic waste at 53 per cent. 4

A number of stakeholders clearly articulated the need for a cost-benefit analysis to show the benefit of waste diversion and recycling programs for the province. In written submissions, respondents recommended that minimum targets for waste diversion should be established that take regional constraints into consideration. In addition, programs should be reviewed periodically to ensure they are still effective, relevant and efficient. Extended Producer Responsibility (EPR) and Diversion Programs Concern was raised that municipalities have to deal with increasing volumes of construction, renovation and demolition waste, especially in areas of the province experiencing population growth. Forty-four per cent of respondents felt that a regulated program for construction, renovation and demolition waste is a very important initiative for waste management in the province. Participants recommended that government should acquire robust data on waste generated in the province through waste audits in order to identify future programming needs for waste diversion, such as extended producer responsibility (EPR) programs or alternatives. Many stakeholders expressed the opinion that EPR programs work well in the province, and that the government should continue using this recycling program model to further support ongoing waste diversion. However, certain stakeholders expressed their belief that while EPR model programs may work for consumer waste, they are not a model for waste derived from commercial activities (i.e. industrial, commercial and institutional wastes, and construction, renovation and demolition wastes). Further, it was stated that market-based recovery and commercialization options are available for commercial waste management, which is not available for consumer wastes. Others stated that large appliances and bulky items, such as table saws for example, should not be regulated by an EPR model as there is either a significant market for scrap materials or for second-hand use, which an EPR model could upset. Although EPR or diversion programs may be an option, participants also expressed concern that adding new programs may pose their own challenges, such as collection capacity, funding for the programs, and potential consumer confusion. Access to Recycling Programs Approximately 70 per cent of respondents identified access to provincial recycling programs as a barrier to responsible and appropriate waste management. Lack of provincial programs for household hazardous waste and other materials makes it difficult to minimize and divert waste. A high number (63 per cent) of respondents suggest regulated recycling program for construction, renovation and demolition (CRD) waste as potential actions to support waste diversion and recycling. It was further indicated that rural communities have aging infrastructure and the cost barriers to tear down and remove waste from rapidly deteriorating buildings is prohibitive. Participants stated that there needs to be cost-effective solutions for communities to dispose of old dangerous buildings. Another suggestion was to include municipal composting facilities with residential and commercial collection programs. 5

Geographic Proximity Workshop and webinar participants identified geographic circumstances as a factor in the management of landfills. It was recognized that large urban centres, rural municipalities, small communities, and northern communities each face unique circumstances and challenges. Just over half of survey respondents (52 per cent) identified geographic location as a barrier to appropriate waste management for the province. Another concern raised was the transportation costs of materials. Throughout the engagement sessions it was expressed that all residents of Saskatchewan should have reasonable access to waste diversion opportunities. Participants also recommended that government needs to ensure consistent access to programs throughout the province, while also addressing region-specific needs. Many remote regions do not have access to the waste diversion opportunities available in large cities, such as Regina and Saskatoon. Participants advocated that a meaningful way to divert waste from landfills is to establish bins for front-end diversion of waste inside the gate at landfills so users can sort their waste and divert it before it goes to the landfill. It was acknowledged that such a system would require controlled entry to the landfill and supervision, and that this may be an option for municipalities that do not have the financial capacity for a curbside recycling program. Participants also expressed the need for support and encouragement of entrepreneurship in isolated northern communities and First Nation reserves to help reduce the overall amount of waste generated in particular regions. Education and Participation Participants indicated that education on recycling programs is vital to the long-term success of waste management in the province. Additionally, reporting on how environmental handling fees are utilized would help to increase public understanding and confidence in recycling programs. It was further expressed that in order to make waste reduction and recycling a public priority, government needs to provide communication and education for the public on waste reduction initiatives. Participants indicated that economies of scale are needed to ensure recyclable materials are marketable, with recycling programs tailored towards specific geographic areas. Many stakeholders noted that success in this area is achieved in some northern communities where recyclables are collected in a central location and shipped south for processing. Participants indicated that they believe the uptake of recycling will increase if the recycling programs are designed to be as convenient as possible for residents. Examples of convenient recycling programs include curbside pickup programs and drop-off locations close to residences where multiple types of recyclables can be dropped off at a given location. Participants also noted that the creation of more recycling drop-off locations in rural and northern locations would increase diversion. It was stated that people will recycle if the level of effort required to recycle is reasonable. Standardization The standardization of waste and recycling programs and regulations across the province was identified as a requirement for enabling operators to be successful. While operators need a clear understanding of best practices and regulatory requirements, all communities also need to have access to the similar programs and services to ensure effective waste management. Survey respondents rated varying regulatory and procedural changes as key to supporting responsible waste management with close to half (43 per cent) supporting updates 6

to the MRMR, 46 per cent supporting formalizing waste management facilities in the Saskatchewan Environmental Code, and 46 percent supporting mandated landfill operator certification. Over half of survey respondents (56 per cent) also identified closure of non-compliant landfills, encouraging regional partnerships and collaboration (71 per cent), and increased access to disposal options for Indigenous communities (62 per cent) as key components for supporting waste management. Less than half (38 per cent) preferred mandating regional waste management authorities. 3.4. Government Leadership Leadership Many participants reported that government is the central source of direction and support for waste management in the province. It was expressed that government needs a champion to promote waste management improvements, and there should be a clear and focused direction and an explicit commitment to the strategy at the decision-making level. To promote long-term sustainable waste management in Saskatchewan, participants further indicated that a coordinated one-team approach is necessary to provide consistency in planning and regulation, and that measurable targets for stewardship programs are needed. Some survey respondents (34 per cent) felt that conducting a government-wide internal waste audit to identify waste generation and options for improvement in government operations is necessary to demonstrating government leadership. Participants expressed a desire for government to engage as broadly as possible on the strategy, and recommended that the engagement sessions be expanded to include more communities, particularly those in smaller urban and rural areas as well as remote and northern communities. It was suggested that government provide opportunities for innovation through research and development initiatives and grants while also formally recognizing and acknowledging businesses and operators that are meeting and/or exceeding current standards. Government could also promote business opportunities to address waste stewardship and recycling needs for the province. Stakeholders also identified engagement and coordination with Indigenous communities as a key step in government leadership for waste management in the province. Access to Information and Technologies A large majority of respondents identified that a lack of access to appropriate technologies (e.g., landfill scale) are potential barriers to responsible and appropriate waste management. It was also suggested that responsible and appropriate waste management strategies need to be risk-informed and science-based, and that best available science, inclusive site-specific information, should be used to inform decisions on appropriate management strategies. 7

Waste Diversion and Reduction Participants suggested that future measures for waste diversion and reduction should be realistic, with a focus on trends as opposed to numbers. Participants raised their concern that although diversion targets are important for a successful strategy, conditions beyond a program s control (i.e. economic conditions or redesign of products) may make it difficult to establish and measure diversion targets through reporting data. Some stakeholders suggested that at a minimum, programs should be able to report the amount of materials diverted from waste streams and the associated environmental benefits. Participants also voiced particular concern regarding mandating targets in regulations for EPR programs. Industry and stewardship program operators have requested that consultation take place prior to the consideration of diversion targets to fully understand the impacts of alternative methods, ensure environmental outcomes are met, and facilitate continuous improvement on future diversion plans. Enforcement Participants identified that a key step in government leadership is for government to commit greater resources towards landfill compliance and enforcement. Suggested approaches included increasing thenumber of environmental protection officers and facility audits to facilitate the efficient and effective administration of solid waste management, and ensure environmental protection goals are met. Some stakeholders suggested that additional compliance checking would serve to ensure a level playing field for all operators and reduce the risk of adverse environmental impacts stemming from non-compliant landfills. Participants also reported that access to information on regulatory requirements, particularly when changes are made, is key to cost-effective planning for landfill management. Harmonization Participants indicated that program and regulatory considerations should be based on current science and best practices, and product categories for regulated recycling programs should be clear and unambiguous (i.e., HHW). Participants also expressed that waste stewardship and recycling regulations should be harmonized with those in other provinces to facilitate recycling of products available nationwide, which would streamline recycling programs and requirements. Some participants believed that this would allow for best practices and innovation to be incorporated into recycling programs along with the sharing of experiences and expertise from other jurisdictions. More than half of survey respondents (59 per cent) felt that working with industry partners to identify and implement best practices was a key aspect of government leadership. Education Participants expressed that government should include funding commitments, education and awareness programs, and guidance alongside regulatory changes to ensure that proper planning can be implemented as efficiently and cost-effectively as possible. Participants also noted that government should implement and maintain a central repository of data and information on landfill management, recycling best practices and available programs, and information on new research and development. This central repository should be easily accessible throughout the province. Establishing research programs to obtain current scientific information and training standards were also recommended. Almost 70 per cent of survey respondent indicated that they believe 8

the development of a province-wide educational awareness campaign could be a means of government providing leadership in waste management. Many survey respondents (59 per cent) advocated for policies and incentives to support research and development in waste management including collaboration with universities. Many stakeholders reported a lack of availability and access to standardized science-based information, training and educational materials on landfill management. They identified that a lack of requirements, best practices, training and programs creates challenges in the administration of landfills. This ultimately leads to varying management practices throughout the province. It was expressed that there is a need for ongoing communication and sharing of information across regions. Sixty per cent of survey participants identified a lack of public education as a cause of inappropriate disposal of waste material. 4. Moving Forward The vision for a solid waste management strategy for the province is to create a practical, sustainable, and integrated solid waste management system that considers best practices for waste reduction, disposal, economic development, innovation, and environmental protection. The first step to guide Saskatchewan's solid waste management efforts will be the development of a strategy that will provide the overarching framework to facilitate and encourage long-term waste management in Saskatchewan. Once the strategy is finalized, the next phase will involve the development of short- and medium-term action plans to implement initiatives to reduce and/or manage waste in Saskatchewan. The input provided so far is helping government to understand key interests and concerns to be considered in the development of the strategy. Thank you again to the many individuals and organizations that participated in the engagement activities for solid waste management in Saskatchewan. Please stay tuned for future engagement opportunities. 9

Appendix A: Participating Organizations # Stakeholder Participants 1 55 Waste Management Corporation 2 Associated Environmental/Associated Engineering 3 Association of Home Appliance Manufacturers 4 BioMed Recovery & Disposal Ltd. 5 Call 2 Recycle 6 Cameco 7 Canadain Natural Resources Ltd 8 Canadian Consumer Specialty Products Association 9 Canadian Electrical Stewardship Association 10 Canadian Tire 11 Catterall & Wright Consulting Engineers 12 Cesa Recycling 13 City of Martensville 14 City of Melville 15 City of Moose Jaw 16 City of Regina 17 City of Saskatoon 18 City of Warman 19 City of Yorkton 20 Clean FARMS 21 Conseiller, Environnement 22 Cosmo Industries 23 Cote First Nation 24 CropLife Canada 25 District of Lakeland No.521 26 Electronic Products Recycling Association 27 Electronic Products Stewardship Canada 28 Even Stone Consulting 29 Federated Coop 30 Fenton Law 31 Fertilizer Canada 32 First Nations 33 Gibson Energy 34 Global Automakers of Canada 35 Health Products Stewardship Association 36 KGS Group Consulting Engineers 37 Loraas Disposal Services 38 Ministry of Agriculture 39 Ministry of Central Services 10

40 Ministry of Education 41 Ministry of Environment 42 Ministry of Government Relations 43 Ministry of Health 44 Ministry of the Economy 45 Multi-Material Stewardship Western 46 Northern Engineering 47 Northern Hamlet of Weyakwin 48 Northern Village of Ile a la Crosse 49 Northwest Regional Waste Management Authority Inc 50 PAGC - Housing & Technical Services 51 Philips Canada 52 Premier Tech Home & Garden Inc. 53 Product Care Association 54 QM Environmental 55 R.M. of Key West No. 70 56 REACT Waste Management 57 Recycle Saskatchewan 58 Red Coat Waste Authority 59 Regens Disposal 60 Regina Chamber of Commerce 61 Regina Qu'Appelle Health Region 62 Retail Council of Canada 63 RM 166 (Excelsior) 64 RM 254 (Loreburn) 65 RM of Canwood 66 RM of Whiska Creek No. 106 67 SARCAN Recycling 68 Saskatchewan Association for Resource Recovery Corp. 69 Saskatchewan Association of Rural Municipalities 70 Saskatchewan Chamber of Commerce 71 Saskatchewan Electronics Products Recycling Association 72 Saskatchewan Mining Association 73 Saskatchewan Scrap Tire Corporation 74 Saskatchewan Urban Municipalities Association 75 Saskatchewan Waste Reduction Council 76 Sasktel 77 SaskWater 78 Scotts Canada Limited 79 SHERCOM 80 SK Landfill Advisory Team 81 SNC-Lavalin 11

82 Solid Waste Association of North America 83 Solid Waste Association of North America - Northern Lights Division 84 StrategyMakers Consulting Inc. 85 Tervita Corporation 86 Toshiba of Canada Limited 87 Town of Eston 88 Town of Hanley 89 Town of Hudson Bay 90 Town of Lumsden 91 University of Regina 92 University of Saskatchewan 93 Village of Green Lake 94 Village of Vanguard 95 Waste Management of Canada Corporation 96 Water Security Agency 97 WhirlPool Canada 12