NATIONAL CONSTRUCTION, RENOVATION AND DEMOLITION NON-HAZARDOUS SOLID WASTE MANAGEMENT PROTOCOL
EXECUTIVE SUMMARY Construction, Renovation and Demolition (CRD) waste accounts for approximately 30 % of the waste produced annually in Canada. A large portion of CRD waste can be diverted from landfill through reuse or recycling initiatives. The CRD Waste Management Protocol has been developed as a complimentary implementation tool for the National CRD Non-Hazardous Solid Waste Management Strategy. Together, they provide direction for Real Property Services to undertake non-hazardous solid waste management actions for CRD projects. The inclusion of waste management into CRD projects has evolved as a consequence of federal policies, provincial regulations, research projects determining best practices as well as the goals outlined in the PWGSC Sustainable Development Strategy (SDS). Purpose of the protocol To facilitate the integration of waste management practices in CRD projects. Goal of the protocol To provide clear and concise guidelines for project and property managers, contractors, architecture and engineering consultants and environmental consultants, to find cost effective and environmentally responsible alternatives to traditional waste disposal practices. To provide practical "how to" information to facilitate waste reduction. Intensive CRD waste management is a relatively new issue for most project managers. Until recently, waste generated during CRD projects was traditionally disposed directly into landfills without the implementation of waste diversion initiatives. However, as landfill restrictions and disposal costs are increasing, contractors and their clients are realizing the importance of sound waste management practices. These practices are becoming more demanding and generally require more planning, training and on-site implementation time than has been customary. In fact, demonstration projects have shown that the diversion of waste from landfill can reduce project disposal costs by up to 30 %. Waste management planning should become a routine part of every project to achieve reduced environmental impacts and cost savings. Each project will generate different CRD waste types as situations change, new technologies arise and problems and opportunities are seen in a new light. With the CRD Waste Management Protocol, the implementation of a successful waste management program can become a reality and a benchmark for the future.
TABLE OF CONTENTS 1.0 INTRODUCTION 1 2.0 PROTOCOL RATIONALE 2 2.1 FEDERAL REGULATIONS AND POLICIES 2 2.2 PROVINCIAL REGULATIONS AND POLICIES 4 2.3 ENVIRONMENTAL IMPACTS 6 2.4 POTENTIAL COST SAVINGS 7 3.0OVERVIEW OF THE PROTOCOL 7 4.0 CONTENTS OF THE PROTOCOL 8 4.1 PART I - THE WASTE MANAGEMENT STRATEGY 8 4.2 PART II - THE WASTE DIVERSION WORKPLAN 9 5.0 THE PROJECT FRAMEWORK 10 5.1 PROJECT BRIEFING 10 5.2 THE NATIONAL MASTER SPECIFICATION 11 5.3 NMS NON-HAZARDOUS WASTE AND MATERIALS MANAGEMENT SPECIFICATIONS 12 5.4 CONSTRUCTION, RENOVATION AND DEMOLITION CONTRACT DOCUMENTS 13 5.5 THE PRIME CONSULTANT 13 5.6 DESIGN FOR DISASSEMBLY 14 5.7 THE WASTE MANAGEMENT SPECIALIST 16 5.8 THE GENERAL CONTRACTOR 17 5.9 PROPOSED CONTRACTING PROCEDURE 18 5.10 ADDITIONAL CONTRACTING PROCEDURES 20 6.0THE WASTE MANAGEMENT STRATEGY 21 6.1 THE PRELIMINARY EVALUATION 22 6.2 PRE-AUDIT ACTIVITIES 24 6.3 IDENTIFICATION OF MATERIALS TYPES 27 6.4 QUANTIFICATION OF MATERIALS 28 6.5 FINAL WASTE AUDIT COMPONENTS 29 7.0 THE WASTE DIVERSION WORKPLAN 29 7.1 IDENTIFYING AREAS OF GREATEST WASTE DIVERSION POTENTIAL 30 7.2 ASSESSING WASTE DIVERSION PRIORITIES 31 1
7.3 OPPORTUNITIES FOR REUSING, RECYCLING AND REDUCING WASTES 31 7.4 FINAL WASTE DIVERSION WORKPLAN COMPONENTS 41 8.0 THE WASTE DIVERSION WORKPLAN REPORT 42 9.0 SELECTION OF A GENERAL CONTRACTOR 43 9.1 SUBCONTRACTOR COMMITMENT 45 10.0 APPOINTMENT OF A FACILITATOR 46 11.0 IMPLEMENTATION 47 11.1 COMMUNICATING TO SITE PERSONNEL 47 11.2 DEVELOPING A COMMUNICATIONS STRATEGY 48 11.3 INCENTIVES 48 11.4 REWARDS 49 11.5 PROJECT TRACKING 49 11.6 MONITORING AND TRACKING OF WASTE DIVERSION PRACTICES 50 11.6.1 WRITING THE REPORT 50 2
APPENDIX A - SAMPLE REQUEST FOR PROPOSAL (SELECTING A PRIME CONSULTANT) A1 APPENDIX B - SAMPLE REQUEST FOR PROPOSAL (FOR INCLUSION FOR DEMOLITION WASTE AUDIT &WASTE REDUCTION WORKPLAN WHEN HIRING A GENERAL CONTRACTOR) B1 APPENDIX C - SAMPLE REQUEST FOR PROPOSAL (SELECTING A GENRAL CONTRACTOR) C1 APPENDIX D - CRD WASTE MANAGEMENT COST BENEFIT SCREENING PROCESS D1 APPENDIX E - SAMPLE LETTER OF NOTIFICATION E1 APPENDIX F - SAMPLE WASTE AUDIT WORKSHEET F1 APPENDIX G - SAMPLE WASTE AUDIT & WASTE REDUCTION WORKPLAN REPORT G1 APPENDIX H - SAMPLE PROJECT WASTE TRACKING FORMS H1 APPENDIX I - SAMPLE SITE COMMUNICATION CHECKLISTS I1 APPENDIX J - SAMPLE SITE WASTE TRACKING FORMS J1
1.0 INTRODUCTION The diversion of construction, renovations and demolition (CRD) waste from landfill sites is an issue gaining attention within both the public and private sectors. Surveys have indicated that up to 30% of total municipal waste streams is generated by CRD activities. This material represents an inefficient use of natural resources, consumes valuable landfill space and contributes to escalating disposal costs. These increasing costs of disposal are ultimately reflected in job costs, as contractors must incorporate anticipated disposal costs in job bids. Facts such as these highlight the need for taking action on reducing and diverting as much waste as possible from CRD activities. Over the past few years, the Federal Government of Canada has taken substantial strides towards greening its operations. Firstly, pursuant to the 1995 amendments to the Auditor General Act, federal government departments were required to table their Sustainable Development Strategies (SDS) in the House of Commons by December 31, 1997. In response to this legislative requirement, Real Property Services (RPS) of Public Works and Government Services Canada (PWGSC) has developed sustainable development commitments which establishes the branch's goals, objectives and actions for integrating sustainable development principles into its policies and operations. Secondly, as part of its SDS, RPS integrates the requirements of the Greening of Government Operations policy, approved by Cabinet in April 1995. This policy commits federal departments and agencies to address specific issues in their SDSs. Non-Hazardous solid waste management has been included as one of the priority areas within the RPS sustainable development commitments and one of the seven issues endorsed in the Greening of Government Operation's Best Practices. 1
PWGSC is committed to conducting its business in the most environmentally responsible way possible, consistent with its objectives of sustainable development. With this commitment in mind, several initiatives have been undertaken. Recently, a National CRD Non-hazardous Solid Waste Management Strategy was prepared to provide the framework to assist department branches to meet its objectives and targets relating to CRD solid waste management. The RPS Construction, Renovation and Demolition Waste Management Protocol has been developed as a complimentary implementation tool. A large portion of CRD waste can be diverted from landfill through reuse or recycling initiatives. At the same time, it must be recognized that a managed approach to handling CRD waste requires additional time and resources for planing and execution. In a well-planned and executed waste management program, these additional investments are commonly offset or more than offset by cost savings and revenues. Responding to the PWGSC sustainable development commitments, PWGSC project managers are beginning to embrace the principles of waste reduction in CRD projects. 2.0 PROTOCOL RATIONALE The inclusion of waste management into CRD projects has evolved as a consequence of federal policies, provincial regulations, and research projects that have determined best practices. The following provides rationale for the development of this protocol. 2.1 FEDERAL REGULATIONS AND POLICIES At present, there are no binding federal regulations or legislation requiring the implementation of solid waste reduction measures for CRD waste. However, federal government policies have recently been developed. 2
These federal policies ensure the federal government's commitment to protecting the environment, preventing the creation of pollution, and conserving resources by using processes, materials, products, and/or energy that avoids or minimizes the creation of pollutants and waste. In turn, these policies reduce the overall risk to human health and the environment. The federal policies relevant to solid waste reduction in CRD projects are described below. Amendments to the Auditor General Act, in 1995, required all federal government departments to develop a SDS and table it in the House of Commons by December 1997. In response to this legislative requirement, RPS has developed sustainable development commitments which outline the branch's goals, objectives and actions for integrating sustainable development principles into its policies and operations. The Greening of Government Operations policy, approved by Cabinet in April 1995, commits federal organizations to address specific issues in their SDSs. The goals of the policy and the SDS are to reiterate its priority to meet or exceed applicable environmental statues, regulations and policies, by developing and implementing Environmental Management Systems (EMS) and best practices on several operational issues. The RPS EMS will provide the framework by which the branch will be able to meet its objectives and targets relating to CRD solid waste management. As part of the requirements of the Greening of Government Operations policy and the Auditor General Act, PWGSC tabled its SDS in Parliament on April 22, 1997. Within the RPS branch, the Architecture and Engineering Services (A&ES) Division coordinated the development of the RPS SDS, which was approved by the RPS Management Committee on December 18, 1996. 3
The RPS SDS lays out goals, objectives and actions for integrating sustainable development principles into RPS policies and operations. The RPS SDS covers the full range of RPS's environmental responsibilities including: the development of a comprehensive EMS; the demonstration of environmental leadership; and the reiteration of its priority to meet or exceed applicable environmental legislation. The Framework for the Development of the RPS EMS and the accompanying RPS CRD Non-Hazardous Solid Waste Management Strategy address the management of non-hazardous solid waste generated in CRD projects. The following target had been established for the management of solid waste generated by CRD activities. Improve application of construction, renovation and demolition (CRD) waste management practices by at least 25% per year to reacgh full implementation by March 2004 (reflects SDGO target). The Canadian Council of Ministers of the Environment (CCME) solid waste reduction goal was to divert 50% of solid wastes sent for disposal (i.e. to landfill or incinerator) by the year 2000, relative to 1988 levels. 2.2 PROVINCIAL REGULATIONS AND POLICIES Ontario is the only province regulating the necessity of waste management programs for CRD projects. In 1994, the Ontario Ministry of the Environment (MOE) passed the 3Rs Regulations. The 3Rs Regulations are intended to ensure that municipalities as well as industrial, commercial and institutional sectors, develop programs to reduce the amount of material being sent to landfill. 4
The goal of the regulations was to reduce the amount of waste material requiring disposal in landfill, by at least 50% by the year 2000 compared to the base year of 1987. The two applicable regulations pertaining to CRD projects are Regulations 102/94 and 103/94. These regulations apply to CRD projects for one or more buildings with a total floor area of at least 2,000 square metres. The waste reduction activities required under Regulation 102/94 include the following: the completion of a waste audit which identifies the amount and nature of the waste that will be generated; the development of a waste reduction workplan which outlines specific achievable diversion options for reduction, reuse, and recycling; the implementation of a waste reduction workplan; the documentation of the waste audit and workplan results on forms provided by the MOE or forms that have been designed in similar format; and the retention of a copy of the audit and workplan documents on file for five years from completion of the project. Regulation 102/94 requires that the waste audit is conducted and the workplan completed before the beginning of the CRD project. Therefore, the audit and the workplan will need to be completed in conjunction with the project's other planning activities. Regulation 103/94, deals with ICI source separation programs which requires the following activities: the implementation of a source separation program for the reusable and recyclable materials listed in Regulation 102/94; 5
the specification of facilities that are sufficient for the collection, sorting, handling and storage of these materials; the communication of the source separation program and its successes to employees, patrons, and tenants; and reasonable effort in ensuring that the separated waste is reused or recycled. The Ontario 3Rs Regulations requires that CRD projects greater than 2,000 m 2 conduct a waste audit and develop a waste reduction workplan. However, above and beyond this requirement, the PWGSC SDS requires that projects whose area is less than 2,000 m 2 must also proceed with a preliminary evaluation in order to determine the extent of the waste management practices that should be undertaken. The requirement also applies to civil engineering projects where area is not a reasonable criteria of the scale of the project. In the instance of civil engineering projects, the preliminary evaluation process should be employed. This process is described in Section 6.1 of this protocol. 2.3 ENVIRONMENTAL IMPACTS As stated, CRD waste accounts for approximately 30% of the waste produced annually in Canada. This is problematic for a number of reasons. The most obvious problem is that seven million tonnes of this material are sent to landfill annually. Existing landfill sites are quickly reaching their capacity, resulting in the requirement of new landfill sites. Odours, increased traffic, and potential problems with ground and surface water contamination are among the many reasons why residents are opposed to the development of landfill sites in their neighborhood. Although new landfills are engineered to have leachate and methane control systems, older sites may not have these design features. In addition to the problems with leachate and methane gas build up, there is the loss of land to landfilling which, because of the need for disposal space, can no longer be used for a more productive purpose. 6
Less obvious, but equally important, is that the extraction and transformation of natural resources has its own environmental impacts. This includes habitat destruction, resource depletion, energy use, air pollution, water pollution and solid waste problems. The recovery of the natural resources that are embodied in CRD waste materials reduces the necessity to extract some of these natural resources. 2.4 POTENTIAL COST SAVINGS In the past, contractors have known that there are economic reasons for reducing the amount of materials that they dispose of and for salvaging metals and other selected materials. Demonstration projects have shown the diversion of waste from landfill can reduce project disposal costs by up to 30%. This is made possible through reduced tipping and haulage fees, as well as the sale of reusable and recyclable materials. The potential savings depends heavily on the project at hand and its location. Therefore, it is important to carefully analyze each case to determine the practical extent to which waste management activities should be pursued and the potential savings that may be expected. This potential for cost savings and/or revenue from the waste management initiative should either partially, completely or more than completely offset the additional expense and time required to implement the initiative. 3.0 OVERVIEW OF THE PROTOCOL The purpose of the CRD Waste Management Protocol is to facilitate the integration of waste management practices in CRD projects. The goal of the protocol is to provide clear and concise guidelines for project and property managers, architecture and engineering consultants, environmental consultants and contractors to facilitate their efforts to find cost effective and environmentally responsible alternatives to traditional waste disposal practices. 7
The protocol provides practical "how to" information to facilitate waste reduction. It will allow project managers to develop an inventory of materials that can be diverted from a proposed CRD project, prior to the actual commencement of the work. Once an inventory of materials is developed, managers will be able to more accurately: track the disposal costs of the CRD project; determine the potential for recycling and/or reuse of building materials; and arrange for proper disposal of waste that cannot otherwise be diverted from landfill. 4.0 CONTENTS OF THE PROTOCOL The protocol consists of two sections. They are a Waste Management Strategy and a Waste Diversion Work plan. The protocol also contains a number of Appendices that contain tools to assist in the CRD waste management process. 4.1 PART I - THE WASTE MANAGEMENT STRATEGY Successful waste diversion ratios are achieved if the process is clearly defined to all members of the project team. A waste management strategy provides communication through the development of contract documents, projects specifications and accurate evaluation of anticipated material types and quantities via a waste audit. The waste audit provides data that identifies areas where environmental impacts can be reduced. Once the material types and quantities have been identified, the process can continue to the development of project specifications and the development of contract processes and documents. The protocol also addresses the use of tools such as the National Master Specification (NMS) that can provide direction during the specification process. 8
4.2 PART II - THE WASTE DIVERSION WORKPLAN Following the development of the waste management strategy, the next step of the protocol addresses the development of a waste diversion workplan that provides direction during the project implementation stage. The workplan details the development of a systematic approach to the management of the materials that have been identified in the strategy. The waste diversion workplan has been based upon the 3Rs hierarchy, however, the order has been restructured to place the emphasis on reuse, then recycle and finally reduce. The waste diversion workplan also permits for the cataloging of materials that may have potential for on-site reuse or diversion to other facilities that will offer the materials for external reuse. Recycling of materials requires the identification of local markets and facilities. Many construction materials are generally recyclable. These materials may include wiring, metals or glass. Other materials such as asphalt shingles or drywall have regionally limited markets. Thus, for each project local recycling markets will require identification. The recyclability of construction materials is often affected by the degree of sorting required. Contaminated loads of materials are often disposed into landfill sites. Therefore, it is imperative that this issue be addressed during the development of the action plan. This portion of the protocol also addresses options for site setup to facilitate proper recycling. The protocol is structured to provide for the development of actions that will allow for optimized recycling percentages. During demolition procedures, the quantity of materials is fixed and reduction of quantity is not an option. However, on many construction projects it is possible to reduce materials such as packaging wastes and to reduce materials through the use of designing for resource efficiency and disassembly concepts. 9
5.0 THE PROJECT FRAMEWORK Intensive CRD waste management is a relatively new issue for most project managers. Until recently, waste generated during CRD projects was traditionally disposed of directly into landfills without the implementation of waste diversion initiatives. The costs associated with waste removal are routinely incorporated into bid pricing. However, as landfill restrictions and disposal costs are increasing, contractors and their clients are realizing the importance of sound waste management practices. These practices are becoming more demanding and generally require more planning, training and on-site implementation time than has been customary. In a well executed waste management program, these additional cost will be balanced by avoiding other costs such as haulage and tipping fees, the purchase of new materials, and by possible revenues from materials sales Prior to initiating actions regarding waste management, project managers must have a good understanding of the types and quantities of waste that will be generated and the diversion opportunities locally available. This section describes the initial planning requirements by providing a framework to ensure a systematic and thorough decision making process. Waste management planning should become a routine part of every project to achieve reduced environmental impacts and cost savings. Each project will generate different CRD waste types; situations change, new technologies arise, and problems and opportunities are seen in a new light. Consequently, plans become outdated if they are not assessed for each individual project. 5.1 PROJECT BRIEFING The objectives of a project are identified at the initial project briefing meeting. At this briefing, the project and property managers introduce the project and all relevant information. This includes: 10
the extent of the project; the necessity of a Prime Consultant, based on project size and complexity; project scheduling implications; required funding; and project details. In order for waste management to be successfully incorporated into CRD projects, these issues need to be incorporated at the initial planning stage. Initial contract documents are drafted based upon the decisions formed at this early level, and waste management requirements should be clearly defined in all related contract documents. 5.2 THE NATIONAL MASTER SPECIFICATION For most federal government projects, project managers use the National Master Specification (NMS) as a resource tool for writing construction, renovation and demolition specifications. Developed jointly by the public and private sector, the NMS is recognized by the Canadian construction industry as the leading construction specification tool. The NMS is a comprehensive library of construction specifications written in contract specification format. Its level of detail and complexity allows for maximum protection against duplication and errors, while minimizing the chances of misunderstandings, and liability in the delivery of construction contracts. The NMS is routinely reviewed by industry to ensure it represents current trade practices and construction technology. The following are also key characteristics that encourage the use of the NMS in the majority of federal CRD projects. Time Saving and Reduced Errors - using the NMS reduces time and costs involved in specification writing. Applicable project requirements can be selected from the NMS, resulting in clear and concise directions. Using this tool reduces the chances of error that can result from writing the document from scratch each time or copying specifications from a previous project. 11
Adaptability - because the NMS does not restrict the project team from using any products, design concepts, or construction techniques, it is flexible and suitable for use on projects of any scope or size. The sections of the NMS have been updated to include Environmental SPEC NOTES. These indicate to the specification writer where options have been identified that will reduce the environmental impacts of a project. This information identifies: materials selection, handling and installation processes; alternative disposal methods for CRD waste materials; and energy and water conservation technologies and practices. 5.3 NMS NON-HAZARDOUS WASTE AND MATERIALS MANAGEMENT SPECIFICATIONS The NMS has developed specifications for non-hazardous waste and materials management which are not specific to any particular project application. These specifications are currently published as Section 01355 and include the following components: a generic set of specifications which may be applied to a variety of CRD related projects; a waste audit sample schedule; a waste reduction workplan sample schedule; generic source separation guidelines; and a cost/revenue analysis workplan sample schedule to determine the economic status of waste reduction efforts. 12
5.4 CONSTRUCTION, RENOVATION AND DEMOLITION CONTRACT DOCUMENTS An integral part of all CRD projects are the contract documents. They set the legal conditions of the project by defining the scope of the work, the completion timeline and the associated costs. The contract documents include: the Agreement; the General Conditions; and the specifications and the drawings which detail the processes and materials that the contractor is to use on a project. Most project contracting procedures are similar. As new CRD projects evolve, PWGSC project managers introduce the project to senior management and request the necessary funding. Once approved, a request for proposal (RFP) is prepared for soliciting interest in the project. The RFP documents have traditionally defined the nature and scope of work to be performed and requests qualified firms to bid on the project. Depending on the size of the project, RFPs are either distributed to a selected number of consultants, or in the case where the project costs exceed $25,000, the RFP is advertised through an electronic open bidding system (MERX). The bids are evaluated using predefined selection criteria and a standard score sheet. The contract is then awarded based on the contractor qualifications and bid price. However, the RFP template document is currently under review and a slightly different approach to this procedure is being contemplated. 5.5 THE PRIME CONSULTANT Where the PWGSC project manager elects to have a prime consultant responsible for the delivery of all aspects of the CRD project, the project manager must prepare a request for proposal. The RFP outlines the scope of work and time frames, evaluation criteria and terms of agreement. In keeping with federal government and PWGSC departmental policy, the RFP must include the requirements of a waste management program and a commitment to specify 13
environmentally preferred materials where applicable and feasible. As with other managerial roles such as the head electrical engineer, mechanical engineer, or structural engineer, a waste management specialist can either be in-house or subcontracted through an environmental consulting firm. The prime consultant can influence the waste reduction and recycling initiatives of a project in many ways. For example, a packaging protocol for the project can be developed requiring suppliers to minimize or take back packing materials. During the planning phase, the prime consultant can work directly with architects and engineers to modify the project design to incorporate environmental design principles and indoor air quality issues for enclosed spaces. The prime consultant and the project end users can also incorporate Design for Disassembly principles that will reduce waste generation during future renovations. These principles, more generally applied to buildings and interior fitups, are discussed in the following section. The contract language relating to non-hazardous solid waste management are included in a sample RFP for selection of a prime consultant in Appendix A. 5.6 DESIGN FOR DISASSEMBLY The construction industry has traditionally relied upon standard assembly methods, products and routines. However, consumers and clients are starting to demand environmentally sustainable products and practices without cost increases or quality compromises. Unfortunately, during a CRD project materials are often not salvaged easily for reuse or recycling. The result is a high percentage of waste generation. In order to combat this problem steps can be taken early in a project to abate this scenario during future construction activities. Future disassembly should be a consideration during the design phase. By designing for disassembly, a greater number of materials and products may be reused or recycled with little effort, resulting in less waste generation and lower amounts of materials entering landfills. However, in order to employ 14
successful design for disassembly techniques, attention must be afforded to the specifics of material assemblies, product selection and connection details. For instance, making finishes more readily removable, leaving connections exposed or covering joints with an easily removable seam are three methods that promote disassembly. The use of reversible connections instead of nails to fasten wood framing and other materials allows for easy disassembly. The use of reversible screws and bolts, would allow removal from the material causing little damage, is an example of such connectors. Not only can the material be used again, but the screws and bolts can also be reused. In addition, by making the connections more accessible, disassembly will be facilitated and consequently, less waste will be generated. Other methods of disassembly include selecting materials that are fastened by a tongue and groove connection rather than the use of an adhesive compound. Adhesive compounds produce a permanent connection that contaminates the material and affects its recyclability. Consider the use of materials that are classic and timeless so they will endure the life of the building and not be removed during a renovation. Material choices such as the use of wood flooring is often left in place for the entire life cycle of a building, while ceramic tile may be changed two or three times during that same life-cycle due to fashion and patterning changes. It is also environmentally beneficial to determine from suppliers, which materials and products have well-established recycling and reuse markets. The end result of designing for disassembly is the implementation of techniques that result in substantially lower amounts of waste being produced during a renovation or demolition project. Such reductions decrease waste materials entering landfills. The increased amount of reuse and recyclability of materials 15
and products also means a reduced impact on our natural resources, as the demand for new materials is diminished. 5.7 THE WASTE MANAGEMENT SPECIALIST The waste management specialist is responsible for ensuring that the greatest percentage possible of waste materials is diverted from landfill. This specialist should be a person who has a sound knowledge of recycling markets and construction practices. An effective and competent specialist will have a significant impact on achieving waste management goals when fully involved in all aspects of the waste diversion strategy and workplan. The roles and responsibilities of the specialist should include: the identification and interpretation of government policies and regulations; an evaluation of the types of materials that can be diverted to either reuse or recycling options; the preparation of a waste audit that clearly identifies anticipated materials types and quantities; and the preparation of a waste diversion workplan. A sample RFP for the development of a waste audit and waste reduction workplan has been included in Appendix B. As stated earlier, waste management requires additional planning and time. The project timeline must schedule the waste audit early in the project to ensure all waste diversion opportunities are identified. The waste diversion strategy and the workplan must be incorporated into the project specifications and instructions must be included in the tender documents for the general contractor. Following the issuing of the tender, the waste specialist s duties should include monitoring the progress towards the goals of the project. 16
The waste management specialist should also be available to promote and communicate waste reduction activities, including communication links, with all pertinent persons who can affect waste management achievements. Suggestions and input from these people should be taken and, where practical, incorporated into the waste management practices carried out on site. As waste materials are generated during activities on the site, the waste management specialist should liaise between all personnel involved in the project. These people include: clients; designers, engineers, and architects; materials buyer; site workers; contractors; sub trades; waste haulers; and recycling companies. The waste management specialist should be responsible for gathering documentation, such as waybills, so an accurate assessment of diversion rates can be determined. Accurate results will ensure cost comparisons are valid. Consequently, this will make the clients sensitive to new opportunities to reduce costs by promoting greater efforts toward waste management activities in future projects. 5.8 THE GENERAL CONTRACTOR The general contractor is ultimately responsible for responding to all municipal, provincial and federal legislation and policies and meeting the contract specifications. The project teams should remember that waste management in 17
CRD projects is a relatively new field for most contractors. As with the procurement of any services, a clear description of the project requirements in the tender documents is necessary to ensure that the respondent and PWGSC are aware of the responsibilities, deliverables, and end results that are expected. PWGSC will maximize its cost savings if the tender documents clearly demonstrate that there is potential for the salvage of materials. 5.9 PROPOSED CONTRACTING PROCEDURE The nature and extent of the project is described in the scope of work in the specification and drawing sections of the RFP. Currently, most CRD contracts do not contain specifications specifically requiring material recovery. However, contractors usually salvage and sell high value waste materials, such as copper piping and structural steel to offset project costs. Under this protocol, the extent of waste management practices to be integrated in the project will be identified during the preliminary evaluation to be completed as part of the Waste Management Strategy outlined below in Section 6.0. Where results of the preliminary evaluation indicate an opportunity, the results should then be incorporated into the contract documents. There are many approaches for integrating waste management into contracting procedures. The approach used by this protocol is built on the premise that the key to successful recovery and reuse is to make the process an integral part of the project, viewed in the same manner as electrical work, mechanical work or any other traditional project component. This means incorporating reuse and recycling components into the RFP by specifying material recovery goals into the scope of work, and employing an evaluation process that will emphasize potential contractors abilities to achieve high levels of recovery at competitive costs. When responding to an RFP, the contractor should clearly define and explain the reuse and recycling procedures that they intend to utilize in order to ensure 18
maximum economic and environmental benefits are realized. For example, procedures that divert high value dimensional lumber by recycling the material as mulch may result in high diversion rates, but the procedure does not achieve as high of an environmental or economic achievement as diverting the material to reuse. The NMS's construction and waste management specifications, the results of the waste management strategy and the waste diversion workplan should be included with the RFP for the contractors to use as references. In the area of waste management, the contractor s proposal should respond to the RFP by including an explanation as to how they plan to: achieve maximum recovery and reuse during project activities; offset project costs through the recovery of reusable and recyclable materials and the anticipated revenues from their sales and the avoidance of transport and tipping fees; establish procedures for collecting, separating and recycling waste materials and packaging; divert recyclable materials from landfill; dispose of or recycle hazardous wastes; and educate employees and subcontractors in order to ensure adherence to the waste management plan. When selecting the successful contractor, their experience in salvaging reusable materials should be weighed along with their commitment to meeting the recovery goals described in the RFP. All else being equal, a proposal that can achieve greater recovery and reuse should be favoured over one that achieves a lesser amount. 19
This approach will lead to the greatest potential for encouraging waste diversion on large projects as it requires the bidders to compete amongst themselves to demonstrate how they will achieve maximum materials recovery. At the same time, bidders have flexibility to decide how they will adjust their own business practices in response to local market conditions with the aim of meeting the waste diversion goals. A sample RFP that addresses waste management issues for a general contractor has been included in Appendix C. 5.10 ADDITIONAL CONTRACTING PROCEDURES There are several additional contracting procedures employed in the construction industry. One method is to negotiate material recovery and other waste management activities after awarding the contract to the general contractor. The client may request the contractor to prepare a waste management plan describing how maximum recovery of materials will be achieved. The client evaluates and approves the plan prior to the start of the project. The success of high recovery rates depends largely on the contractor's willingness to implement waste management activities that may have not been contemplated during the bidding process. If the contractor believes waste management is not profitable he may neglect all or most of the recovery activities. In addition, since the contractor has already been awarded the contract the negotiating position is not very strong. Therefore, it is preferable to have waste management practices incorporated into the contract prior to the commencement date rather than reopening the contract to negotiations later in the process. Another method, which can be used in smaller CRD projects, is a two-tier approach. The first step involves the recovery of reusable materials at the project site, where nonprofit organizations and other interested parties are given the opportunity to recover the materials that are of interest to them. Usually, there are no fees for the client or the contractors. The second step follows the 20
traditional contracting procedures for the CRD project. However, this option may not be possible on some sites due to security and liability concerns. Yet another method is to allow the bidding contractor to conduct their own waste materials audit and develop their own waste management workplan and diversion strategies according to general conditions defined in the RFP. The degree to which the diversion strategies and workplans are required to respond to department policy and objectives can be incorporated into the bid evaluation system. 6.0 THE WASTE MANAGEMENT STRATEGY As detailed previously, it is the responsibility of the waste management specialist to determine the practical extent of anticipated waste management practices. The first stage in this process is accomplished by developing a waste management strategy. The strategy is intended to gather general information that can be used to assess the overall waste management situation. It is a detailed analysis intended to measure the scope of the project and to gain an understanding of what types of materials will be generated. The following flowchart summarizes the stages required for the development of the waste audit report, the final product of the strategy. 21
The Preliminary Evaluation The Visual Inventory Identification of Potential Obstacles and benefits Selection of an Environmental Consultant The Initiation Meeting Pre-audit Activities Establishing a Schedule Notification Requirements Assembling Background Information Identification of Material Types Quantification of Materials Development of Waste Audit Report 6.1 THE PRELIMINARY EVALUATION The preliminary evaluation is an important first step to understanding the level of effort and scheduling that will be required. As with most project requirements, waste management procedures should reflect the nature and scope of the project. Smaller projects may be able to achieve acceptable waste diversion rates through a scaled down audit and workplan, whereas larger projects often require a more detailed evaluation as the possibility of oversights are compounded and opportunities magnified by the size of the project. Larger projects may involve multiple sub-contractors, large amounts of material and are subject to design constraints. Intense, short schedules may preclude the implementation of some or most waste management activities. 22
6.1.1 THE VISUAL INVENTORY The first stage is to identify material types and quantities of the expected waste material. A brief inventory of the materials can be determined by: performing a site visit or a walk through in order to visually inspect the material; having discussions with designers, engineers, property managers and tenants, etc.; and collecting and reviewing background information such as architectural, structural, mechanical, electrical and plumbing drawings. When performing the visual inventory, it is important to note the reuse and recycling options available regionally. Regional variances will impact upon the economic feasibility and extent of the intended waste diversion. However, in most markets in Canada a large quantity of CRD waste material can be diverted from landfill. In heavy civil engineering projects, where the materials are dominated by either structural metal components or concrete (reinforced or not), the metal components are almost always recovered for recycling and the concrete can generally be recycled in applications such as clean backfill or crushed sub-grade material. 6.1.2 IDENTIFICATION OF POTENTIAL OBSTACLES AND BENEFITS Following the visual inventory, the following issues should be investigated: required licences and permits associated with the disposal of materials; equipment necessary to collect, store and haul materials (e.g., bins, containers, crusher, etc.); storage needs i.e. is there sufficient storage on site to temporarily store the recovered material; 23
landfill bans i.e. are there any restrictions or emergency permits at local landfill sites; local hauling and tipping fees; and time frames i.e. does the project time frame allow for additional efforts to complete extensive waste management procedures. 6.2 PRE-AUDIT ACTIVITIES The purpose of a CRD waste audit is to identify the types and quantities of waste materials generated by activities during the project. Numerous pilot projects have been conducted by various Federal departments to develop a methodology for conducting and tabulating the types and quantities of materials estimated during a waste audit. The following section details the process for developing a waste audit. 6.2.1 SELECTION OF AN ENVIRONMENTAL CONSULTANT If necessary, an environmental consultant specializing in CRD waste audits should be selected to assist with the development of the waste audit. The members of the audit team must have a general understanding of the facility operations and knowledge of the scope of the project. It is mandatory for the audit team to possess a diversity of skills. The audit team should be comprised of persons with following expertise: previous waste audit experience; knowledge of building envelopes and associated components, mechanical, electrical plumbing systems and fit-up techniques; knowledge of local building code requirements; an understanding of environmental legislation applicable to the project; and if required, knowledge of architectural and/or heritage issues and/or civil engineering construction practices. 24
6.2.2 THE INITIATION MEETING Before commencing the compilation of the waste audit data it is necessary to hold an initiation meeting with all the individuals involved, including project and property managers, site superintendents and designers. During this meeting, the following points should be clarified: the scope of the audit; the client s goals and objectives as well as specific departmental directives that are to be met; the audit process should be described, including a required time frame; review of the Hazardous Materials Report to identify any materials that will be exempted from the audit due to special disposal requirements; and key project contacts for obtaining appropriate information. 6.2.3 ESTABLISH A SCHEDULE The requirements of the waste management plan must be fully integrated into the project. A formal schedule outlining tasks and time frames should be established and agreed upon by all individuals who will be affected by and involved in the waste audit. The strategy and diversion workplan should be completed prior to and included with the final tender documents. The information included in the strategy and the diversion workplan will allow bidding contractors to fully understand the scope of anticipated waste diversion rates. In addition, the information contained in the report will allow the contractors to compile their quotes based upon project cost savings that can be realized through the diversion of the generated materials, unless PWGSC intends to reuse materials or reduce costs directly. 25
6.2.4 NOTIFICATION REQUIREMENTS Communication should be developed to inform tenants and building personnel of the auditing procedures. It is recommended that a letter be prepared to inform tenants, staff and all personnel within the facility of the audit. The letter should include: a description of the purpose of the audit; the dates of initiation and proposed completion of the audit; the name(s) of the auditor(s) who will be conducting the on-site work; and the resources (if any) required during the site work, such as inspection escorts or staff required for interviews. An example of a sample letter of notification is presented in Appendix E. 6.2.5 ASSEMBLING BACKGROUND INFORMATION Background information on the facility should be collected and reviewed. It should be determined if there are any specific security requirements for audit personnel. Security clearance may be required before access to occupied tenant space can be obtained. The tenant occupancy and activities should be determined, both historical and existing, to obtain a general understanding of the operations that have been conducted within the facility and to identify any specific structural components that may be hidden or incorporated into the facade. This can be accomplished with the assistance of an employee who is knowledgeable in the operations and maintenance of the building, and who will be able to accompany the auditor through the facility. This person is usually the building operator or the tenant officer who is responsible for the daily activities undertaken at the facility. 26
In many cases, much of the background information will not be available from the property and project managers, and consequently the auditor will be directed to other sources of information such as plans and files. 6.3 IDENTIFICATION OF MATERIALS TYPES After collecting and reviewing all background information, the next phase is to identify the types of materials that will be generated by the project activities. Some material types, such as finishing materials, will be easily identified by a visual examination, but others are not visually apparent. The auditor should also make note of components that have potential reuse opportunities. If the project is to be completed in phases the project timeline should be analyzed and the anticipated material types for each stage identified. During the audit, the auditor should note: potential sites for collection and storage of materials; materials identified in the Hazardous Materials Report that should not be included in the audit; and any other advisement, such as known hidden elements or readily reusable components that should be taken into account later when the diversion strategy is being developed. Typical material types that will be included in the audit consist of wood, gypsum, plaster, concrete, brick, ceramics, stone, metals, insulation, HVAC equipment, electrical components, composite materials (e.g. asphalt shingles, carpets, ceiling tiles, etc.), windows, doors and associated hardware, and plumbing fixtures and piping. During the identification procedure, the auditor should note any easily reusable fixtures, such as modular cabinetry, HVAC equipment or plumbing fixtures. These items should still be measured and inventoried, as they must be included in the waste audit. 27