Phase 1 Report Existing Solid Waste Management System

Phase 1 Report Prepared for Regional District of Fraser-Fort George By MWA Environmental Consultants Ltd. in association with XCG Consultants Ltd. May 19, 2015

May 19, 2015 Rachael Ryder, Waste Diversion Program Leader Regional District of Fraser-Fort George 155 George Street Prince George, BC V2L 1P8 Dear Ms. Ryder, Re: Draft Stage 1 Report We are pleased to submit our Phase 1 report that describes the existing solid waste management system in Regional District of Fraser-Fort George and provides a review of the implementation status of the 2008 Solid Waste Management Plan. The information contained in this report was reviewed by Regional District staff and members of the Technical Advisory Committee and represents the starting point for updating the Regional Solid Waste Management Plan. Yours truly, Maura Walker, President MWA Environmental Consultants Ltd. DBA Maura Walker and Associates

Executive Summary The Regional District of Fraser-Fort George (RDFFG) has begun a review and update of the 2008 Regional Solid Waste Management Plan (RSWMP) which will be conducted in three phases. The first phase, the subject of this report, is an assessment of the current system and the implementation status of the 2008 Plan. The RDFFG has partially implemented the key actions from the 2008 RSWMP, including: Implement curbside recycling in Prince George for single-family homes (complete); Increase the range of recycling services at landfills and manned transfer stations (complete); Introduce bans on recyclable and compostable waste from disposal in the landfill (incomplete); Increase the capacity of the Foothills yard waste composting facility to allow for more yard waste collection (underway); Conduct a Transfer Station Operations and Amalgamation Study (complete); Amalgamate some transfer stations and have remaining transfer stations become full-service sites (incomplete); Close the 3 remaining small landfills (2 of 3 have been closed); and Develop site closure plans for all of the closed landfills (underway). The implementation of the RSWMP has resulted in the RDFFG increasing the diversion of solid waste away from landfilling to recycling and composting from 21% to 26%. The existing solid waste management system in the RDFFG is diverse and is a combination of local government and private sector services. The key components of the existing system are: Foothills Boulevard Regional Landfill, located in Prince George, that receives 96% of the region s garbage; Legrand Landfill, a landfill that receives only construction and demolition waste from the McBride and Valemount areas; The Mackenzie Regional Landfill which receives garbage from the Mackenzie area only; 17 transfer stations that receive waste from rural communities throughout the RDFFG; Two transfer stations in Prince George that provide convenient disposal and recycling options for residents; Curbside recycling for single-family homes in Prince George provided by Multi-Material BC; Depot based recycling for homes in all other areas; Municipal garbage collection provided by all municipalities (Prince George provides collection to homes only, and the other municipalities provide collection to homes, businesses and institutions); Private garbage and recycling collection companies in Prince George; A yard waste composting facility operated at the Foothills Boulevard Regional Landfill site; A private recycling processor located in Prince George; A broad range of take-back locations for EPR products (primarily located in Prince George); and Communications and education in support of waste management services provided by the RDFFG, the City of Prince George and REAPS (a non-profit organization based in Prince George). Page i

In 2014, the RDFFG disposed of an estimated 80,000 tonnes of municipal solid waste. Roughly 28,800 tonnes of material were recycled, composted or managed through extended producer responsibility (EPR) programs. The general trend since the 1990s has been a decrease in the per capita amount of waste disposed and an increase in amount diverted to recycling and composting, as shown in the table below. However, the overall amount of waste generated on a per person basis has remained fairly constant. 1997 kg per capita Disposal and Diversion (1997-2014) 1 2002 kg per capita 2007 kg per capita 2014 kg per capita Disposal 1,037 778 806 840 Diversion 93 144 194 302 Generation 1,130 923 1,000 1,142 Diversion Rate 8% 16% 19% 26% In 2013 the RDFFG conducted a waste characterization study 2 at the Foothills Boulevard Regional Landfill (FBRL) to provide an indication of what types of waste continue to be landfilled and by whom. The pie chart on the next page shows the proportion of the various waste materials being landfilled, based on weight. The data from this study indicates roughly half of what is landfilled is actually garbage. The other half is comprised of materials that are recyclable, compostable 3, or could be managed through an Extended Producer Responsibility program. 1 RDFFG data 2 Study undertake by TRI Environmental. 3 Includes food waste for which there is no existing composting facility in RDFFG. Roughly 25% of landfilled waste, by weight, is potentially compostable food waste, paper and wood. Page ii

Electronic Waste 3% Bulky Objects 3% Building Materials 8% Glass 2% Household Hazardous (HHW) 2% Household Hygiene 4% Fines 1% Compostable Organics 31% Metals 6% Plastic 13% Paper 17% Non Compostable Organics 10% A review of scale house records indicates the sources of the waste received at the landfill, which are summarized in the graph below. This graph shows that the vast majority (59%) of landfilled solid waste was delivered by commercial haulers who collect from local businesses and institutions, and that singlefamily homes in Prince George are the next largest contributor to FBRL (21% of garbage delivered to the landfill). tonnes 50,000 59% 40,000 30,000 20,000 10,000 21% 12% 8% - Commercial haulers Curbside residential Self-haul RDFFG transfer stations Page iii

The RDFFG s 2015 solid waste management budget is just under $15 million. Approximately $8 million of this budget covers operating costs, $5 million is for capital projects and $1 million is allocated to reserve funds. Reserve funds are established to finance for future capital projects as well as post-closure monitoring and maintenance. Revenues associated with this budget come from tipping fees, taxation, recycling revenues and other sources, including reserve funds. Page iv

Glossary Disposal Diversion DLC EPR Generation HHW ICI MMBC MOE MRF ODS Organic waste / organics Plan RDFFG REAPS RSWMP Landfilling Activities that divert waste materials away from disposal as garbage to alternatives such as recycling or composting. Does not include combustion of garbage to produce energy. Demolition, landclearing and construction Extended producer responsibility The sum of all materials discarded that require management as solid waste, including garbage, recycling and composting. Does not include organic waste composted at home. Household hazardous waste Industrial, commercial and institutional (does not include heavy industry) Multi-Material BC (residential recycling product stewardship organization) BC Ministry of Environment Material recycling facility (recycling processor) Ozone depleting substance (e.g. CFCs) kitchen scraps, food waste, yard and garden waste Regional Solid Waste Management Plan Regional District of Fraser-Fort George Recycling and Environmental Action Planning Society (local non-profit organization involved in environmental awareness and education) Regional Solid Waste Management Plan Page v

Table of Contents Executive Summary... i Glossary... v 1 Introduction... 1 1.1 Implementation Status of the 2008 Regional Solid Waste Management Plan... 1 2 Plan Area... 6 2.1 Population... 7 2.2 Housing and Economic Data... 8 3 Waste Stream Characterization... 9 3.1 Waste Generation Data... 9 3.1.1 2014 Disposal and Diversion... 9 3.1.2 Trends... 11 3.2 Composition of Waste Disposed... 11 3.2.1 Comparison of Waste Characterization Data... 13 3.3 Source of Delivered Waste... 14 4... 15 4.1 Reduction and Reuse Programs... 16 4.2 Recycling... 16 4.2.1 Residential Recycling... 16 4.2.2 Industrial, Commercial and Institutional (ICI) Recycling... 17 4.2.3 Recycling Activities at the Landfills and Transfer Stations... 18 4.2.4 Recycling Processing... 18 4.2.5 Centralized Composting... 19 4.3 Communications and Education... 19 4.4 Extended Producer Responsibility Programs... 20 4.5 Residual Waste Management... 23 4.5.1 Collection Services... 23 4.5.1.1 Prince George... 23 4.5.1.2 District of Mackenzie... 23 4.5.1.3 Village of McBride... 23 4.5.1.4 Village of Valemount... 24 4.5.2 Transfer Stations... 24 4.5.3 Landfills... 26 4.5.3.1 Foothills Boulevard Regional Landfill... 26 4.5.3.2 Mackenzie Regional Landfill... 28 4.5.3.3 Legrand Select Waste Landfill... 29 4.5.3.4 Closed Landfills... 30 4.5.4 Management of Controlled Wastes... 30 4.6 Demolition, Landclearing and Construction Waste... 31 4.7 Illegal Dumping Prevention... 32 4.8 Regional and Municipal Bylaws... 32 4.8.1 Regional District of Fraser-Fort George... 32 4.8.2 City of Prince George... 34 4.8.3 District of Mackenzie... 34 Page vi

4.8.4 Village of McBride... 35 4.8.5 Village of Valemount... 35 4.9 Provincial Policies and Legislation... 35 4.9.1 Environmental Management Act... 35 4.9.2 Recycling Regulation... 35 4.9.3 Open Burning Smoke Control Regulation... 35 4.9.4 Organic Matter Recycling Regulation (OMRR)... 36 4.9.5 Landfill Criteria for Municipal Solid Waste... 36 4.9.6 Guidelines for Environmental Monitoring at Municipal Solid Waste Landfills... 36 4.9.7 Landfill Gas Management Regulation... 36 5 Financing of the Regional District s Solid Waste Services... 36 5.1 Solid Waste Management Budget 3305... 36 5.2 Rural Transfer Station Service Budget 3306... 37 5.3 Waste Reduction Services Budget 3307... 37 5.4 Regional Solid Waste Management Financial Plan... 38 6 The Planning Process... 38 List of Figures Figure 2-1: Map of Regional District of Fraser-Fort George... 6 Figure 3-1: Estimated Composition of Waste Disposed of at Foothills Boulevard Regional Landfill... 12 Figure 3-2: Composition of Waste Disposed, by Waste Management Alternative... 13 Figure 3-3: Waste Generators (Sources of Landfilled Waste in 2014)... 14 Figure 4-1: RDFFG Waste Flow (2015)... 15 Figure 4-2: RDFFG Multi-Material Recycling Bin... 17 Figure 4-3: RDFFG Transfer Stations... 25 Figure 4-4: Map of Landfills in RDFFG (2015)... 26 Figure 4-5: Working Face at Foothills Boulevard Regional Landfill... 27 List of Tables Table 1-1: 2008 Plan Program Status... 2 Table 2-1: Population, By Area... 7 Table 2-2: Housing Types... 8 Table 3-1: Disposal and Diversion Activities in 2014... 10 Table 3-2: Disposal and Diversion (1997-2014)... 11 Table 3-3: Comparison of 2007 and 2013 Waste Composition Data... 13 Page vii

Table 4-1: Recycling at Landfills and Transfer Stations... 18 Table 4-2: Regulated EPR programs in BC... 21 Table 4-3: Number of EPR program Depots within the RDFFG... 22 Table 4-5: Controlled Waste Tipping Fees... 30 Table 5-1: RDFFG Solid Waste Budget (2015)... 37 Page viii

1 Introduction The Regional District of Fraser-Fort George (RDFFG) is undertaking a review of the 2008 Regional Solid Waste Management Plan (RSWMP). The process to review the plan will be conducted in three phases. The first phase is an assessment of the current system and a report on the implementation status of the 2008 Plan. The second phase is the review of options to address the region's future solid waste management needs and the selection of preferred options. The final phase will be a community consultation process to obtain input into the selected options. This document is the Phase One report and outlines the implementation status of the 2008 Plan and describes the current waste management system in the RDFFG. This information will be used as the starting point for Phase 2 of the planning process. 1.1 Implementation Status of the 2008 Regional Solid Waste Management Plan The 2008 RSWMP replaced the 1997 RSWMP. The key objectives of the 2008 RSWMP were to: Implement curbside recycling in Prince George (complete); Increase the range of recycling services at landfills and manned transfer stations (complete); Introduce bans on recyclable and compostable waste from disposal in the landfill (incomplete); Increase the capacity of the Foothills yard waste composting facility to allow for more yard waste collection (complete); Conduct a Transfer Station Operations and Amalgamation Study (complete); Close the 3 remaining small landfills (2 of 3 have been closed); and Develop site closure plans for all of the closed landfills (underway). Table 1-1 lists the individual actions in the 2008 RSWMP and their implementation status as of May 2015. In general, most of the actions listed in the Plan were implemented or are in the process of being implemented. However, there are a number of programs and policies that were not implemented due to a lack of resources. The 2008 Plan set a target of 50% waste diversion, assuming all components of the Plan were implemented. Because several of the actions are not yet complete, the current (2014) estimated diversion rate is 26%. Details associated with current disposal and diversion estimates are provided in Section 3.1.1. Page 1

Waste Management Activity Reduction and Reuse Programs Plan Section Table 1-1: 2008 Plan Program Status Action 6.1.1 Swap sheds to be established at all manned RDFFG landfills and transfer stations Status Swap sheds are available at Valemount, Mackenzie, McBride, Dunster and Bear Lake Swap sheds were removed from Foothills and Quinn St due to operational challenges and the presence of alternate reuse opportunities available locally 6.1.2 Promote reduction and reuse RDFFG produces a thrift store brochure Brochure listing available reuse opportunities maintained by REAPS REAPS promotes grasscycling Junk in Your Trunk Community Garage Sale 6.1.3 Backyard composting program o Distribute up to 1000 composters every other year, as long as there is demand o Educational activities, including compost demonstration garden and advisory service o Promote backyard composting Residential Recycling 6.2 Curbside recycling in Prince George Depot-based recycling at manned transfer stations for residential recyclables, scrap metal and ODS-containing appliances 6.3.1 Reduce weekly residential garbage can limit to 2 cans in all municipalities except Prince George All activities on-going Demonstration garden and advisory service provide through REAPS Approximately 1,000 backyard composters sold by the RDFFG since 2008 (an average of 167 per year) Curbside recycling implemented by MMBC in September 2014 Depot-based recycling on-going Incomplete 6.3.2 Maintain variable cart rates in Prince George Maintained 6.3.3 Enforce ban on recyclables in garbage in Prince George Not enforced by City staff Business Recycling 6.4.1 Ban on recyclable materials at manned landfills and transfer stations Incomplete due to lack of staff resources and services; however increased tipping fees have driven more recycling 6.4.2 Promote recycling to businesses Incomplete due to lack of staff resources and services Yard Waste Collection 6.5 Seasonal yard waste drop off at manned transfer stations and landfills 6.5 Spring and fall curbside collection by District of Mackenzie Incomplete 6.5 City of Prince George to assess the potential of yard waste collection In place at Foothills and Mackenzie Regional Landfills and Valemount and Shelley transfer stations City has banned backyard burning of yard waste and is currently considering seasonal drop bins for yard waste Page 2

Waste Management Activity Yard Waste Composting Food Waste Composting Promotion and Education Extended Producer Responsibility (EPR) Plan Section o Action City to ban backyard burning of yard waste in conjunction with the startup of collection 6.6 Increase capacity of Foothills yard waste composting operation Completed an operations review by a composting consultant Marketing campaign underway to increase sales of finished compost (may increase site capacity) Additional work on-hold pending outcome of relocation of landfill entrance 6.6 Assess need and cost of an enhanced composting operation at Mackenzie Regional Landfill Status Assessment not done. Currently yard waste is ground and land applied 6.6 Assess composting of yard waste at closed Valemount landfill site Static pile composting of yard waste in place 6.7 Update the 2002 organic waste composting feasibility study Incomplete 6.8 RDFFG will be responsible for promotion and education related to RDFFG solid waste facilities, waste reduction and reuse, composting, HHW and EPR 6.9 Advocate for improved and expanded EPR programs Participate on BC Product Stewardship Council Advocate for effective and accessible collection services in RDFFG Promote and educate the public about existing EPR programs Policy 6.10 Implement disposal ban policy on recyclable and compostable materials Demolition, Landclearing and Construction (DLC) Waste 6.10 Implement user pay policy for all RDFFG disposal facilities. Prepare implementation plan 6.10 Walk the Talk: RDFFG office to become a model of waste reduction in the workplace 6.11 Assess DLC waste diversion opportunities Work with permits and planning departments to assess the feasibility of policy tools to drive DLC waste diversion and reduction Ban recyclable components of DLC waste from disposal at landfill Use variable tipping fees to promote source separation On-going Ongoing Incomplete Incomplete Tipping fees in place at Foothills, Mackenzie, Valemount, McBride and Legrand Minimum user fee enacted at Foothills in 2013 Ongoing Incomplete due to lack of staff resources and recycling services Page 3

Waste Management Activity Garbage Collection Services Plan Section Action 6.12.1 Maintain current system Maintained Transfer Stations 6.12.2 Undertake a transfer station operations and amalgamation study Completed in 2010 Bear-Human Conflict Management Foothills Boulevard Regional Landfill Mackenzie, Sinclair Mills and Dome Creek Landfills 6.12.2 Amalgamate transfer stations to increase efficiencies and increase number of solid waste services at each site 6.13 Work with local groups to establish and find on-going awareness campaign RDFFG and Municipalities to ensure that local bylaws require waste to be containerized and that there are residential set-out times that minimize opportunities to wildlife access to waste Backyard composting education will include bear awareness 6.14.1.1 Update design and operations plan Develop post-closure conceptual plan Update landfill gas management plan Incomplete Status Multi-stakeholder committee established Complete Included in REAPS educational services Complete 6.14.1.2 Close landfills Sinclair Mills and Dome Creek landfills closed Closure of Mackenzie Regional Landfill is currently under assessment Establish a full-service transfer station for Mackenzie Incomplete DLC Waste Landfills 6.14.2 Assess short-term and long-term DLC waste disposal needs Mackenzie Regional Landfill currently being assessed as future DLC landfill DLC waste from McBride and Valemount transferred to Legrand for disposal 6.14.2.1 Prepare design and operation plan for Legrand landfill Incomplete Closed Landfills 6.14.3 Prepare and undertake final closure activities Closure requirements for the closed landfill sites needs to be clarified by the MOE prior to undertaking further closure activities Illegal Dumping Prevention 6.14.4 Work with MOE to identify offenders, conduct clean-ups and enforce bylaws Waive tipping fees for community clean-up events Establish a fund to support clean-up activities by community groups Incomplete On-going On-going Household Hazardous 6.14.5 Develop education campaign regarding proper disposal of HHW Provide information on where HHW can be dropped off Page 4

Waste Management Activity Plan Section Action Waste (HHW) Promote depot locations/events for HHW A HHW education campaign has not been developed Work with stewardship agencies to conduct HHW round-up events or to establish depots in smaller communities Encourage the development of expanded HHW stewardship programs First Nations Linkages 6.15 Liaise with First Nation communities to identify opportunities to work together for waste management servicing Develop service agreements Neighbouring Regional Districts Liaise with neighbouring regional districts with an aim to have consistent policies, share information and conduct collaborative studies Status More drop-off opportunities have been established by stewardship agencies RDFFG has not worked with stewardship agencies directly Done via participation BC Product Stewardship Association Liaisons regarding waste management are done on an asneeded basis No service agreements established Share information with other regional districts at provincial conferences Opportunities for collaborations have been enacted and are ongoing Page 5

2 Plan Area The Solid Waste Management Plan applies to the entire RDFFG, which covers nearly 51,000 km 2. The electoral boundaries are shown on Figure 2-1 and include the City of Prince George, the District of Mackenzie, the Village of McBride, the Village of Valemount, and Electoral Areas 'A' Salmon River and Lakes, 'C' Chilako River-Nechako, 'D' Tabor Lake-Stone Creek, 'E' Woodpecker-Hixon, 'F' Willow River-Upper Fraser, 'G' Crooked River-Parsnip, and 'H' Robson Valley-Canoe. In addition there are two First Nation Reserves 4. Population density in RDFFG is 1.8 persons per square kilometer. 5 Figure 2-1: Map of Regional District of Fraser-Fort George 4 Source: BC Stats 5 Source: Statistics Canada Page 6

The RDFFG is located in central-eastern BC. It is bounded by Alberta to the east, the Columbia-Shuswap and Thompson-Nicola Regional Districts to the south, the Cariboo Regional District to the southwest, the Bulkley-Nechako Regional District to the west, and the Peace River Regional District to the north / northeast. 2.1 Population As shown in Table 2-1, based on the 2011 Census, the population of RDFFG in 2011 was 91,879, including Municipalities, Electoral Areas and First Nation Reserves. The population count remained relatively unchanged since the 2006 census. BC Stats projected the 2014 population to be 95,216 6. Area Table 2-1: Population, By Area 7 2011 Population % of RDFFG total District of Mackenzie 3,507 4% Village of McBride 586 1% City of Prince George 71,974 78% Village of Valemount 1,020 1% Fraser-Fort George A 3,362 4% Fraser-Fort George C 3,434 4% Fraser-Fort George D 4,175 5% Fraser-Fort George E 479 1% Fraser-Fort George F 1,207 1% Fraser-Fort George G 317 0% Fraser-Fort George H 3,507 2% First Nation Reserves 153 less than 1% Regional District of Fraser-Fort George 91,879 100% 6 Source: http://www.bcstats.gov.bc.ca/statisticsbysubject/demography/populationprojections.aspx 7 Source: http://www.bcstats.gov.bc.ca/statisticsbysubject/census/2011census/populationhousing/municipalit iesbyregionddistrict.aspx Page 7

2.2 Housing and Economic Data In 2011, there were 37,330 households in the RDFFG. Table 2-2 provides a breakdown of the types of housing. 8 Table 2-2: Housing Types Housing Type Occupied Units (2011) Single-detached house 24,810 Apartment; building that has five or more storeys 390 Movable dwelling 2,975 Other dwelling 9,150 Semi-detached house 1,280 Row house 1,715 Apartment; duplex 1,820 Apartment; building that has fewer than five storeys 4,295 Other single-attached house 40 Total number of occupied private dwellings 37,330 According to BC Statistics 2006 census data, the main industries (by labour force) for the region were logging and forest products, manufacturing, retail trade, health care and social assistance, and wood product manufacturing. 9 2011 Census data related to labour force were not available at the time that this report was prepared. 8 Source: Statistics Canada (http://www12.statcan.ca/census-recensement/2011/dppd/prof/details/page.cfm?lang=e&geo1=cd&code1=5953&geo2=pr&code2=59&data=count&search Text=fraser-fort%20george&SearchType=Begins&SearchPR=01&B1=All&Custom=&TABID=1 ) 9 Source: 2006 Community Facts for Fraser-Fort George, BC Stats Page 8

3 Waste Stream Characterization This section provides a general description of the solid waste generated in the RDFFG, including the composition of the waste disposed and how much is landfilled vs. recycled. This information, along with the system description in Section 4, provides an overview of the current solid waste management system. 3.1 Waste Generation Data 3.1.1 2014 Disposal and Diversion Table 3-1 outlines the main activities that contribute to the RDFFG's disposal and diversion rates. A description of the disposal facilities and the recycling activities in the RDFFG is provided in Section 4. In 2014, the RDFFG disposed of 80,005 tonnes of municipal solid waste (based on scale house records and an estimate of tonnes received at Mackenzie and Legrand landfills). It is estimated that almost 28,800 tonnes of material were recycled and composted in the region, resulting in a diversion rate of 26%. This is an increase in the diversion rate by 5% since 2007 (up from 21%). Page 9

Table 3-1: Disposal and Diversion Activities in 2014 Disposal Activities Waste Management Activity Tonnes Foothills Boulevard Regional Landfill (municipal solid waste only) 72,680 Mackenzie Regional Landfill (weighed loads plus an estimate of self-haul loads not weighed) 6,325 Legrand Select Waste Landfill (estimate) 1,000 Total Disposal 80,005 Diversion Activities Recycling at Foothills Boulevard Regional Landfill Recycling at Mackenzie Regional Landfill Recycling at Valemount Transfer Station Tires 23 Appliances 160 Scrap metal 1,048 Compostable waste 6,304 Lead acid batteries Used motor oil and filters Antifreeze see EPR see EPR see EPR Scrap metal (estimated) 169 Lead acid batteries Used motor oil and filters Antifreeze see EPR see EPR see EPR Scrap metal (estimated) 266 RDFFG Multi-material recycling depots 1,974 Private sector recycling (estimate for fibre, metal and pallets) 11,054 REAPS organic recycling (from ICI sector) (estimate) 3 Backyard composter distribution (250 kg x 6,500 composters) 1,625 Extended Producer Responsibility (EPR) Programs 6,055 Total Diversion 28,765 Total Generation (disposal + diversion) 108,770 Diversion Rate (diversion / generation) 26% Page 10

3.1.2 Trends Table 3-2 provides the per capita amount of disposal, diversion and generation (disposal + diversion) for select years between 1997 and 2014. In general, the per capita amount of waste disposed has been decreasing and the amount diverted to recycling and composting has been increasing. However, the overall amount of waste generated on a per person basis has remained fairly constant. Table 3-2: Disposal and Diversion (1997-2014) 10 1997 kg per capita 2002 kg per capita 2007 kg per capita 2014 kg per capita Disposal 1,037 778 806 840 Diversion 93 144 194 302 Generation 1,130 923 1,000 1,142 Diversion Rate 8% 16% 19% 26% 3.2 Composition of Waste Disposed Figure 3-1 shows the estimated composition of the waste disposed of at Foothills Boulevard Regional Landfill (FBRL), based on the weight of each type of waste material. 11 As shown, the largest components of the landfilled waste stream, by weight, are compostable organics (food scraps and yard waste), paper and plastic. 10 RDFFG data 11 2013. Technology Resource Inc. Page 11

Household Hazardous (HHW) Electronic Waste 2% 3% Bulky Objects 3% Household Hygiene 4% Fines 1% Compostable Organics 31% Building Materials 8% Glass 2% Metals 6% Plastic 13% Non Compostable Organics 10% Paper 17% Figure 3-1: Estimated Composition of Waste Disposed of at Foothills Boulevard Regional Landfill 12 Another way of looking at the data is to consider what components of the waste stream could be diverted through recycling and composting programs instead of landfilled. Figure 3-2 shows that roughly half of what is landfilled is actually garbage. The other half is comprised of materials that are recyclable, compostable, or could be managed through an Extended Producer Responsibility program (see Section 4.4 for a detailed description of EPR programs). The compostable portion of what is landfilled has been broken down into 2 categories: compostable yard and garden waste which could have been composted at home or at Foothills, and other compostable materials (food, wood and tissue) for which a composting facility does not currently exist in RDFFG. 12 TRI Environmental. 2013. Page 12

Garbage Compostable (yard and garden) Compostable (food, wood, tissue) Recyclable EPR Figure 3-2: Composition of Waste Disposed, by Waste Management Alternative 3.2.1 Comparison of Waste Characterization Data RDFFG commissioned a similar study in 2007, which allows comparison of the data to see how the nature of the waste stream has changed between 2007 and 2013. Table 3-3 presents the comparative data. The most significant shift in the proportion of landfilled waste between 2007 and 2013 was a decrease in the proportion of paper waste (including cardboard) and a corresponding increase in the proportion of compostable waste. This shift is likely due to an increase in the prevalence of commercial cardboard collection in the Prince George area since 2007. Increasing landfill tipping fees combined with corporate environmental policies have likely increased the demand for cardboard recycling services by many businesses in the area. Table 3-3: Comparison of 2007 and 2013 Waste Composition Data 13 Material Category 2007 2013 Compostable Organics 25% 31% Paper and Cardboard 27% 17% Plastic 14% 13% Non Compostable Organics 6% 9% Metals 5% 6% Building Material 4% 8% Household Hazardous (HHW) 3% 2% Glass 5% 2% Other 10% 11% 13 TRI Environmental, 2007 and TRI Environmental, 2013. Page 13

3.3 Source of Delivered Waste The Foothills Boulevard Regional Landfill tracks the source of loads of waste delivered to the facility for landfilling. The categories include: Commercial haulers which includes garbage collected from businesses, institutions (e.g., schools, churches, government buildings), and multi-family buildings. RDFFG transfer stations which includes garbage from businesses and residents hauled to a transfer stations Curbside residential which reflects the garbage collected by the City of Prince George from residents receiving automated cart-based collection Self-haul which includes garbage brought into the Foothills Boulevard Regional Landfill by private vehicle (residential or commercial); generally small volumes of waste that are removed from the vehicle by hand and deposited at the on-site transfer area at the landfill. Figure 3-1 shows how much each of these categories of waste sources contributed to the garbage landfilled at Foothills Boulevard Regional Landfill (FBRL) in 2014. Since FBRL handles 96% of the waste buried in the region, the waste source data shown in Figure 3-3 is regarded as representative of the Regional District as a whole. tonnes 50,000 59% 40,000 30,000 20,000 10,000 21% 12% 8% - Commercial haulers Curbside residential Self-haul RDFFG transfer stations Figure 3-3: Waste Generators (Sources of Landfilled Waste in 2014) Page 14

4 Figure 4-1 shows the general flow of waste from its source (homes and businesses), through the various collection channels, through to the final destination of the various waste streams. These activities are supported by communication and education initiatives, as well as government policies and bylaws. Single-family homes Multi-family buildings Industrial, commercial and institutional sector Demolition & construction projects Municipal collection services Commercial collection companies Self-haul Sources Collection Foothills, Mackenzie and Legrand landfills Compost market/users Recycling market Hazardous waste destruction facilities (outside of RDFFG) Disposal & End Markets Consolidation, Processing &Transfer Facilities 17 RDFFG transfer stations Foothills yard waste composting facility Private recycling facilities Extended Producer Responsibility depots Figure 4-1: RDFFG Waste Flow (2015) Sections 4.1 through 4.10 of the report describe the major services, infrastructure, programs and policies in place in the RDFFG that currently contribute to the management of solid waste. This information is presented in accordance with the waste management hierarchy, shown to the right. Page 15

4.1 Reduction and Reuse Programs Initiatives that reduce the amount of waste produced, or that encourage items to be reused rather than discarded serve to decrease the amount of waste that needs to be collected and managed through recycling and disposal services. The primary waste reduction driver in place is the implementation of tipping fees at the landfills for commercial waste generators, and the variable rates charged for residential waste collection by the City of Prince George (with smaller containers costing less per year). Backyard composting is another means of waste reduction that is used by many communities to reduce the quantity of organic waste disposed. The RDFFG has promoted backyard composting by offering subsidized compost bins and by providing financial support for a compost demonstration garden. By the end of 2014, approximately 6,500 composters have been distributed through this initiative. It is estimated that an average backyard composter diverts roughly 250 kg of waste. Over a ten-year life, one backyard composter can reduce the need for the collection and management of 2.5 tonnes of waste. REAPS provides support to residents that are involved or want to be involved in backyard composting. They operate a compost demonstration garden in Prince George and will provide in-home composting training upon request. Waste reuse is supported by the establishment of swap sheds at the Mackenzie Regional Landfill and several transfer stations. Residents may leave unwanted but usable items in the shed for other residents to take. In addition to the swap sheds, REAPS and the Regional District host a biannual Junk in the Trunk sale, which is like a community garage sale and encourages residents to think about reusing goods rather than throwing them out, or buying new goods. There are also several commercial and non-profit organizations that receive and sell used goods, as well as on-line options such as Freecycle.org. REAPS provides an up-to-date Waste Reduction Directory listing where used goods can be donated and where other discarded items can be recycled. 4.2 Recycling In the RDFFG, there is a wide range of recycling opportunities available for residents and businesses, with the majority of those services located in Prince George. 4.2.1 Residential Recycling RDFFG provides drop off services for residential recyclables (paper, cardboard, plastic and metal containers) at 13 transfer stations and at the Foothills and Mackenzie Regional Landfills. Figure 4-2 shows a photo of a recycling bin at a RDFFG transfer station. Page 16

Figure 4-2: RDFFG Multi-Material Recycling Bin In September 2014, curbside recycling was introduced to homes in the City of Prince George that receive municipal curbside garbage collection. This service is being provided by the stewardship organization, Multi-Material BC (MMBC) as part of the provincial EPR program for residential recyclables. MMBC also provides financial incentives to 2 bottle depots in Prince George (Hart Return-It and Prince George Recycling & Return-It) to provide depot collection of the same residential recyclables as are collected curbside, plus plastic bags, glass containers and polystyrene foam. There are 2 private collection companies that provide recycling collection to homes and multi-family buildings in Prince George and the surrounding area on a subscription basis. Those companies are Blue Jewel and R3. 4.2.2 Industrial, Commercial and Institutional (ICI) Recycling Recycling collection services to industrial, commercial and institutional (ICI) properties are contracted privately. In Prince George, most garbage collection companies also offer cardboard collection service. Blue Jewel and RS offer multi-material recycling collection services to businesses. Some businesses manage their own recyclable materials and backhaul recyclable materials to their central distribution centres located outside the Regional District. Generally this is only done by large retail and manufacturing companies. The RDFFG encourages recycling by the ICI sector through the application of tipping fees at most of their disposal sites. Page 17

4.2.3 Recycling Activities at the Landfills and Transfer Stations In addition to the bins for residential recyclables (multi-material recycling) located at the landfills and most transfer stations, most of these facilities provide the opportunity to recycle other materials as well. Table 4-1 lists what is currently available at each facility. Facility Foothills Blvd. Regional Landfill Mackenzie Regional Landfill Table 4-1: Recycling at Landfills and Transfer Stations Multi- Material Recycling Scrap Metal Recycling Refrigeration Appliances Used Oil and Antifreeze Lead Acid Batteries Yard & Garden Waste Swap Shed Tire Recycling X X X X X X X X X X X X X X Valemount TS X X X X X X X X Dunster TS X X McBride TS X X X X X X X Hixon TS X X X Buckhorn TS X Cummings Road TS X X X Shelley TS X X X X X Willow River TS Summit Lake TS X Bear Lake TS X X X McLeod Lake TS Chief Lake TS Miworth TS Berman Lake TS West Lake TS X X Quinn St. TS X X X X X Vanway TS X X X X X TS = transfer station 4.2.4 Recycling Processing There is one material processing facility (MRF) located in Prince George that receives most of the residential and ICI recyclable materials collected in the region. This facility, owned by Cascades Recovery Inc., prepares recyclable material for the recycling market and for downstream recycling processors. Page 18

4.2.5 Centralized Composting There is a yard and garden waste composting operation at the Foothills Boulevard Regional Landfill. This facility accepts residential and ICI yard and garden waste, as well as manure. The facility uses aerated windrows to process the material. In 2015, RDFFG branded the compost product as NorGrow to increase its public appeal. A campaign was launched to promote the brand and includes posters on display throughout the Prince George area, signage on City garbage trucks and compost give-away events. 4.3 Communications and Education In 2014, the composting facility received 5,150 tonnes of yard and garden waste, 995 tonnes of manure and 189 tonnes of grass. The finished product, shown in the photo to the left, is classified as Class A compost. The final product is sold to the public and used primarily by the City of Prince George for public works. All reduction, reuse and recycling activities require that the intended participants are aware of the opportunities available to them. Communications and education are critical support mechanisms to successful waste diversion. Communications and education initiatives in the regional district are primarily conducted by the RDFFG, the City of Prince George and REAPS (Recycling and Environmental Action Planning Society). The Regional District has a broad array of waste management information available on their website, including information sheets on each solid waste facility, composting information, a recycling guide and map, as well as links to other solid waste management information, including the REAPS website. The Regional District provides tours of waste management facilities, has a waste management telephone service, makes hard copies of brochures available to the public, does advertising on the radio and in the local newspapers on a regular basis, and has contracted REAPS to provide a school program related to solid waste management. The City of Prince George also provides a wide variety of information related to waste management on their website, including information on the City s garbage collection service as well as recycling and reuse opportunities in Prince George. Most recently, they have made the My Waste app available to City residents to assist residents in effectively participating in the City s waste collection services. REAPS (Recycling and Environmental Action Planning Society) acts as a local clearinghouse for waste reduction and recycling information. They provide information on the telephone, on their website, through workshops and a newsletter. REAPS also undertakes curriculum-linked classroom activities in addition to setting up schools with composting and recycling programs. REAPS receives financial support Page 19

from the RDFFG, local businesses and their members. The City of Prince George provides REAPS with a place for their office and demonstration garden. 4.4 Extended Producer Responsibility Programs Extended Producer Responsibility (EPR) is a provincial policy tool that aims to shift the responsibility for end-of-life management of products (physically and economically) to the producer and away from local governments. This policy is intended to create an incentive for producers to include environmental considerations in design of products. EPR programs in BC are mandated by Recycling Regulation 449/2004, under the Environmental Management Act. The regulation requires producers of the designated products to develop a program for their end-of-life collection and recovery of materials and to consult stakeholders (including local governments) when developing their plans. RDFFG is a member of the BC Product Stewardship Council, a body that advocates on behalf of local government for effective product stewardship programs. RDFFG staff has also engaged in consultation and discussions with stewardship programs in their plan development process. The range of products managed through EPR programs has expanded significantly in the last decade. Table 4-2 provides a list of the products currently covered by an EPR program and the estimated quantities collected by each program in RDFFG in 2013 (the most recent year for which data is available). This data has been extracted from annual reports developed by the various stewardship organizations. Page 20

Product Category Antifreeze, Used Lubricating Oil, Filters and Containers Beverage Containers Electronics and Electrical Lead Acid Batteries Packaging and Printed Paper (residential only) Table 4-2: Regulated EPR programs in BC Estimated tonnes Program(s) Collected in RDFFG in 2013 14 BC Used Oil Management Association 1,223 Encorp (non-alcoholic and wine, spirits, coolers and 1,911 import beer in non-refillable containers) Brewers Distributed Limited (fillable and canned beer) 669 Call2Recycle/Recycle My Cell (batteries and cell phones) 36 Electronics Products Recycling Association (EPRA) (electronics: Computers, televisions, audio-visual, medical equipment, office equipment) LightRecycle (lamps and lighting equipment) Major Appliance Recycling Roundtable (MARR) (large appliances) Outdoor Power Equipment Institute (OPEI) (Outdoor Power Equipment) Canadian Electric Stewardship Association (CESA) (small appliances, power tools, sports and exercise equipment, hobby, craft) AlarmRecycle (smoke and carbon monoxide alarms) Switch the Stat (thermostats) Canadian Brandowner Residual Stewardship Corporation (toys electric and electronic) Canadian Battery Association & Interstate Battery System Multi-Material BC 396 35,359 units (tonnes unavailable) no data no data 60 less than 0.1 tonne less than 0.1 tonne no data 433 no data Paint and Solvents and Product Care 35 Flammable Liquids, Gasoline and Pesticides Pharmaceuticals Health Product Stewardship Association 1 Tires Tire Stewardship BC 1,960 14 Estimates developed from 2013 annual reports submitted by each of the stewardship organizations to the Ministry of Environment. These reports on posted on the Ministry s website at: http://www2.gov.bc.ca/gov/topic.page?id=beba70369c274c8fba4fb42be828a9eb Page 21

Table 4-3 shows the number of EPR depots for each EPR program within the RDFFG. As shown, Prince George is well-serviced by EPR take-back services, but the rest of the region is much more limited in terms of places where regulated products can be dropped off. Program Table 4-3: Number of EPR program Depots within the RDFFG 15 Prince George Mackenzie Valemount McBride BCUOMA used oil, oil containers, oil filters 5 2 2 2 BCUOMA antifreeze 2 1 2 1 Encorp beverage Containers 3 1 1 1 Cdn Battery Association lead acid batteries 5 1 0 0 Call2Recycle/CWTA rechargeable batteries and cell phones EPRA electronics: Computers, televisions, audio-visual, medical equipment, office equipment 15 1 1 0 6 0 1 0 LightRecycle lamps and lighting equipment 5 0 1 0 OPEI outdoor power equipment 6 0 0 0 CESA small appliances and electrical equipment AlarmRecycle smoke and carbon monoxide alarms) 3 0 0 0 2 0 1 0 Switch the Stat thermostats 7 0 0 0 Product Care paint 3 1 1 0 Product Care solvents and flammable liquids, gasoline and pesticides Health Product Stewardship Association pharmaceuticals 1 0 0 0 6 2 0 0 BC Tire Stewardship tires 23 1 1 1 15 Information regarding the number and location of take-back sites for each stewardship organization was obtained from each organization s websites in May 2015. Page 22

4.5 Residual Waste Management Residual waste refers to discarded materials that are not diverted to reuse, recycling or composting and therefore require landfilling. In 2014, there was an estimated 80,005 tonnes of residual waste landfilled in the RDFFG 16. The residual waste management system includes garbage collection services provided by the municipalities and private companies, as well as the residual waste management infrastructure provided by the RDFFG, which includes 3 active landfills and 17 transfer stations. 4.5.1 Collection Services 4.5.1.1 Prince George The City of Prince George collects garbage from approximately 23,000 homes within the City limits, using an automated garbage collection system. The automated system has been in place since April 2005. When the system was rolled out, each household was supplied with a cart (available in a choice of three sizes). The fee charged for garbage collection varies with the size of cart used. Garbage collection is provided weekly. The City s waste collection bylaw prohibits recyclable materials from disposal in the residential garbage, but this bylaw has not been enforced to date. The City also undertakes a spring clean-up collection program for yard waste and bulky materials. Roll-off bins are placed around the City for a limited time for use by residents. Throughout the year, residents with excess waste may bring it to the Vanway transfer station located in the City, or directly to the Foothills Boulevard Regional Landfill. Open burning of waste within a prescribed area of the City is prohibited under Bylaw 7721. The City also provides curbside collection to a limited number of ICI generators, including churches and seniors' homes. The majority of ICI waste generators in the City subscribe to commercial garbage collection services provided by private hauling companies. ICI generators also have the option to bring their waste to the landfill themselves. 4.5.1.2 District of Mackenzie The District of Mackenzie provides both residential and ICI collection service. The collection vehicle brings the material directly to the Mackenzie Regional Landfill. Private collection companies also provide ICI garbage collection in Mackenzie. 4.5.1.3 Village of McBride The Village of McBride provides both residential and ICI collection service. The collection vehicles bring the garbage to the McBride Transfer Station. The garbage is subsequently hauled to the Foothills Boulevard Regional Landfill. 16 This does not include waste that originated outside of RDFFG or controlled waste. Page 23

4.5.1.4 Village of Valemount The Village of Valemount provides garbage collection services to both residential and ICI customers through a contractor. The Village s collection service includes the provision of centralized metal bins for use by ICI customers, as well as cart-based collection for both residents and businesses. Residents can select the cart size which is most appropriate to their needs. The collection vehicle brings the garbage to the Valemount Transfer Station. The garbage is subsequently hauled to the Foothills Boulevard Regional Landfill. 4.5.2 Transfer Stations There are 17 transfer stations in the Regional District of Fraser Fort George (RDFFG), as shown in Figure 4-3. Since the development of the 2008 RSWMP, the Red Rock transfer station has been closed. All of the transfer stations offer household waste disposal, and most sites provide recycling opportunities. Refer to Section 4.2.3 for a list of the recycling services available at each transfer station. Page 24

Figure 4-3: RDFFG Transfer Stations Page 25

4.5.3 Landfills There are 3 landfills in the RDFFG, as shown on Figure 4-4. The Foothills Boulevard Regional Landfill and Mackenzie Regional Landfill are open to the public and accept municipal solid waste, industrial, commercial and institutional waste, controlled waste, yard and garden waste, and recyclables. The Legrand Select Waste Landfill receives only construction and demolition waste and landclearing debris by appointment. 4.5.3.1 Foothills Boulevard Regional Landfill Figure 4-4: Map of Landfills in the RDFFG (2015) The Foothills Boulevard Regional Landfill was operated by the City of Prince George from 1976 until 1994, at which point the Regional District assumed responsibility for the facility. The landfill is located on 87.3 hectares, of which approximately 25 hectares is in use for solid waste disposal, composting and recycling services. The facility handles 96% of the municipal solid waste (MSW) generated in RDFFG. Page 26

In 2010, the Regional District updated their Integrated Landfill Management Plan. At the time, it was estimated that approximately 2 million cubic metres of airspace was available in Cell 1 which would accommodate landfilling activities in the current Cell 1 footprint until 2027. The proposed Cell 2, to be constructed to the north of the existing Cell 1, was estimated to have an additional 4.5 million cubic metres of airspace available for landfilling activities. As of May 2014, the estimated total remaining airspace in Cell 1 was 1,456,000 cubic metres with an anticipated closure date of 2027. Figure 4-5: Working Face at Foothills Boulevard Regional Landfill Features of this site and its operations include: Open seven days per week including most statutory holidays. Existing facilities located on site include scale house, office trailers, on-site transfer station area, yard waste composting facility, and landfill gas extraction facility. Weigh scales were installed in 1994 and put to use in January 1995 to coincide with the introduction of variable rate tipping fees. The current scalehouse facility is approaching the end of its design life span and it is anticipated that it will be replaced in 2016 with the relocation of the landfill entrance northwest of its current location. The relocation of the scalehouse and landfill entrance are intended to facilitate on-going use of site and maximize space available for landfilling The on-site transfer station area is comprised of six 40 cubic yard bins for small vehicle drop off of garbage and yard trimmings. Waste materials collected at the on-site transfer area are hauled over the scale prior to being disposed of at the active face of the landfill. Multi-material recycling bins, as well as recycling areas for used oil, anti-freeze, batteries, propane cylinders, tires, scrap metal, and appliances. Page 27

Large commercial waste collection vehicles unload their waste directly at the active face of the landfill. Fourteen groundwater monitoring wells are located on-site and eight groundwater monitoring wells are located off-site. An area of approximately 5.25 hectares (approximately 23% of the total Cell 1 area) has undergone final closure. Leachate is managed on site via natural attenuation, with the exception of the closed area which incorporates a leachate recirculation system. Landfill gas collection system installed in 2002 with on-going expansion of the landfill gas well field. The collected gas is currently flared via an enclosed flare device. Uses alternative daily cover, with weekly soil cover applied. Site is completely fenced. Tipping fees are charged for the disposal of waste at the Foothills Boulevard Regional Landfill and are based on weight and type of material. There is a minimum charge of $6 for small loads up to 100 kilograms. Loads greater than 100 kilograms are charged based on the tipping fee of $72 per tonne (2015 rate). There is no charge for the disposal of yard and garden waste or recyclables provided they are separated from any other chargeable waste. Tipping fees for controlled waste are presented in Section 4. In 2014, the Foothills site received: 72,680 tonnes of MSW (garbage); 454 tonnes of MSW that originated from outside the region; 747 tonnes of controlled waste; and 7,566 tonnes of waste materials that was recycled or composted. The Foothills Boulevard Regional Landfill is currently approved to operate under Operational Certificate No. MR-01697 issued by the BC MOE on October 31, 2005. 4.5.3.2 Mackenzie Regional Landfill The Mackenzie Regional Landfill opened in 1974 and currently accepts residential, commercial, and light industrial waste from the Town of Mackenzie and surrounding areas. The site is located approximately 3 kilometres south of the town of Mackenzie, British Columbia on leased Crown land previously used as a gravel pit. The site comprises an area of approximately 8.2 hectares. It is a natural attenuation landfill. In addition to receiving and landfilling garbage, the site also has: A swap shed; Storage areas for used oil, oil filters and containers, antifreeze, lead acid batteries, and rechargeable household batteries; A propane tank/bottle storage area; A scrap metal storage area; and An area where yard waste is chipped periodically. Page 28

The site is also permitted to receive waste asbestos. The limit of waste of the landfill is secured with an electric fence. Access to the site is controlled by a gate located at the main entrance. The gate is locked outside of normal operating hours to prevent unauthorized access and uncontrolled disposal. The scalehouse facility includes a 12-metre long weigh scale and an adjacent scalehouse. Commercial waste haulers are provided with swipe cards which allow them to weigh in and out without an attendant. Small vehicles are not required to report to the scalehouse. It is estimated that the site receives approximately 6,325 tonnes of waste per year. 17 Tipping fees are charged for the disposal of commercial waste at the Mackenzie Regional Landfill and are based on weight and type of material. There is no charge for small self-haul loads. The tipping fee to dispose of garbage is $72 per tonne (2015 rate). Tipping fees for controlled waste are presented in Section 4.5.4. The lifespan of this site has not been calculated. Based on the 2008 RDFFG RSWMP, this landfill is to be closed and replaced by a transfer station, with consideration for maintaining the site as a select waste landfill. The long-term development of the site as is currently under review. The Mackenzie Regional Landfill is currently approved to operate under Operation Certificate No. 100206 issued by the BC MOE on March 4, 2009. 4.5.3.3 Legrand Select Waste Landfill The Legrand Select Waste Landfill was originally a disposal facility for municipal solid waste. When the McBride Transfer Station was opened in 2006, the operation of the Legrand Landfill changed to receipt of select inert waste only. Select inert waste includes: Demolition, Landclearing Debris & Construction Waste; Drywall; and Bulky waste Waste generators must make an application to the Regional District to drop off loads. In 2014, an estimated 114 loads were brought to the site from RDFFG transfer sites; an additional 2,000 m 3 of demolition debris was delivered directly to the site. This site operates under a permit from the Ministry of Environment (PR 6424) issued in 1987. 17 XCG Consultants Ltd. 2013 Annual Operations Report: Mackenzie Regional Landfill. Page 29