Approved - Planning and Public Works - Sep 10, 2008 Adopted - Regional Council - Sep 17, 2008 The Regional Municipality of Halton Report To: From: Chair and Members of the Planning and Public Works Committee Mark G. Meneray, Acting Commissioner of Public Works and Engineering Services Date: August 19, 2008 Report No. - Re: PWE05-08 - Biosolids Management Program Update RECOMMENDATION 1. THAT Council initiate a Biosolids Master Plan Study as outlined in Report No. PWE05-08 re: Biosolids Management Program Update. 2. THAT Council endorse the establishment of a Biosolids Management Master Plan Stakeholder Advisory Committee and that staff be directed to prepare the necessary terms of reference as outlined in Report No. PWE05-08. 3. THAT the Regional Biosolids Management Advisory Committee be dissolved and all current members of the Biosolids Management Advisory Committee be afforded an opportunity to participate in the Biosolids Management Master Plan Stakeholder Advisory Committee as outlined in Report No. PWE05-08. REPORT Purpose This report is intended to provide an update on Halton s Biosolids Recycling Program, to outline the need the development of a comprehensive Biosolids Master Plan and to provide the framework to achieve this objective. Background Biosolids are fully treated nutrient rich by-products of the wastewater treatment process. Halton s biosolids have been applied to agricultural land as a soil amendment and fertilizer for the past 29 years, with the Region of Halton maintaining an efficient and effective land application program in close cooperation with the agricultural community. The seven wastewater treatment facilities owned and operated by the Region of Halton currently manage approximately 11,000 dry tonnes of biosolids per year. Historically, biosolids were handled in liquid form (approximately 3 per cent solids) but more recently dewatering equipment has been added at some facilities to produce a more semi-solid cake material (greater than 20 1
per cent solids). Halton currently dewaters approximately 60 per cent of its annual biosolids production. Dewatering takes place as a standard operation at the Skyway and Mid-Halton Wastewater Treatment Plants. In addition, the Region also operates a mobile dewatering unit to address specific program requirements. The dewatering process has the benefit of reducing the overall volume of biosolids that must be managed. When conditions permit, biosolids are directly applied to agricultural land. The program is closely monitored and when application is not appropriate, such as periods of wet weather or during the winter months, temporary storage is required until land application can resume. Liquid biosolids are stored in holding tanks at Halton s Biosolids Management Centre located on Regional Road 25 in Oakville and dewatered biosolids are similarly stored at a special facility in Niagara Region operated by Halton s contractor, Terratec Environmental. Recent Program Challenges Over the past several years there have been a number of changes which have significantly impacted the management of biosolids in Ontario. Several of the challenges to Halton s Biosolids Management Program, resulting from these changes, were previously highlighted in Report PPW73-05 (June 2005). These challenges are summarized as follows: New Regulation With the introduction of the Ontario Nutrient Management Act in 2002, new restrictions were placed on the application of municipal biosolids. These changes resulted in both a reduction in available land and further restrictions on the application method and timeframe. While not yet fully implemented, the Ontario Nutrient Management Act will likely continue to impact biosolids management programs for the next several years. New regulation has also increased the time required to obtain site approvals as well as introducing additional restrictions on approved sites. Land Availability Growth in historically rural areas of Halton Region, has led to a steady decline in the availability of local agricultural land for biosolids application. Prior to 2000, less than 5 per cent of the land included in Halton s biosolids program was located outside of the Regional boundaries. In comparison, during 2007 approximately 70 per cent of the biosolids produced were applied to fields outside of the Region of Halton. Land availability has led to increased competition with other municipal programs such as the Cities of Toronto and Hamilton and the Regions of Waterloo and Niagara. Public Perception There continue to be members of the public that do not support the land application of biosolids because of their perception of the material even with the overwhelming amount of scientific evidence that supports the safe use of biosolids as a fertilizer and soil amendment. 2
Climate Change The success of any biosolids land application program is highly dependent on favourable weather conditions. As climate change continues to affect weather patterns, it will become increasingly difficult to rely on favourable weather. For example, Halton s land application was significantly challenged in 2006 due to wet weather and quite successful in 2007 due to dry weather. The very favourable conditions for land application during 2007 limited the portion of biosolids directed to landfill to just under 1,000 dry tonnes, or approximately 10 per cent of the total production. However, it is important to note that since Halton has not experienced this level of land application success since the late 1990 s, additional measures are required to ensure ongoing success of the program. The program challenges will continue to affect Halton s land application program in the future, thereby increasing our reliance on landfill disposal. A Comprehensive Biosolids Master Plan It is critical that Halton s Biosolids Program provide uninterrupted service to the community and that it be sustainable over the long term. In 1999, Regional Council endorsed a Biosolids Management Strategy (Report PPW95-99) which recommended program diversification and flexibility to address issues which were affecting the program. Since that time there have been additional changes in the regulation of biosolids management as well as in biosolids treatment technologies. In response to these changing conditions, many neighbouring communities such as the Regions of Durham, Niagara and Waterloo, and the Cities of Hamilton, Windsor and Toronto have undertaken extensive master planning processes in support of their biosolids programs. Halton staff has been closely following these projects to both assess their outcomes and to gather information. Over that time, staff has also been reviewing various partnering opportunities in support of Halton s biosolids program. Given all of the available information and the current biosolids management regulatory environment, it is an appropriate time for the Region of Halton to undertake a Biosolids Master Plan that would consider specific program needs and long term sustainability. The process would involve a comprehensive review and input from a wide range of stakeholders. We anticipate initiating the Biosolids Master Plan development work in 2009 with the intention of completing the master plan by the end of 2010. The proposed schedule will align with and leverage work from the following ongoing initiatives: Master servicing studies are proceeding for water and wastewater to address future growth within the Region. Biosolids management is an integral part of the wastewater treatment function so both growth and decisions on the type of treatment technology will impact the amount of biosolids that will have to be managed. Attachment #1 illustrates the impact of growth developed from the Sustainable Halton Plan population forecasts on biosolids production. As shown, biosolids production in Halton Region is predicted to double by 2031. 3
New regulations pertaining to biosolids have been under development for several years. Draft regulations have recently been released which provide additional clarity on the impacts on both the program and the viability of alternative technologies and management options. Completion of a comprehensive Biosolids Master Plan will provide a strategic direction for Halton s biosolids program until the year 2031 while allowing for periodic review and updates. It is intended that the process consider health and environmental impacts, economics, future growth, diversification and flexibility to respond to changing conditions. The process will include full public consultation as well as input from a Stakeholder Advisory Committee developed to provide a wide range of perspectives on biosolids management. The project will be designed to satisfy the requirement of the first two phases of the Municipal Class Environmental Assessment process for projects identified by the Biosolids Master Plan. Development of the Biosolids Master Plan will include the following key considerations: Review of Halton s land application program: Halton s current land application program has been operating in co-operation with the farming community for over 25 years. Diversification: The changing biosolids environment has emphasized the need to develop a plan that includes flexibility. The biosolids management program will consider the need to include one or more complementary biosolids management alternatives to ensure that Halton s program is reliable and sustainable over the long term. Biosolids Management Alternatives: To be considered in the Master Plan, any biosolids handling alternative must be proven sustainable, economically viable, protective of human health and respective of the environment. Biosolids Stakeholder Advisory Committee The development of a Biosolids Master Plan will require the engagement of and input from a broad range of stakeholders. This participation is necessary to ensure the process is credible, transparent, and that the optimum result is achieved. The Stakeholder Advisory Committee would typically include representation from regulators, the general public, non-government organizations, farming community, elected officials, and internal staff from various departments. The Terms of Reference for this committee will be developed as part of the master planning process. 4
Halton currently has a Biosolids Management Advisory Committee which was established to provide advice and assist the Region with its biosolids program. Its membership includes Regional Councillors and members of the community. Although it is recognized that the current composition of the Biosolids Management Advisory Committee will not fully meet the consultation needs essential for the development of the Biosolids Master Plan, the Biosolids Management Advisory Committee has been very helpful by providing advice and comment on Halton s current biosolids program. Accordingly, given the change in focus and the anticipated increased time commitments of members of the new Stakeholder Advisory Committee, staff are recommending that the current Biosolids Management Advisory Committee be dissolved and that members of this group be provided the opportunity to participate as members of the new Stakeholder Advisory Committee if they so choose. FINANCIAL/PROGRAM IMPLICATIONS The cost of developing the Terms of Reference and undertaking the Master Plan Study has been estimated at $500,000 and will be funded from Capital Project S1957B Long Term Biosolids Implementation Plan. There are sufficient funds in the capital account to undertake the Master Plan. Future financial implications associated with the recommendations and implementation of the Master Plan will be identified in a report to Council following the completion of the Biosolids Master Planning process. RELATIONSHIP TO THE STRATEGIC PLAN This is an operational matter with no direct relationship to the 2008 Planning & Public Works Committee Plan. 5
Conclusion For almost 30 years, Halton has achieved significant benefits from its land application program. Recent regulatory and operational changes have significantly impacted biosolids land application programs across Ontario, leading to increased costs and operational program challenges. As an integral part of the wastewater treatment function, it is essential that Halton s biosolids management program be reliable and sustainable over the long term. A comprehensive Biosolids Master Plan is essential for Halton to have a long-term strategy to achieve a sustainable, diversified biosolids management program. Respectfully submitted, Kiyoshi Oka P. Eng. Director, Environmental Services Mark G. Meneray Acting Commissioner of Public Works and Engineering Services Approved by Pat Moyle Chief Administrative Officer If you have any questions on the content of this report, please contact: K. Oka Tel. # 7602 D. Andrews Tel. # 7944 P. Morden Tel. # 4490 6