Report to/Rapport au :

Planning and Environment Committee

Comité de l’urbanisme et de l’environnement

and Council / et au Conseil

5 April 2006 / le 5 avril 2006

Submitted by/Soumis par : R.G. Hewitt,

Acting Deputy City Manager / Directeur municipal adjoint par interim

Public Works and Services/Services et Travaux publics

Contact Person/Personne ressource : Kenneth J. Brothers, Director/Directeur

Utility Services Branch/Services publics

(613) 580-2424 x 22609, ken.brothers@ottawa.ca

City Wide

Ref N°: ACS2006-PWS-UTL-0010

SUBJECT:

yellow bag program for non-residential establisHments – solid waste services

OBJET:

programme des sacs jaunes aux « Établissements non rÉsidentiels » services de gestion des dÉchets solides

REPORT RECOMMENDATION

That the Planning and Environment Committee recommend Council approve the implementation of the Yellow Bag Pilot Program, for non-residential establishments with an eight bag limit for residual garbage collection, and a fifteen container limit for recycling collection per week, per building, and that this Yellow Bag Pilot Program commence June 19, 2006.

RECOMMENDATION DU RAPPORT

Que le Comité de l’urbanisme et de l’environnement recommande au Conseil d’approuver la mise en oeuvre du programme pilote des sacs jaunes pour les établissements non résidentiels avec une limite de huit sacs pour la collecte des déchets résiduels et de quinze conteneurs pour le recyclage, par semaine et par édifice, et que le programme pilote des sacs jaunes débute le 19 juin 2006.

BACKGROUND

As a result of 2004 Budget pressures, non-residential waste collection was discontinued on July 5, 2004. During the 2005 Budget Deliberations, and in response to public delegations, Council passed the following motion:

“Please provide information on alternative measures for business garbage and recycling pickup, including “tag-a-bag”. In addition, it was resolved that staff include in this update an assessment of commercial business service delivery options.”

On July 13, 2005, Council approved the “Integrated Waste Management Master Plan – Strategic Service Delivery Update” (ACS2005-PWS-UTL-0008) report which included the following recommendation:

The City provide solid waste collection services through a Yellow Bag Program to “non-residential establishments” that meet the eligibility criteria and service level outlined in this report with service to commence in January 2006;

The “Yellow Bag Program” was designed to provide waste collection services for small non-residential properties at the residential service level, at full cost recovery.

In November 2005, the Yellow Bag Program was introduced with a proposed rollout for January 2006. Following feedback from the business community, and a meeting with the Business Advisory Committee, staff agreed to further consult with the community and other organizations that had been impacted by service removal in 2004. This delayed the startup of the program.

This report updates the consultation process and the redesign of the Yellow Bag Program, and to seek approval of the Planning and Environment Committee and Council.

CONSULTATION

At the request of the Business Advisory Committee, on January 12, 2006 staff hosted a focus group session comprised of urban and rural small business owners, and other small non-residential establishments. The purpose of the focus group was to receive feedback on the suitability of the current design of the waste collection program for both rural and non-rural, non-residential establishments such as small businesses, daycares, and community organizations; as well as the suitability of the content and clarity of the program promotional materials. The following comments were received:

· A four-bag limit was too restrictive especially for multiple tenant buildings, given the eligibility criteria of a separately assessed building;

· The recycling benefits were not well communicated;

· A simple registration and participation process is required;

· Yellow bags should be easy to purchase;

· The first packet of bags should be provided at no cost, as an incentive to participate in the program; and

· Consult openly with the broader business community group, the Coalition for a Successful Ottawa Economy (CSOE).

The feedback was constructive and solidified the need to further emphasize the support for the City’s blue and black box recycling programs. By doing so, participants would not only benefit by the cost-effectiveness of the program, but enhance the City’s waste diversion programs and save valuable landfill space. Some businesses were so supportive of the recycling benefits that they were willing to champion the program.

Staff met with CSOE on February 7, 2006 to share the results of the targeted focus group feedback, communicate the criteria and details of a proposed redesigned Yellow Bag Program, and to communicate that the commercial tax subsidy of residential garbage collection would be removed from commercial taxes. CSOE endorsed its support for the program.

Subsequently, on February 14, 2006 the Business Advisory Committee passed the following motion:

That the Business Advisory Committee support City staff's proposed amendments and commend the administration for the additional work and significantly improved focus on the Program

Revised Yellow Bag Pilot Program Principles:

Staff has considered this feedback and now present the revised program as follows:

1. Bag limits have increased from 4 to 8 per week per building;

2. Recycling container limits continue to be set at 15 per week in order to limit the amount of garbage on the street

3. Program promotion will focus on the benefits of increased waste diversion, through recycling;

4. The first packet of yellow bags (4 bags per packet), will be provided as an incentive to the registrant building at no cost;

5. One-time registration is required for the program;

6. Any tenant may register into the program on behalf of their building;

7. Distribution of yellow bags will not be limited to specific retailers.

The increased upper container (8 bag) limit was judged by staff, to fit into the current level of service expected from our collection contractors. Increasing the number of containers at the curb will enable buildings with more than one or two tenants to participate. This will address the concern that a building with three or more tenants could not participate because they would generate five or more bags of residual garbage per week. It is still incumbent on the building tenants to distribute the eight bag weekly allotment amongst themselves. The increased bag limits requires a by-law amendment to implement. The proposed amendment is attached as Annex A to this report

The promotion of the Yellow Bag Program will now focus on the recycling benefits. Small business owners had indicated that they were unaware of the amount of recycling collection provided with the service. Each participating building can set out the equivalent of 15 blue or black boxes for alternating collection each week. The more a participant recycles, the fewer garbage bags they will have to use. This effectively reduces their waste collection costs for diligent recyclers, promotes recycling, and save valuable landfill space.

The City will allow any tenant to register on behalf of their building. The City will provide the first packet of 4 bags to each building as an incentive at no cost in order to encourage small businesses or non-residential buildings to try the program.

Registration requirements have been reduced from annually to one time only. Additionally, any tenant may now register on behalf of the building. This enables tenants with absentee landlords to participate in the program.

The City will also entertain inquiries and offers of distribution of yellow bags from all retailers throughout Ottawa to ensure widespread availability and diversification of participation. Bags will be available a minimum of two weeks prior to rollout at all Client Service Centres and participating Home hardware stores. A full list of participating retail outlets will be posted in the Yellow Bag Program on the City website.

In terms of waste diversion, it is difficult to estimate the amount of non-residential waste that will be collected and recycled through the revised program. Staff expects that the program registration will be limited to small stand-alone businesses, a very small portion of the entire industrial, commercial, and institutional (ICI) sector. Certainly some non-residential establishments may be able to divert up to 45% of their waste stream through participation in the program. After the program has been established and running for a period of time, staff will be better positioned to report on the amount of waste collected, recycled, and diverted from landfill disposal.

Program Implementation

On June 5, 2006, the City’s new Solid Waste collection contracts will begin, with new contractors in many of the collection zones. In order to ensure the smooth implementation of the “Yellow Bag Program” it is recommended that the program collection commence on June 19, 2006 shortly after the new collection contracts.

It is recommended that the Planning and Environment Committee accept these changes to the Yellow Bag Program so that it better meets the needs of the non-residential establishments it is intended to serve. The program is being proposed as a pilot at this time with staff bringing forward a report after one year.

FINANCIAL IMPLICATIONS

The “Yellow Bag Pilot Program for non-residential establishments” is a cost recovery program that will see the revenue from the sale of City of Ottawa Yellow Bags, at a cost of $3.00 each, to cover the cost of providing the service.

Funds are available in the 2006 Solid Waste Services Operating Budget for the costs of providing this service.

If there is little or no response from the non-residential community, financial exposure for the City is limited to $23,000 for the initial order of 100,000 yellow bags.

DISPOSITION

That staff proceed with the implementation of the “Yellow Bag Pilot Program” effective June 19, 2006.

That Legal Services include the proposed Yellow Bag amendments, in the revised Solid Waste Management By-law, to be approved by Planning and Environment Committee on May 23, 2006.

SUPPORTING DOCUMENTATION

Document 1 – Yellow Bag Program By-law Excerpts

Document 1

YELLOW BAG PROGRAM - BY-LAW EXCERPTS

Definition:

“Yellow Bag Program” is a curbside collection program for small eligible Non-residential Establishments that use specially designed yellow garbage bags.

PART II: LEVELS OF SERVICE

The City shall provide collection service for Non-residential Establishments as set out in Schedule C.

SCHEDULE “C” - COLLECTION SERVICE FOR NON-RESIDENTIAL ESTABLISHMENTS

Once-per-week curbside collection of Non-residential Waste through the Yellow Bag Program, alternating weekly collection of recyclable materials, once-per-week collection of Bulky Items, and Seasonal Bi-weekly and Weekly collection of Leaf and Yard Waste. In order for a Non-residential Establishment to participate, the following eligibility requirements must be met:

· The establishment must be separately assessed for the purpose of property taxes;

· The sum total of garbage generated per building does not exceed the Non-residential Waste, Recyclable Material and Leaf and Yard Waste limits as set out in Schedule D;

· Must be registered with the Yellow Bag Program through the City; and

· Garbage must be placed in the specially designed City of Ottawa yellow garbage bags.

SCHEDULE “D” - WASTE LIMITS

Non-residential Establishments

· Eight (8) Approved Containers of Non-Residential Waste or eight (8) Bulky Items or any combination, which does not exceed eight (8) in number per week.

· Fifteen (15) Approved Containers of Recyclable Material, and

· Fifteen (15) Approved Containers of Leaf and Yard Waste.

SCHEDULE “E” - APPROVED CONTAINERS:

Non-residential Establishment Curbside Garbage Bag:

1. Specially designed “official” City of Ottawa yellow garbage bag;

2. Be securely closed and weigh no more than fifteen (15) kg when full.

3. Be non-returnable.