Waste Strategy Highlights

PW14.2 - Attachment 1
Attachment 1 – Final Long Term Waste Management Strategy

Waste Strategy Highlights

Initiation of the City of Toronto's Long Term Waste Management Strategy
Waste management and diversion programs in the City of Toronto (the City) have
significantly evolved over time. In 2013, City Council recognized the need for an updated
comprehensive long term waste management plan and commissioned the development
of a Long Term Waste Management Strategy (Waste Strategy). Since 2014, the City has
been working through a comprehensive technical evaluation process supported by
widespread public and stakeholder engagement activities to develop this Waste Strategy
document. Policies, programs and technological options and best practices for new and
emerging waste reduction, diversion and disposal methods were considered and
evaluated. The Waste Strategy recommends waste reduction, reuse, recycling, recovery
and residual disposal policies and programs, in that order, that are cost-effective, socially
acceptable and environmentally sustainable for the long term.

Waste Strategy Vision and Guiding Principles to Navigate the Future System
A successful Waste Strategy reflects the interests of the community that it serves, now
and in the future. It is driven by a Vision Statement and Guiding Principles that express a
philosophy of what the Waste Strategy will strive to achieve and what will be important
in making decisions along the way. The following City Council approved vision statement
was developed for the future of the City’s Integrated Solid Waste Management System.

"Together we will reduce the amount of waste we generate, reuse what we can,
and recycle and recover the remaining resources to reinvest back into the
economy. We will embrace a waste management system that is user-friendly,
with programs and facilities that balance the needs of the community and the
environment with long term financial sustainability. Together, we will ensure a
safe, clean, beautiful and healthy City for the future."

This vision statement will be used in concert with eight guiding principles developed to
support decision making in the future as the Waste Strategy is implemented.

Maximizing the Life of Green Lane Landfill

The development of the Waste Strategy placed a priority on maximizing the life of Green
Lane Landfill by minimizing the amount of garbage sent for disposal. Factors that have
led to updated estimates of the life of Green Lane Landfill, to approximately 2040,
include:

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 Waste Strategy Highlights

• The new series of 5Rs (Reduce, Reuse, Recycle, Recover, Residual Disposal)
options being recommended through the Waste Strategy has the potential to
further extend the life of the landfill.
• A refinement of the projections of material to be received at Green Lane Landfill.
• A review of current landfill operations has revealed that the settlement rate of
materials in the site is occurring at a greater rate than initially estimated. The rate
of settlement is contingent on the composition of the waste and the analysis
suggests that the current rate of settlement will continue.

A Commitment to Prioritizing the Waste Hierarchy through Reduction, Reuse and Recycling
The Waste Strategy places emphasis on waste reduction, reuse and recycling (the 3Rs)
activities to promote the importance of resource conservation and to reduce
environmental impact. The recommended waste reduction programsrequire minimal
capital investment and when combined with education and enforcement have the
potential to significantly reduce the amount of material requiring management by the
City,once fully implemented.

The Waste Strategy recommends five new reduction, reuse and recycling focused
programs for early implementation that address food waste reduction, textiles diversion,
sharing and reuse opportunities and support community based waste exchange
programs.

Leveraging Programs and Services Already in Place in order to Further Improve Waste
Diversion Potential
The City of Toronto Solid Waste Management Services efficiently and effectively operates
a world class system, particularly when considering the size and variability of its customer
base (e.g. ~50 per cent of the City’s population resides in multi-residential buildings),
materials collected, and complexity in the system. However, there is always room for
improvement. The Waste Strategysupports the City's integrated waste management
system by highlighting the potential of existing programs, infrastructure and services in
place that will assist in achieving a70% residential waste diversion rate. Additional
diversion can be achieved through processing residual waste after source separation of
Blue Binrecyclingand Green Bin organics from the garbage stream. Achieving a 70%
residential waste diversion ratewould make Toronto a leader amongst similar-sized cities
in North America and world-wide. During the first five years of the Waste Strategy,
emphasis will be placed on improving the performance of the current integrated waste
management system by focusing on improving participation and ensuring proper
utilization of existing programs and services.

Enforcement coupled with ongoing education and engagement of existing programs,

services and by-laws will improve system performance and divert significant amounts of
material currently being landfilled.

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 Waste Strategy Highlights

Waste Strategy Options for Multi-Residential Buildings

The Waste Strategy has identified options that are specific to the multi-residential
customer base to improve participation and ensuring proper utilization of existing
programs and services. This is especially important in the multi-residential sector where
opportunities for greater participation and decreased contamination exist. Most new
households constructed in City of Toronto consists oflow and high rise multi-residential
buildings with condominium ownership as well as rental units, which makes this sector
increasingly important in achieving waste reduction and diversion goals. Options
targeting the multi-residential sector include organics management; waste collection
methods; and planning, policies and enforcement. A significant element of these
recommendations includes extensive promotion, education and enforcement to the
residents, property managers and superintendents to ensure program comprehension
and compliance. Waste from multi-residential buildings will be the primary source of
material for a Mixed Waste Processing Facility with Organics Recovery, should it be
deemed necessary.

Strategic System Planning to Minimize the Need for New Capital Infrastructure Investments
The Waste Strategystrategically recommends deferring the need for new capital
infrastructure investment (such as energy from waste and other emerging technologies)
by placing emphasis on residents and non-residential customers of the City to “do the
right thing” by reducing the amount of waste they generate and ensuring participation in
already existing programs.

In later years of the Waste Strategy implementation, a Mixed Waste Processing Facility
with Organics Recovery is being recommended for further consideration as a final step to
recover additional divertible resources before landfilling. Testing of this option is being
recommended in the early years of the Waste Strategy to determine the diversion rates
which can be achieved. Construction of a full scale facility would only be consideredafter
the 5year review combined with the completion of a supporting business case to
proceed. This allows sufficient time to collect data to determine the success of the
Waste Strategy, as well as any impacts resulting from the promulgationof the Waste-Free
Ontario Act and its proposed regulations on the waste stream in the City, and to reassess
the need for additional processing and resource recovery technologies in the system.

Working Together with Community Partners to Enhance Access to Diversion Programs,

Collaborate in Service Delivery and Increase Citizen Engagement to Support Sustainable
Solid Waste Management Practices
The Waste Strategy recommends a number of different options where the involvement
of community partners will be critical tothe successful delivery of these new programs.
The options should enhance, not duplicate, the work already being undertaken by the
non-profit sector. This will be of particular importance when considering new reuse
initiatives such as swap events and waste exchanges. This approach respects the City's

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diverse population and civic identity through supporting collaboration amongst

community members which share neighbourhoods and also fosters opportunities where
people can share experiences from within their social organizations.

Maintaining Flexibility for Future Changes to the Waste Management Landscape

Waste management systems are in a constant evolution with new technologies and
approaches becoming available, changes in consumer buying habits and product
packaging and new advances in environmental protection and governing legislation. All
these changes require a Waste Strategy that has specific goals but is flexible to adapt to a
constantly changing environment in which the system operates. The timing of some
recommended options considers the implications of the Waste-Free Ontario Actand the
Provincial Waste Reduction Strategy required in the legislation and the potential impacts
it may have on how waste is managed in the future.

Service, Stewardship and Commitment in Continuing to Deliver High Quality and Cost
Effective Customer Service for Waste Management Programs
A new cost allocation and sustainable rate model has been developed to support
implementation of the Waste Strategy.This new model will ensure that high quality
services, stewardship over the City's waste management practices and commitment to
cost efficient services being provided are fair and reasonable.

Minimizing Wasted Resources

A Zero Waste goal prioritizes waste prevention to minimize the amount of waste
requiring disposal and focuses on conserving resources and building a circular economy.
A circular economy shifts the way waste is viewed. It requires a change in how waste is
viewed, how products and packaging are designed, and how waste is managed to
maximize resource recovery.The Waste Strategy makes a commitment to minimizing
wasted resources, through an investment in programs targeting waste reduction and
reuse, and an aspirational goal of working towards Zero Waste. This goal is further
supported through the development of a Unit for Research, Innovation & a Circular
Economyto find new markets and uses for waste and look at other leading practices and
social research to reduce waste. Progress toward Zero Waste was strongly supported
throughout the development of the Waste Strategy through consultation and represents
a shift in thinking from the traditional linear approach to waste management and
disposal to innovative ways to conserve and recover resources.

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Table of Contents

Table of Contents

1 Importance of Having a Waste Strategy........................................................................ 1

2 Developing the Waste Strategy ..................................................................................... 3
3 Consultation Summary .................................................................................................. 7
4 A Vision for the Future & Guiding Principles ............................................................... 12
4.1 A Vision for the Future .......................................................................................... 12
4.2 Guiding Principles to Stay on Track ...................................................................... 12
4.2.1 A Circular Economy and Zero Waste Future ................................................. 13
5 The Current Waste Management System ................................................................... 15
5.1 Current Integrated Solid Waste Management System Overview ........................ 15
5.2 Components of the Current Integrated Solid Waste Management System ........ 20
5.2.1 Current Integrated Solid Waste Management System Components ........... 20
6 Projected Long Term Needs ........................................................................................ 22
7 Gaps, Challenges and/or Opportunities ...................................................................... 24
7.1 Gaps, Challenges and/or Opportunities in the Current System ........................... 24
7.2 Gaps, Challenges and/or Opportunities with New Legislation............................. 27
7.2.1 Waste-Free Ontario Act ................................................................................. 27
7.2.2 Cap and Trade Program ................................................................................. 28
8 Identification and Evaluation of Options ..................................................................... 30
9 Recommended Options ............................................................................................... 39
9.1 Reduction & Reuse ................................................................................................ 39
9.2 Recycling ................................................................................................................ 41
9.2.1 Collection & Drop-off Depots ........................................................................ 41
9.2.2 Incentive Based Options ................................................................................ 43
9.2.3 Multi-residential Services .............................................................................. 44
9.2.4 Industrial, Commercial & Institutional Services ............................................ 47
9.2.6 Construction, Renovation & Demolition Services ......................................... 50
9.3 Materials & Energy Recovery ................................................................................ 52
9.4 Residual Waste Disposal ....................................................................................... 56
9.4.1 Near Term Residual Waste Options .............................................................. 56
9.4.2 Long Term Residual Waste Options .............................................................. 57

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9.5 Overall System Recommendation – Unit for Research, Innovation & a Circular
Economy ........................................................................................................................... 58
9.6 Operational Considerations .................................................................................. 59
9.6.1 Alternative Service Delivery Approaches ...................................................... 59
9.6.2 Commissioners Street Transfer Station ........................................................ 60
9.6.3 Future Processing Considerations ................................................................. 61
9.6.4 Future Residual Waste Considerations ......................................................... 66
9.7 Implementation Tools ........................................................................................... 66
9.7.1 Promotion, Education and Enforcement ...................................................... 67
9.7.2 System Financing and Funding ...................................................................... 73
9.8 Summary of Recommended Options and Implications........................................ 75
10 Long Term System Outlook and Roadmap for Implementation ................................. 80
10.1 Road Map for Implementation ............................................................................. 80
11 Waste Strategy Costs and Financing ........................................................................... 82
11.1 Waste Strategy Capital and Operating Costs........................................................ 82
11.1.1 10-Year Waste Strategy Costs ....................................................................... 84
11.2 Sustainable Rate Model Development ................................................................. 88
12 Targets and Goals ........................................................................................................ 90
13 Measuring Performance in the Future ........................................................................ 91
14 Waste Strategy Updates, Revisions and Reporting ..................................................... 94
14.1 Updates and Revisions to Waste Strategy ............................................................ 94
14.2 Annual System Monitoring and Reporting ........................................................... 95
15 Keys to Success ............................................................................................................ 97
15.1 Success Factors ..................................................................................................... 97
15.2 Barriers and Risks .................................................................................................. 98
15.3 Transition Considerations ................................................................................... 100
16 Conclusion .................................................................................................................. 102
17 Acknowledgements.................................................................................................... 104

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List of Tables
Table 7-1: Identified Gaps, Challenges and/or Opportunities ....................................................... 24
Table 8-1: List of Options Considered During the Strategy Development Process ....................... 33
Table 9-1: Promotion and Education Implementation Tools ........................................................ 67
Table 9-2: System Financing and Funding Implementation Tools ................................................. 74
Table 9-3: Summary of Recommended Options for 3Rs Plan ....................................................... 75
Table 9-4: Summary of Recommended Options (tonnes) ............................................................. 79
Table 11-1: Capital and Operating Costs Over the Planning Period ($000s) ................................. 83
Table 11-2: Waste Strategy Costs (2016-2026) ($000s) ................................................................ 84
Table 11-3: Staffing to Support Implementation of Options (FTEs) .............................................. 87
Table 13-1: Recommended Performance Metrics ........................................................................ 92

List of Figures
Figure 1-1: 5Rs Waste Management Hierarchy ............................................................................... 2
Figure 2-1: Waste Strategy Development Process ........................................................................... 4
Figure 3-1: The Project Process ....................................................................................................... 8
Figure 3-2: Consultation and Engagement Activities Summary ..................................................... 10
Figure 5-1: City of Toronto Geographic Boundaries and Neighbouring Municipalities .................. 15
Figure 5-2: Solid Waste Management System Overview .............................................................. 16
Figure 5-3: Map of Waste Management Facilities and Collection Districts ................................... 19
Figure 5-4: Components of the System and Potential Influences .................................................. 21
Figure 6-1: Historical and Projected High/Low Total Annual Waste Generation (2001 to 2021),
Based on Economic Indicators and Population Growth ................................................................. 22
Figure 6-2: Projected Total Annual Waste Generation (2022 to 2050), Based on Population
Growth ........................................................................................................................................... 23
Figure 9-1: Integration of a Mixed Waste Processing Facility with Organics Recovery .................. 54
Figure 9-2: Blue Bin Recycling Projections and Contract Alignment .............................................. 63
Figure 9-3: Green Bin Organics Processing Projections and Contract Alignment* ........................ 65
Figure 10-1: Waste Strategy Implementation Timeline ................................................................. 81

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 Section 1: Importance
Section4 of Having
– Solid Waste a Waste Strategy
Collection,
Processing, and Transfer

1 Importance of Having a Waste Strategy

Waste management and diversion programs in the City of Toronto (the City) have
evolved from simple garbage collection to a complex system of collecting source
separated materials including Blue Bin recycling, Green Bin organics, garbage, yard waste,
oversized and metal items, electronic waste and household hazardous waste, as well as a
range of other items.

The most recent diversion plan approved by Toronto City Council in 2007, Target 70,
outlined a strategy to achieve the goal of 70% diversion by 2010. The plan outlined a
number of programs and initiatives including:

• source reduction initiatives;

• development of reuse centres;
• replacement of blue boxes with Blue Bins;
• addition of new recyclable materials;
• implementation of Green Bin organics programs for multi-residential buildings;
• education and enforcement of the City’s diversion by-law;
• introduction of a volume-based rate structure;
• investigation of emerging source separation techniques; and,
• development of a residual waste processing facility to recover resources from
mixed residual waste.

The new Long Term Waste Management Strategy (Waste Strategy) represents an
evolution of the 2007 Target 70 diversion plan. Many of the components of the Target 70
diversion plan have been implemented already, while some have been re-examined as
part of the Waste Strategy. The Waste Strategyrecommends waste reduction, reuse,
recycling, recovery and residual disposal(the 5Rs) (see Figure 1-1 below for a more
complete description of the 5Rs) policies and programsthat are cost-effective, socially
acceptable and environmentally sustainable for the long term. This “triple bottom line”
approach gives consideration to each component during the development of theWaste
Strategy. The Waste Strategy is intended to be a living document and will be reviewed,
revised and updated every five years as appropriate.

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Section4 of Having
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Collection,
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Figure 1-1: 5Rs Waste Management Hierarchy

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Section 2: Developing
Section4 the Waste
– Solid Waste Strategy
Collection,
Processing, and Transfer

2 Developing the Waste Strategy

Development of a Long Term Waste Management Strategy is Strategic Action #7 in
Council's 2013-2018 Strategic Action Plan. The intent of the Waste Strategy is to provide
a high level decision making document to guide Solid Waste Management Services’
(SWMS) policy decisions for the duration of the planning horizon of 30 to 50 years.

The development of the Waste Strategy has been governed by five guiding principles that
were approved by City Council:

1. Consideration of options which support waste reduction, reuse, recycling

and recovery before final disposal;
2. Consideration of all other environmentally approved disposal options to
extend the life of Green Lane Landfill;
3. An open and transparent review of the options;
4. Innovation and flexibility to adapt to emerging technologies and changes
to the regulatory environment; and,
5. Development of policies and opportunities for collaboration.

The Waste Strategy was prepared in three phases with each phase being supported by
comprehensive consultation and engagement with the public, and input from a
stakeholder advisory group and key stakeholders including members ofCityCouncil. The
overall Waste Strategy development process is presented in Figure 2-1 with a brief
description of each phase of the Waste Strategy development process.

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Section4 the Waste
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Collection,
Processing, and Transfer

Figure 2-1: Waste Strategy Development Process

Phase 1 - BUILDING THE FOUNDATION

Building the foundation included establishing a comprehensive baseline to identify the
current state of all aspects of the City’s integrated waste management system and also
identified the long-term need of the system in the future.

Deliverable 1 –“Where are we? Establishing a Comprehensive Baseline”

The purpose of this phase was to document the existing waste reduction,
reuse, collection, transfer, processing, disposal and financial systems used
to manage waste in the City. This baseline was used as the foundation
upon which future programs, policies and facilities' recommendations are
based. As part of the baseline, previous strategies that have been
developed were taken into consideration, including past
studiesassessingthe development of a Mechanical Biological Treatment
(MBT) facility. Phase 1 sets the baseline from which future options and
recommendations were assessed in the Waste Strategy. The baseline has
been documented in Technical Memorandum No. 1 1.

Deliverable 2 – “Where do we need to go? Identifying the Long-Term

Needs”

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Collection,
Processing, and Transfer

Once a baseline had been established, projections for the future were
developed in order to estimate requirements for waste management for
the next 30 to 50 years. Variables that could impact the system including
population growth, housing trends, economic growth, product design,
packaging changes, City planning initiatives, and potential changes to
legislation were reviewed in this phase. Technical Memorandum No. 2 2
documents the gaps, challenges and/or opportunities in Toronto’s
integrated waste management system. It includes projections for the
future quantities of waste to be managed and the vision and guiding
principles to guide the implementation of the Waste Strategy in the
future.

Phase 2 - DEVELOP THE WASTE STRATEGY

In order to develop the Waste Strategy, a critical review of the current system was
completed. This was done in order to identify areas of opportunity for improvement, as
well as to consider policies, programs, and technologies that may help to improve the
current system. Where options were identified, they were critically evaluated and, where
appropriate, recommended for implementation in the future.

Deliverable 3 – “Howdo we get there? Consideration of Options”

A range of policies, programs, and facility/technology options were
reviewed to identify options the City could consider in the future. Options
included additional waste reduction and reuse programs and services,
other waste diversion techniques and practices, renewable energy
projects, waste technologies (e.g. Mixed Waste Processing, Energy from
Waste), alternative disposal options (e.g. redirecting waste to other
landfills), and long-term opportunities for Green Lane Landfill. Where
appropriate, separate options were identified to manage waste from the
single family residential and multi-residential sectors as these two sectors
have different waste management needs and in some cases may require
different programs and infrastructure. Technical Memorandum No. 3 3
identifies and discusses a list of options available to the City and describes
the evaluation methodology and criteria used to evaluate each option.

Deliverable 4 – “Evaluate the possibilities. Identifying the Best Options for

the City”

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Collection,
Processing, and Transfer

During this phase, a detailed evaluation of the options identified in Phase

2 was conducted from an environmental, social and financial perspective.
This identified a series of recommended long-term options for the City.
Technical Memorandum No. 4 4 documents the evaluation process and
resulting recommended options for the City.

Phase 3 – DOCUMENT AND DECIDE

Once the recommendations for change weredetermined, theWaste Strategy document
was prepared to identify what the new system will look like, the timing for any proposed
changes, the financial requirements to support the new system and the roles and
responsibilities of all those involved.

Deliverable 5 – “The Long Term Waste Management Strategy” (SUBJECT OF

THIS DOCUMENT)
TheWaste Strategy was developed using the results of the evaluation
process and through consideration of the feedback received through
consultation. It includes an implementation “roadmap” to help guide the
City’s integrated waste management system for the next 30 to 50 years.

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 Section3: Consultation Summary

3 Consultation Summary
The participation of stakeholders and the public in the development of waste
management policies and programs is critical for effective implementation and the
ultimate achievement of the City’s waste management reduction and diversion goals.
This participation has been central to the development of the Waste Strategy and is
meant to support community buy-in of the Waste Strategy and foster participation
during implementation of the recommendations. Throughout the development of the
Waste Strategy, thousands of participants from across the City have provided feedback,
engaged in dialogue and accessed key project information through a variety of
consultation and engagement activities. These conversations with stakeholders and the
public have had a significant impact on the formulation of the recommendations put
forward in this Waste Strategy.

Consultation activities were divided into three phases: Building the Foundation;
Developing the Waste Strategy; and Documenting and Deciding on this Waste Strategy.
A variety of consultation methods were used at each phase of the process, engaging
participants in a two-way dialogue on critical Waste Strategy development themes.

The following Figure 3-1 shows how the consultation plan developed for the Waste
Strategy was incorporated into the three phases described above.

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Figure 3-1: The Project Process

Members of the general public were reached through a variety of methods, offering
numerous opportunities to access information and engage in meaningful dialogue on the
development of the Waste Strategy. Key consultation and engagement activities
included:
• Public Information Centres (PICs), including in-person events, webinars and a
webcast;
• Stakeholder charrettes;
• Surveys, including an interactive online tool;
• Project Update newsletters;
• Fact Sheets on the 5Rs (reduce, reuse, recycle, recovery and residual);
• Community outreach events, including farmers markets, Green Living Show, and
Community Environment Days;
• Media relations;
• Corporate e-newsletters;
• Project website;
• Social media presence;
• Email communications;
• Informational videos;

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• A Vendor Days event;

• Waste related film screenings;
• Engagement with University of Toronto and Ontario College of Art & Design
(OCAD) students on waste management innovation; and,
• An educational waste-focused speaker series (Wast(ED) - Waste Education).

In addition to the broader City of Toronto general public, consultation and engagement
activities involved a number of stakeholders in the Waste Strategy development process,
including: the institutional sector; non-governmental organizations, as well as
environmental groups; the residential sector; the business and retail sector; other City
divisions and agencies; the waste management industry; community members; and
Toronto City Staff and Council, who were invited to participate in consultations and were
kept abreast of the project process and ways to become involved through online
engagement. Aboriginal communities in the vicinity of Green Lane Landfill and City of
Toronto were provided with information and informed of the progress of the Waste
Strategy.

A Stakeholder Advisory Group (SAG) was established at the outset of the project to
provide advice and feedback to the project team at key points in the process. The 16
SAG members included on the committee represented a variety of interests in Toronto
and the waste management sector. Organizations that were represented on the SAG
included:
• Greater Toronto Apartment Association
• Ontario Waste Management Association
• Recycling Council of Ontario
• Social Planning Toronto
• Toronto Association of Business Improvement Areas
• Toronto Atmospheric Fund
• Toronto Catholic District School Board
• Toronto Community Housing
• Toronto District School Board
• Toronto Environmental Alliance
• University of Guelph
• University of Toronto

In addition, a series of Key Stakeholder Meetings (KSMs) were held throughout the
project, wherein representatives of environmental groups, Aboriginal communities,
multi-residential buildings and tenants association, not-for-profit organizations, current
service providers, and ratepayers groups were invited to become engaged in focused
discussions on particular elements of the Waste Strategy. Throughout the process,

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project team members also met with the Executive Environment Team, consisting of
senior staff from most City Divisions.

Figure 3-2 summarizes the various consultation activities undertaken and provides a
snapshot of participation.

Figure 3-2: Consultation and Engagement Activities Summary

Throughout consultation, a number of common themes emerged, which had an

important bearing on the Waste Strategy development process. It was clear that the
environment, along with our community’s health, should be a priority, including working
to mitigate climate change. Taking responsibility for our own waste by focusing efforts
on reducing the amount of waste generated in the first place and creating a “3Rs-first
strategy” was another central theme that emerged through consultation. Many
stakeholders also highlighted the need to treat waste as a resource and to reinforce the
concept of a circular economy 5. Stakeholders and members of the public also stressed
the importance of creating user-friendly, convenient and accessible programs and
facilities with enhanced enforcement utilized where necessary. Ultimately, it was
recognized that there was a desire to find solutions that balanced the needs of the
community and the environment with long term financial sustainability.

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“A circular economy… aims for the elimination of waste through the superior design of materials,
products, systems and business models.”Towards the Circular Economy, Ellen MacArthur Foundation.A
circular economy shifts the way waste is viewed and requires a change in the way we think about waste,
how products and packaging are designed, and how waste is managed to maximize resource recovery.

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The importance of education to foster positive behaviour change and promotional

mechanisms to drive participation in waste reduction and diversion programs also
emerged as key themes throughout the consultation. There was a desire to build on the
strengths of what the community is already doing and finding a role for the City to
facilitate the good work of others through collaboration and partnerships. The
community was also looking for businesses to do more to divert waste and producers to
take more responsibility for the products and packaging that they make and
management of the resulting waste. Finally, the opportunities for improvement in the
multi-residential sector comprised much of the dialogue throughout the engagement
process. Participants highlighted the challenges associated with the design of buildings
and facilities that hamper efforts to improve diversion in multi-residential buildings. They
also expressed an interest in seeing more enforcement to encourage diversion and
strong education and awareness efforts targeted at the multi-residential sector.

These key themes emerging through extensive consultation were captured in the project
vision statement, helped inform the evaluation of options, and provided the foundation
for the recommendations ultimately put forward in this Waste Strategy.

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 Section 3: AAVision
Section4: Visionforfor
thethe
Future & Guiding
Future Principles
& Guiding
Principles
A Vision for the Future

4 A Vision for the Future & Guiding Principles

A successful Waste Strategy reflects the interests of the community that it serves now
and in the future. It is driven by a Vision Statement and Guiding Principles that express a
philosophy of what the Waste Strategy will strive to achieve and what will be important
in making decisions along the way.

4.1 A Vision for the Future

The Vision Statement for the Waste Strategy was developed through a combination of
feedback received during the Phase 1 public consultation events in June 2014, a visioning
session with Stakeholder Advisory Group members and a visioning session with members
of the SWMS'Senior Management Team. The resulting draft themes for the Vision
Statement were presented to the public in a survey in Phase 2 of the consultation
process.

Based on the feedback received during the consultation and engagement period, a final
Vision Statement was prepared and approved by City Council in October 2015:

"Together we will reduce the amount of waste we generate, reuse what

we can, and recycle and recover the remaining resources to reinvest back
into the economy. We will embrace a waste management system that is
user-friendly, with programs and facilities that balance the needs of the
community and the environment with long-term financial sustainability.
Together, we will ensure a safe, clean, beautiful and healthy City for the
future."

4.2 Guiding Principles to Stay on Track

The Phase 2 consultation process also presented a list of Guiding Principles.
Consultationparticipants were asked to identify one or more Guiding Principles that were
most important to them.

The top three Guiding Principles selected by participants were:

• Work to Mitigate Climate Change;

• Treat Waste as a Resource; and,
• Prioritize our Community’s Health & Environment.

Through the consultation process, there were no comments received in opposition to any
of the guiding principles, nor were there suggestions that would support removing some
from the list. In October 2015, City Council approved the following list of eight Guiding
Principles to support decision making and to guide the implementation of the Waste
Strategy in the future:

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Future Principles
& Guiding
Principles
Guiding Principles to Stay on Track

• Work to Mitigate Climate Change Impacts- To reduce our impact on climate

change we will find solutions that reduce greenhouse gas emissions associated
with our waste management system.
• Treat Waste as a Resource- Waste is an asset that needs to be conserved. We
should make best use of our waste by recovering materials and energy remaining
after reducing, reusing, and recycling.
• Prioritize our Community’s Health and Environment- The health of our residents
and the environment is a priority in decision making to minimize negative impacts
and to maximize the benefits.
• Embrace Social Equity- Create an easy-to-use system that all residents and the
community can understand and participate in.
• Lead the Change- Strong leadership is taking ownership, leading by action and
being responsible for the waste we produce.
• Ensure Financial Sustainability- Financially sustainable solutions that are easy and
affordable to maintain by future generations and also help to stimulate economic
growth within our community.
• Make the Future System Transparent- Future decisions on the implementation of
the Waste Strategy will be open, accessible and based on best practices and facts
to find solutions that benefit all.
• Support Development of Community Partnerships- Working together with local
community groups and organizations will help us reach our goals and reduce
waste more effectively and efficiently.

4.2.1 A Circular Economy and Zero Waste Future

As part of Phase 3 consultation, Survey No. 4 was completed to seek public input on the
recommended options and implementation of the Waste Strategy. It also sought
feedback on whether the City should include anaspirational goal of working towards a
Circular Economy and Zero Waste future in the Waste Strategy to align with the
Provincial goal proposed as part of the Waste-Free Ontario Act.

A Zero Waste goal places emphasis on preventing waste (e.g. reducing packaging), rather
than managing it at the end of life. A circular economy shifts the way we view waste,
looking at how products and packaging are designed, and how waste is managed to
maximize resource recovery. This goal was strongly supported by respondents in Survey
No. 4; 79% of respondents strongly agreed with the goal, 11% agreed and 10% were
neutral or disagreed. The Stakeholder Advisory Group also strongly supported this goal.

It is recommended that the City include the aspirational goal of working towards a
Circular Economy and Zero Waste future. The Waste Strategy includes strategies to
move the City towards this goal including the 3Rs options, the Unit for Research,

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& Guiding
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Innovation & a Circular Economy and establishing a circular economy/waste reduction

advisory group to inform on-going waste planning and implementation processes.

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 Section 5: The Current Waste Management System

5 The Current Waste Management System

The following provides an overview of the current waste management system
components, their function and performance.

5.1 Current Integrated Solid Waste Management System Overview

The City of Toronto is the capital of the Province of Ontario and Canada’s largest city with
a population of 2,615,060 (2011 census). Toronto is one of the world’s most diverse cities
with approximately half of the population born outside Canada 6.

The City is at the centre of the Greater Toronto Area (GTA), bordered by the Regions of
Peel, York and Durham.Geographically, the City spans an area of 630 square kilometers,
approximately 21 kilometers from north to south and 43 kilometers from east to west.
The City is bordered by Lake Ontario to the south, Etobicoke Creek and Highway 427 to
the west, Steeles Avenue to the north and the Rouge River/Scarborough-Pickering
Townline to the east. Figure 5-1 provides an overview of the geographic boundaries of
the City of Toronto 7.

Figure 5-1: City of Toronto Geographic Boundaries and Neighbouring Municipalities

The City of Toronto provides a comprehensive waste management system that includes
providing support and services from the initial generation of waste (or avoidance of

6
City of Toronto Website - Toronto Facts - Diversity
7
http://commons.wikimedia.org/wiki/File:Greater_toronto_area_map.svg

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 Section 5: The Current Waste Management System

generation) through to the monitoring of closed landfill sites, long after the final residual
waste has been disposed and the site has been closed. This system is a comprehensive
network of programs, services, truck fleets, transfer and drop-off facilities, processing
facilities, and landfills. The system provides services to a wide range of customers and is
financially supported through a number of funding and revenue sources.

The City of Toronto Solid Waste Management Services Division is one of the largest
municipal solid waste management operations in North America.

Figure 5-2provides a high-level graphic overview of the operational components of the

solid waste management system.

Figure 5-2: Solid Waste Management System Overview 8

8
Percentages presented are based on 2014 data.

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The following provides some quick facts on the City's solid waste management system
and the services either supported or delivered in 2014:

Customers Served9
• Residential
o Single familyresidences (approximately 460,000);
o Residential Units Above Commercial (RUAC) establishments
(approximately 12,000); and,
o Multi-residentialbuildings (approximately 420,000 units).
• Non-Residential
o Small commercial establishments (approximately 14,500);
o City of Toronto Divisions, Agencies and Corporations;
o Charities, Institutions and Religious Institutions;
o Schools (Elementary and Secondary);
o Private Industrial, Commercial and Institutional (IC&I) waste
accepted at transfer stations and landfill;
o Specific service sharing arrangements with other municipalities;
and,
o IC&I Customers utilizing the City’s drop and load service 10.

Quantities of Waste and Materials Managed (2014)

• Collection of:
o 483,0000 tonnes/year of Blue Bin recyclingand Green Bin organics for
diversion including:
 Over 215,000 tonnes of Blue Bin recycling;
 Over 138,000 tonnes of Green Bin organics; and,
 Over 130,000 tonnes of yard waste.
o over 900 tonnes of Electronics;
o almost 2,200 tonnes of Household Hazardous Waste (HHW);
o over 11,000 tonnes of oversized and metal items (such as mattresses and
appliances), porcelain (e.g. toilets) and other materials (e.g. plastic
outdoor furniture, drywall and old corrugated cardboard);
o over 77,000 tonnes/year of waste (predominantly garbage) received at
transfer stations from residents and small businesses (requires payment of
a tipping fee);and,
• Disposal of approximately 524,000 tonnes of garbage.

9
All numbers presented are based on 2014 data.
10
The City offers a drop and load (tolling) service which allows private haulers to bring garbage to a transfer
station and access the City’s certified scales, staff and equipment to weigh waste materials for a fee per
tonne.

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 Section 5: The Current Waste Management System

Public Space Bins

• Collection of approximately 8,500 street litter/recycling bins;and,
• Maintenance and collection of approximately 10,000 park litter bins
and collection of litter from public right-of-ways.

Trucks, Bin Delivery, and Maintenance Operation

• Operation and management of over 600 vehicles and pieces of
equipment; and,
• Delivery, maintenance and tracking of approximately 1.6 million
Garbage Bins, Blue Bins, and Green Bins.

Waste Management Facilities

• The City owns and operates:
o Seven transfer stations (six with HHW depots);
o A maintenance facility;
o Four collection yards; and,
o One litter collection yard.
• The City owns the following facilities which are operated by private contractors:
o Green Lane Landfill; and,
o Disco Road Organics Processing Facility.
• The City owns the following facilities which are currently not in operation or
undergoing construction:
o Dufferin Material Recovery Facility (MRF 11); and
o Dufferin Organics Processing Facility 12.
• SWMS leases the facility in which the Reuse Centre is operated;and,
• To ensure the proper maintenance and longevity of its facilities, the City operates
a comprehensive asset management program and state of good repair program.

Closed Landfills Monitoring

• Provision of perpetual care for 160 closed landfill sites.

Figure 5-3 presents a map of the waste management facilities in the City of Toronto and
provides a brief description of materials accepted at each facility.

11
This facility is closed as of November 2014. Blue Bin recycling is processed at a City contracted service
provider facility.
12
Currently shut down in preparation for an expansion. It is anticipated this facility will be back in operation
in 2018.

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 Section 5: The Current Waste Management System

Figure 5-3: Map of Waste Management Facilities and Collection Districts

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 Section5:
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5.2 Components of the CurrentIntegrated Solid Waste Management

System
The City of Toronto operates an integrated waste management system with a wide range
of components that function as a completely integrated system. It is important to
understand each individual component, as well as how each contributes to and
interrelates with other components of the system. In an integrated waste management
system, a change to one component has the potential to impact other components of the
system and therefore this interrelationship needs to be clearly understood prior to any
changes being implemented.

5.2.1 Current Integrated Solid Waste Management SystemComponents

The following Figure 5-4provides an overview of the components of the City’s integrated
solid waste management system. The figure helps illustrate:

o the integrated nature of components;

o the flow of waste from generation to final disposal and beyond;
o the 5Rs and solid waste hierarchy priority;
o where each of the 5Rs fit within the system;
o aspects of a circular economy approach; and,
o internal and external influences on the system.

The City of Toronto’s solid waste management services and programs are strongly
influenced by a number of policies and legislative requirements both internal and
external to the City.

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Figure 5-4: Components of the System and Potential Influences

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 Section 6: Projected Long Term Needs

6 Projected Long Term Needs

The growth of the City presents both challenges and opportunities for the future system.
As part of the development of the Waste Strategy, estimates of the future quantities of
waste requiring management were calculated based on economic indicators (e.g.
population, employment and unemployment rates, gross domestic product), and
population projections. A number of factors can influence waste generation and result in
an increase or decrease in waste tonnes requiring management, including:

• Changing composition of the waste stream (less paper, more packaging);

• Change in number of customers served by the City;
• Waste reduction and reuse activities;
• Economic factors; and,
• Seasonal/natural events (e.g., flooding, ice storms, etc.)

Figure 6-1 provides historical waste generation values as well as high/low estimates to
2021 of waste requiring management based on economic indicators and population
growth.

Figure 6-1: Historical and Projected High/Low Total Annual Waste Generation (2001 to
2021), Based on Economic Indicators and Population Growth

Figure 6-2 provides a long-term projection of total waste generation from 2022 to 2050
based on population growth. Waste projections from 2022 to 2031 were developed
based on population and household projections obtained from the City of Toronto

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 Section 6: Projected Long Term Needs

Planning Division and projections from 2032 to 2050 were developed assuming a steady
state growth rate similar to the growth rate projected for the 2022 to 2031 period.

Figure 6-2: Projected Total Annual Waste Generation (2022 to 2050), Based on Population
Growth

1,550,000

1,450,000

1,350,000

1,250,000
Tonnes

1,150,000

1,050,000

950,000

850,000

750,000
2022 2026 2031 2036 2041 2046 2050
Year

Key findings from the analysis relevant to the Waste Strategy include:

1. It is estimated that by the end of the planning period, the City could be managing
over 1.5 million tonnes annually of material generated by the City’s customers, if no
waste reduction takes place (see Figure 6-2).
2. With the implementation of the recommended series of new waste reduction, reuse,
recycling, and residual programs and facilities as part of the Waste Strategy, the life of
Green Lane Landfill could be extended to approximately 2040.This is described in
more detail in Section 9.4.
3. Based on the projections developed for quantities of Blue Bin recycling, and barring
any changes to the current system, it appears that there is sufficient processing
capacity for the amount of Blue Bin recycling collected until the end of the contract
period in 2022. This is described in more detail in Section 9.6.3.1.
4. Based on the projections developed for tonnages of Green Bin organics requiring
management, it is anticipated that the City will require additional processing capacity
after 2020 when current contracts with private sector facilities expire.This is
described in more detail in Section 9.6.3.2.

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 Section 7: Gaps, Challenges and/or Opportunities

7 Gaps, Challenges and/or Opportunities

The development of the Waste Strategy included the identification of a number of gaps,
challenges and/or opportunities in the current system as well as those opportunities
resulting from pending Provincial legislation. The following sections present an overview
of the gaps, challenges and opportunities identified through the strategy development
process as outlined in Table 7-1 and those that may result from Provincial legislation.

7.1 Gaps, Challenges and/or Opportunities in the Current System

The gaps, challenges and/or opportunities in the current system which needed to be
considered in developing the Waste Strategy were identified through:

• A combination of stakeholder consultations;

• City staff review and input;
• A jurisdictional review of other similar systems; and,
• The expertise of the consultant team.

Table 7-1:Identified Gaps, Challenges and/or Opportunities

Gap,
Challenge and/or Summary
Opportunity
Waste Reduction & A challenge facing the City is how to better promote and
Reuse facilitate the reduction and reuse of waste materials to
prevent waste from entering the system and requiring
management through collection, processing and/or
disposal.
Dufferin Waste The City has a Material Recycling Facility that closed in
Management Facility November 2014 with no current long-term plan for its
future use. A challenge facing the City is to examine the
function and role of the entire Dufferin Waste
Management Facility to identify future roles within the
City’s integrated solid waste management system.
Multi-residential Waste A challenge facing the City is the need for increased waste
Diversion diversion in the multi-residential sector to support its
diversion goals, and reduce the amount of material
currently being landfilled.

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Section 7: Gaps, Challenges and/or Opportunities

Gap,
Challenge and/or Summary
Opportunity
Performance Measures An opportunity for the City is to develop more current and
robust performance metrics that will accurately measure
the waste management system performance and account
for changing waste streams, composition, community
demographics, etc.
Public Education and A challenge facing the City is being able to reach out to a
Engagement diverse community to educate its customers on program
changes, good waste management practices, and where
possible, how to better reduce and reuse.
Regulatory, Control and A challenge facing the City is having a system where some
Role/ waste management responsibilities are outside of the
Responsibility Challenges City’s control and therefore subject to uncertainty and risk
with respect to external parties making changes that can
impact the City’s system.
Residual Waste Disposal A challenge facing the City is to extend the life of Green
Capacity Lane Landfill and find new waste disposal options to cover
the disposal needs for the 30 to 50 year planning period of
the Waste Strategy.
Solid Waste Services for A challenge facing the City is identifying a mechanism to
the Institutional, allow the City to influence greater waste diversion in the
Commercial &Industrial IC&I sector for waste materials being generated within the
(IC&I) Sector City of Toronto, but managed outside the City of Toronto
waste management system.

An opportunity for the City is to provide the IC&I sector

with options which promote greater diversion and are
flexible to accommodate changing waste streams and
customer accessibility.
Commissioners Street A challenge facing the City is the decision needed about
Transfer Station the future of the Commissioners Transfer Station (TS);
whether it should be relocated or closed. If the facility is
relocated, there are options to construct a new facility that
may or may not include a residential drop-off facility. If
the facility is closed, the City will need to decide how the
current services available at the Commissioners TS will be
replaced.

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Section 7: Gaps, Challenges and/or Opportunities

Gap,
Challenge and/or Summary
Opportunity
Future Role of and Need An opportunity for the City is to provide its customers with
for Drop-off Facilities more convenient options which promote greater diversion
and are flexible to accommodate changing waste streams
and resident accessibility.
Value of Food and Food A challenge facing the City is the need to reduce waste
Waste through 1) decreasing the amount of food that is being
wasted, and 2) increasing the amount of food waste that is
being captured for diversion.
Waste Financing System A challenge facing the City is the development of a
sustainable financing strategy that will allow the City to
move toward greater waste diversion while balancing
program sustainability and in support of the need for long-
term infrastructure investments. This sustainable waste
financing strategy needs to be specific to waste such that
revenues collected and reserve funds established need to
be used only for future waste management related
expenditures.
Waste Recovery A challenge the City is facing is diminishing landfill disposal
Technologies capacity. Alternative processing technologies could divert
additional materials from disposal and extend the life of
Green Lane Landfill.
Future Waste Processing A challenge facing the City is to maximize the use of its
Capacity facilities and infrastructure, in particular waste processing
capacity, and maintain sufficient capacity in the system to
address its future demands.
Impacts of Energy Costs A challenge facing the City is that the system depends on
on the Waste fuel for the collection of waste, and fuel and other energy
Management System costs are expected to continue to increase in the future.
Impacts of Intensification A challenge facing the City is the impacts of intensification
and the changes required to manage additional waste
generated by multi-residential housing units with typically
lower waste diversion performance and in areas that are
more difficult to collect using traditional methods.
Impacts of a Changing A challenge facing the City is the changing composition of
Waste Stream the waste stream and the ability for programs and
infrastructure to adapt.

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 Section 7: Gaps, Challenges and/or Opportunities

Gap,
Challenge and/or Summary
Opportunity
Solid Waste Services for An opportunity for the City is to address residential
Construction, renovation waste and provide its renovator customers
Renovation and with convenient options which promote greater diversion
Demolition (CRD) and are flexible to accommodate changing waste streams
Materials and accessibility.

An additional challenge facing the City is how to better

promote and facilitate diversion of CRD materials
generated by the CRD sector.
Enhanced Enforcement A challenge for the City is to maximize the effective and
efficient use of its current programs, services and facilities.
To date, significant effort and success has been realized
through promotion and education;however, there are still
areas of the system where voluntary compliance is not at
the desired level, requiring strategic consideration of
mandatory measures.

7.2 Gaps, Challenges and/or Opportunities with New Legislation

There are two pieces of legislation that may present opportunities for the City with
respect to waste management roles and responsibilities. The Waste-Free Ontario Act
may impact the City’s role in managing certain materials and the Climate Change
Mitigation and Low-carbon Economy Actmay provide additional financial opportunities
for the City. Each of these pieces of legislation is further discussed below.

7.2.1 Waste-Free Ontario Act

On November 26, 2015, the Ontario Minister of Environment and Climate Change
(MOECC) introduced for first reading, the Waste-Free Ontario Act, 2016 (the Waste-Free
Ontario Act). The Act is intended to change the existing waste diversion framework in the
Province of Ontario and support a circular economy, which will increase waste reduction
and resource recovery. The enabling legislation consists of:the Resource Recovery and
Circular Economy Act (RRCEA) and the Waste Diversion Transition Act (WDTA) which
repeals and replaces the Waste Diversion Act, 2002, and lays out how Ontario
stewardship programs will transition from the current structure to a full extended
producer responsibility (EPR) framework 13. The bill was passed on June 1,2016.

13
The WDTA sets forth a legislative framework for transitioning existing Industry Funding Organization (IFO)
programs for Blue Box materials, municipal hazardous and special waste (MHSW), Waste Electrical and

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The legislation will impact how the City managessome materials in the waste stream,
particularly Blue Bin recycling. It is likely that the City will continue to manage residential
garbage and Green Bin organics, however, the legislation provides opportunities for the
City to examine and consider the extent to which it wants to continue to be involved in
the management of Blue Bin recycling,Municipal Hazardous and Special Waste (MHSW),
Waste Electrical and Electronic Equipment(WEEE) and used tires, where producers will
become physically and financially responsible for end of life management under the new
legislation. Future regulations under the Act are expected to designate a number of
additional materials, which are included in the Waste Strategy, including: textiles,
mattresses, carpet, construction and demolition waste and furniture in particular 14. If
these regulations pass, then producers will be responsible for the end of life
management of these materials. The City may have the option to continue to manage
these materials on behalf of producers, subject to satisfactory financial arrangements, or
the City may have the option to leave management entirely up to the responsible
producers.

Along with the Waste-Free Ontario Act, the government released a Draft Strategy for a
Waste-Free Ontario: Building the Circular Economy 15. This strategy sets out the Province’s
key goals with respect to waste recovery and a series of actions to shift the Province
towards a circular economy and waste-free future. Several of the actions mentioned in
the Draft Provincial Strategy will overlap with elements of this Waste Strategy. In
particular, as part of the Draft Provincial Strategy, the Province intends to:
• establish an organics action plan which may mandate organics bans at disposal
facilities;
• consider material bans at disposal facilities, possibly including construction and
demolition waste;
• put better data collection systems in place to address the need to divert more
IC&I waste; and,
• demonstrate provincial leadership through green procurement.

7.2.2 Cap and Trade Program

On February 24, 2016, the MOECC released Bill 172, the Climate Change Mitigation and
Low-Carbon Economy Act, 2016 16, and the draftCap and Trade Program Regulations on
February 25, 2016.Bill 172 received Royal Assent on May 18, 2016. In addition to

Electronic Equipment(WEEE) and used tiresto an extended producer responsibility (EPR) regime under the
new Resource Recovery and Circular Economy Act.
14
Textiles, furniture, carpets, mattresses and construction and demolition waste are targets for the
Canadian Council of Ministers of Environment (CCME) Phase 2 EPR program. All provinces in Canada,
including Ontario, have committed to regulating EPR for these materials by 2017.
15
http://www.ontla.on.ca/web/bills/bills_detail.do?locale=en&BillID=3598
16
http://www.ontla.on.ca/web/bills/bills_detail.do?locale=en&Intranet=&BillID=3740

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codifying Ontario’s Greenhouse Gas (GHG) reduction commitments, this legislation,lays

the foundation for Ontario’s cap and trade program.

Under the cap and trade system, the Ontario government willimpose a mandatory cap on
the GHG emissions that regulated industries and sectors are allowed to produce within a
given compliance period. To comply with the cap, which declines each year, emitters may
either reducetheir emissions or trade/purchase allowances and emissions credits in the
carbon market.

The Bill could have several implications for this Waste Strategy. The Act establishes a
Greenhouse Gas Reduction Account, which is proposedto be used, in part, to fund
programs that reduce or support the reduction of GHG emissions. Projects related to
Green Binorganics processing are specifically listed as eligible for funding from the
Greenhouse Gas Reduction Account.

The legislation could also mean potential new financialopportunities for the City through
the sale of GHG emission offsets, or “credits.” The first offset auction is expected in
March 2017. Although the government has yet to define what constitutes an “offset
credit,” they have identified organics processing as a priority area for consideration and
may also include landfill gas capture projects. While recycling results in significant GHG
benefits, to date the Province has not indicated any immediate plans to create an offset
protocol which would allow the sale of recycling-related GHG reductions as offsets.
However, Ontario is part of a large trading pool which includes Quebec and California
(through the Western Climate Initiative), therefore on-going protocol developments are
anticipated which may benefit thisWaste Strategy.

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 Section 8: Identification and Evaluation of Options

8 Identification and Evaluation of Options

As part of the development of the Waste Strategy, a number of options that addressed
the gaps, challenges and/or opportunities in the current waste system were identified.
These options all represent enhancements or additions to the current system. The
evaluation of potential options followed a four phase approach that used both qualitative
and quantitative data where available 17.

Phase 1: Background Data Collection. Data was collectedfor each option so that
they could be evaluated. For example, in order to evaluate the relative cost
implications of each option, background research was required to develop the
cost estimates for each option.

Phase 2: Grouping of Similar Options. For evaluation purposes, similar options

that could address specific gaps, challenges and/or opportunities were grouped
together into the following categories: Waste Reduction and Reuse; Drop-off
Facilities; Commissioners Transfer Station; Recovery (new facilities); Residual
Waste; Multi-residential; Industrial, Commercial & Institutional; Construction,
Renovation, Demolition; Control, Influence & Enforcement; and Incentive Based
Mechanisms. These categories reflected the various components of the
integrated waste management system (see Figure 5-4 ). Within each category,
like options were comparatively evaluated to determine the recommended
options. Some of the options identified were not evaluated using the criteria
below, but rather were identified as Future Considerations or Implementation
Tools. These options will be considered in the context of what is recommended
for implementation (e.g. an Implementation Tool option will be utilized to support
the implementation of a recommended program or facility) or a Future
Consideration where timing for a more detailed evaluation will be identified (e.g.
future processing capacity needs to be considered where there is already capacity
in the system for the foreseeable future, and a recommendation on how to
proceed is best deferred to a more appropriate time in the future once the
impact of recommended programs and facilities is better understood following
their implementation).

Phase 3: Application of Evaluation Criteria and Identification of Relative Scoring.

The defined evaluation criteria were applied to estimate the potential impacts

17
More information on options identification and evaluation can be found in Technical Memoranda No. 3
and 4 on the Waste Strategy website
http://www1.toronto.ca/wps/portal/contentonly?vgnextoid=98fc8005b7ae7410VgnVCM10000071d60f89
RCRD.

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and opportunities of the specific option, and relative scoringwas applied to

identify which options “scored” higher within a particular grouping of options
addressing a common need.Where necessary, priorities (environmental, social
and financial) were applied where options “scored” the same. For example, the
potential impacts to air were identified and those options that helped to reduce
air emissions (and/or were less than other opportunities being identified) were
considered advantaged over other options that may have greater air emissions.

Phase 4: Recommendation of Preferred Options. Once the data was collected, and
the criteria were applied, the options that had the highest “score”were
considered advantaged over the others and wererecommended for
implementation.

It is important to note that through this evaluation process, multiple options could have
been identified as preferred (i.e. options result in similar “scores”) and in these
circumstances, priority for implementation was placed on those opportunities that were
more advantaged over others and/or better met the identified gap, challenge and/or
opportunity.

Solid Waste Management Services staff consulted with Toronto Public Health to seek
advice on the most appropriate means to undertake an evaluation of “estimated health
care costs”.Toronto Public Health developed an approach that is in line with the Waste
Strategy’s evaluation process and conducted a public health analysis of the options using
a rapid Health Impact Assessment (HIA) for the waste management options by applying a
public health lens to each option 18.The evaluation process concluded with a series of
recommended options for implementation in the City of Toronto that have been
identified as changes that either: a) have potential for improving the current system; or,
b) will provide a potential replacement/ alternative/ substitute for a current component
of the system.

The following Table 8-1presents the list of options 19 considered during the evaluation
process and identifies the gap, challenge and/or opportunity addressed. The
recommended options brought forward to form this Waste Strategy are discussed in the
following sections.

18
Further information on Toronto Public Health’s evaluation can be found in Attachment 3 of the City’s staff
report to the February 2016 PWIC meeting located here
http://app.toronto.ca/tmmis/viewAgendaItemHistory.do?item=2016.PW11.3
19
For more information on the options considered and the evaluation process, please see Technical
Memorandum No. 3, Options Identification and Evaluation Process. For more information about the
evaluation results, please see Technical Memorandum No. 4 – Options Evaluation, both located here -
http://www1.toronto.ca/wps/portal/contentonly?vgnextoid=98fc8005b7ae7410VgnVCM10000071d60f89
RCRD

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 Section 8: Identification and Evaluation of Options

It should be noted that the options identification and evaluation process was undertaken
by system component, however, the options presented in Table 8-1 have been
regrouped to follow the outline of the presentation of the recommended options (i.e. by
the 5Rs hierarchy) in Section 9.

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Section 8: Identification and Evaluation of Options

Table 8-1: List of Options Considered During the Strategy Development Process

Options Considered Gap, Challenge and/or Opportunity

Reduce, Reuse, Recycle
• Waste Reduction & Reuse
Food Waste Reduction Strategy.
• Value of Food and Food Waste
Textile Collection and Reuse Strategy. • Waste Reduction & Reuse

Sharing Library.
Support Reuse Events.
Explore Opportunities for Waste Exchange.
Mobile Drop-off Depots. • Drop-off Facilities
• Impacts of a Changing Waste Stream
Neighbourhood Drop-off Depots (formerly referred to as Develop a Network of
Permanent, Small Scale Neighbourhood Drop-off Depots in Convenient • Impacts of Intensification
Locations). • Waste Reduction & Reuse
Develop a Series of Stand Alone Drop-off and Reuse Centres.
Reverse Vending Machines (formerly referred to as Incentive Based Drop-off • Impacts of a Changing Waste Stream
System (e.g. Reverse Vending Machines). • Regulatory, Control and Role/Responsibility Challenges
Deposit-return System for City of Toronto for Selected Materials.
Multi-residential Services
Organics Management
Support for CommunityComposting (formerly referred to asCommunity/Mid-scale • Waste Reduction & Reuse
Composting). • Value of Food and Food Waste
On-site Organics Processing. • Multi-residential Waste Diversion
• Multi-residential Waste Diversion
• Impacts of Energy Costs on the Waste Management
In-Sink Disposal Units.
System

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Section 8: Identification and Evaluation of Options

Options Considered Gap, Challenge and/or Opportunity

Waste Collection Methods
• Multi-residential Waste Diversion
Data Management and Accessibility (formerly referred to asContainer • Performance Measures
Management). • Impacts of Energy Costs on the Waste Management
System
• Multi-residential Waste Diversion
Elimination of Collection Service to Multi-residential Buildings.
• Regulatory, Control and Role/Responsibility Challenges
Multi-residential Collection using Alternative Vehicles. • Multi-residential Waste Diversion
Alternative Collection Methods for Multi-residential Buildings –One Container • Impacts of Intensification
System. • Impacts of Energy Costs on the Waste Management
Alternative Collection Methods for Multi-residential Buildings – Vacuum System. System
Multi-residential Policies and Enforcement
• Multi-residential Waste Diversion
Multi-residentialBy-laws and Enforcement. • Enhanced Enforcement Opportunities
• Regulatory, Control and Role/Responsibility Challenges
• Multi-residential Waste Diversion
• Enhanced Enforcement Opportunities
Updates to Current Multi-residential Development Standards. • Impacts of Energy Costs on the Waste Management
System
• Regulatory, Control and Role/Responsibility Challenges
Industrial, Commercial and Institutional (IC&I) Services
Expand Yellow Bag program to More Businesses (formerly referred to asExpand • Solid Waste Services for the IC&I Sector
City of Toronto Share of IC&IWaste Management Market To Provide Diversion • Impacts of a Changing Waste Stream
Opportunities to More Commercial Businesses in City of Toronto). • Regulatory, Control and Role/Responsibility Challenges
• Solid Waste Services for the IC&I Sector
• Impacts of a Changing Waste Stream
City Explores Mandatory Approaches to IC&IWaste Diversion.
• Regulatory, Control and Role/Responsibility Challenges
• Enhanced Enforcement Opportunities

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Section 8: Identification and Evaluation of Options

Options Considered Gap, Challenge and/or Opportunity

• Solid Waste Services for the IC&I Sector
City of Toronto Exits the IC&IWaste Management Service. • Impacts of a Changing Waste Stream
• Regulatory, Control and Role/Responsibility Challenges
Construction, Renovation, Demolition (CRD) Services
Depots and Policies for Home Renovation Waste (formerly referred to asDepots • Solid Waste Services for the CRD Sector
and Policies to Divert CRD Waste). • Impacts of a Changing Waste Stream
Disposal Bans for Some CRD Materials (formerly referred to asCRDWaste Disposal • Regulatory, Control and Role/Responsibility Challenges
Ban). • Enhanced Enforcement Opportunities
Recovery
Mixed Waste Processing. • Waste Recovery Technologies
Mixed Waste Processing Facility with Organics Recovery. • Multi-residential Waste Diversion
• Impacts of Energy Costs on the Waste Management
Organics Recycling Biocell or Biomodule.
System
Direct Combustion. • Waste Recovery Technologies
Emerging Technologies. • Impacts of Energy Costs on the Waste Management
Refuse Derived Fuel. System
Waste to Liquid Fuel Technologies.
Residual
Landfill Mining and Reclamation. • Waste Recovery Technologies
• Impacts of Intensification
• Residual Waste Disposal Capacity
Bio-reactor Landfill. • Impacts of Energy Costs on the Waste Management
System
Expand Green Lane Landfill (formerly referred to asLandfill Expansion). • Residual Waste Disposal Capacity
Landfill Operation Continuous Improvement and Best Practices.
Review and Adjust Tipping Fees or Changes to Customer Base.
Purchase of a New Landfill.
Utilizing Disposal Capacity at Other Approved Disposal Sites (formerly referred to
asSecureDisposal Capacity to Preserve Long-Term Landfill Capacity at Green Lane
Landfill).

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Section 8: Identification and Evaluation of Options

Options Considered Gap, Challenge and/or Opportunity

Securing Disposal Capacity for Residual Management Following Green Lane
Landfill Reaching its Approved Disposal Capacity.
Greenfield Landfill.
Overall System Recommendations
• Public Education and Engagement
• Impacts of a Changing Waste Stream
Unit for Research, Innovation & a Circular Economy(formerly referred to as the
• Impacts of Energy Costs on the Waste Management
Research, Development, and Innovation Unit).
System
• Multi-residential Waste Diversion
• Impacts of Intensification
Expanded Blue Bin Recycling/Printed Paper and Packaging, Expanded Producer • Regulatory, Control and Role/Responsibility Challenges
Responsibility Options and Potential Impacts for Toronto.
Performance Measures to Define Success and Shape the Future of Waste • Performance Measures
Management.
Operational Considerations
Green Procurement. • Regulatory, Control and Role/Responsibility Challenges
• Impacts of a Changing Waste Stream
• Impacts of Intensification
Coordinated and/or Alternative Contracts.
• Impacts of Energy Costs on the Waste Management
System
Future Blue Bin Recycling Processing Capacity. • Future Waste Processing Capacity
Future Green Bin Organics Processing Capacity.
Future Materials Recycling and Other Reuse Related Processing.
• Dufferin Waste Management Facility
Dufferin Waste Management Facility. • Multi-residential Waste Diversion
• Waste Recovery Technologies
Relocation of Commissioners Transfer Station within the Port Lands Area. • Transfer Station at Commissioners St.
Redirecting Waste to an Existing Transfer Station(s). • Impacts of Intensification
Procure Transfer Capacity at a Private Transfer Station in Vicinity of the Port Lands • Drop-off Facilities
Area (if available).

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Section 8: Identification and Evaluation of Options

Options Considered Gap, Challenge and/or Opportunity

Implementation Tools
Promotion, Education and Enforcement
Interactive Online Waste Management Tool. • Public Education and Engagement
Environmental Impacts Calculator.
Expand Social Media Presence.
Provide Additional Tools and/or Resources to the 3Rs Ambassadors and Other
Volunteer Programs.
Incentivizing 3Rs Ambassadors and Other Volunteer Programs.
Targeted Group Communications.
Multi-residential – Workshops and Other Outreach for Buildings Not Receiving
City Waste Collection Services.
Create a Community Partnership Unit Within Solid Waste Management Services
(SWMS) Division.
Targeted Outreach and Education Campaign to Reduce Waste.
City to Assume Role of Facilitator to Encourage Industrial, Commercial and
Institutional Waste Diversion.
Develop an Advocacy Strategy.
Establish Advisory Groups to Inform On-going Waste Planning/Implementation
Process (formerly referred to as Establish a Circular Economy/Waste Reduction
Advisory Committee to Inform On-going Waste Planning/Implementation
Process).
City Explores Mechanisms to Introduce City-wide Controls Over Waste • Regulatory, Control and Role/Responsibility Challenges
Management. • Public Education and Engagement
System Financing
Fully Independent Utility. • Waste Financing System
Public-Private Partnerships (P3) for Major Capital Works.
Debt Financing.
Increase Solid Waste Management Services Customer Base.
Allocating Costs for Waste Management to Applicable Waste Streams.
Alternative Revenue Generation Opportunities.

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Section 8: Identification and Evaluation of Options

Options Considered Gap, Challenge and/or Opportunity

• Waste Financing System
Performance Based Incentives. • Performance Measures
• Multi-residential Waste Diversion

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 Section 9: Recommended Options

9 Recommended Options
The following sections present the recommended options that form the Waste Strategy.
The recommendations are presented according to the waste hierarchy, to reflect the
City’s commitment first to the 3Rs as an overarching goal of the Waste Strategy.

9.1 Reduction & Reuse

The City currently supports reduction and reuse of waste through a number of initiatives
and programs however,the Waste Strategy planning process identified a number of gaps,
challenges and/or opportunities facing the City currently and in the future with respect to
reduction and reuse.

These include:
• Value of Food and Food Waste:the need to 1) decrease the amount of food that is
being wasted; and, 2) increase the amount of food waste that is being captured
for diversion.
• Public Education and Engagement: being able to reach out to a diverse
community to educate on program changes, good waste management practices,
and where possible, how to better reduce and reuse.
• Waste Reduction & Reuse: how to better promote and facilitate the reduction
and reuse of waste materials, including textiles, to prevent waste from entering
the system and requiring management through collection, processing and/or
disposal.

Based on these specific gaps, challenges and/or opportunities identified, the following
options were recommended and included in thisWaste Strategy.

Food Waste Reduction Strategy

A food waste reduction strategy can promote reduction of food waste which can
potentially reduce the amount of waste sent to disposal by up to 34,000 tonnes/year by
Year 10 of the Waste Strategy. The food waste reduction strategy focuses on information
and outreach programs to educate residents about the benefits of food waste reduction
from an economic, environmental and social perspective. If successful, this option would
lower the amount of Green Bin organics generated, reduce the need for new organics
processing infrastructure, and reduce the amount of garbage to be managed.
Textile Collection and Reuse Strategy
This option involves the development of a textile diversion awareness campaign and the
provision of textile (e.g. clothing, shoes, curtains, sheets, towels) diversion opportunities
that would enable textiles to follow the 5Rs hierarchy and be reused or recycled and
potentially divert up to 15,000 tonnes/year of waste from landfill by Year 10 of the Waste
Strategy.

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 Section 9: Recommended Options

Sharing Library
Some sharing libraries already exist in the City of Toronto where items may be borrowed
through a membership (e.g. Toronto Tool Library) or through the Toronto Public Library
(e.g. pedometers). Additional opportunities could be developed to allow the public to
sign-out materials that are used infrequently. This could be accomplished by partnering
with existing organizations within Toronto (e.g., tool sharing library, bike sharing) or
establishing new sharing programs in different areas of the City and/or within multi-
residential buildings. Materials can be donated to the sharing libraries or organizations
can purchase and cover expenses through user fees.

Support for Reuse Events

The City could support reuse events that allow residents to obtain gently used materials
for reuse (e.g., furniture, toys) in a convenient, yet structured way so that the events do
not contribute to litter or illegal dumping. The events could include garage sales,
curbside giveaway events in common areas (for multi-residential buildings) or at curbside
(for single-family households), swap events (e.g., parent-to-parent sales, jewelry or
clothing exchanges).

Explore Opportunities for Waste Exchange

This option involves the establishment of a waste exchange network and/or partnership
with existing organizations that collect gently used materials, such as arts and crafts
supplies, school and office supplies, recovered construction materials, plastic containers,
etc.

While some of the recommended options are not expected to divert significant amounts
of waste from disposal, they have many social benefits and were strongly supported
through the consultation process. The primary objectives and benefits of proceeding
with the implementation of all of these recommendations include:

• Estimated reduction of approximately 50,000 tonnes/year in waste requiring

management by the City by Year 10 of this Waste Strategy. 20
• Builds public knowledge of waste targets and issues potentially resulting in long-
term change in attitudes and behaviour around waste.
• Reduces the amount of food waste in households, resulting in potential
household savings on grocery bills and reinforces message of food production
sustainability.

20
By reducing the amount of waste being generated, and assuming the waste being reduced would have
likely been diverted originally, the waste diversion rate for the City may decrease which is positive because
it means less waste has to be collected and processed.

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 Section 9: Recommended Options

• Increases attention and participation in sustainable food movement and food

security issues.
• Increases awareness of the benefits of recycling/reusing used textiles.
• Has potential to be integrated with other initiatives, such as neighbourhood
depots.
• Provides cost saving opportunities to residents through access to goods at either
reduced rates or for free instead of buying new.
• Creates reuse opportunities and therefore reduces waste sent for recycling or
disposal and increases the diversion of materials that could have otherwise ended
up in landfill.
• Creates beneficial uses fordiscarded materials and may provide revenue for
partnering organizations.
• Provides opportunities for collaboration and partnerships among residents,
partnering organizations and industry.

9.2 Recycling
The City of Toronto provides a comprehensive recycling program to its customers,
collecting a large number of Blue Bin materials. All City customers are expected to
participate in the Blue Bin recycling program. The City also collects a number of materials
that are recycled, such as porcelain and mattresses; however, there are some materials
that are currently not collected by the City, such as textiles or small household items that
could be diverted.

To increase diversion, a number of recommendations were developed to make diversion

more convenient for residents, particularly for residents in multi-residential buildings,
with options such as mobile and neighbourhood drop-off depots. The Waste Strategy
also makes recommendations to divert more multi-residential, IC&I and CRD waste to
increase diversion through the Blue Bin recycling, Green Bin organics and other waste
diversion programs.

9.2.1 Collection& Drop-off Depots

SWMS collects waste at the curb and accepts materials at transfer stations, drop-off
depots, and at Community Environment Days from the single family and multi-residential
sectors, as well as from the non-residential sector. Waste materials received at transfer
stations and drop-off depots are charged a fee depending on the type and quantity of
material delivered 21.

In order to encourage participation in waste diversion programs, customers need to be

provided with convenient options thatthat are accessible and flexible to accommodate

21
For more information on collection and drop-off provided by the City, please refer to Technical
Memorandum No. 1.

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 Section 9: Recommended Options

changing waste streams.The impact of intensification and the changes required to

manage additional waste generated by multi-residential buildings with typically lower
waste diversion rates require more innovative solutions that are easy to participate in
and access.

Based on these challenges,a combination of mobile and permanent drop-off depots has
been recommended to make diversion more convenient, particularly for residents in
multi-residential housing who may not have access to a car to take divertible materials to
a transfer station. It has been recommended that the mobile drop-off depots be planned
and implemented first to identify locations suitablefor the neighbourhood drop-off
depots. This combination of a mobile service and locally based neighbourhood drop-off
depots provides the best complement to the City’s extensive curbside programs (i.e. in
terms of encouraging additional non-curbside, non-Blue Bin material diversion from
landfill).

These options are further described below.

Mobile Drop-off Depots
A fleet of up to five dedicated mobile depots would be established that would travel to
high density areas across the City to collect small household items (pots and pans, etc.)
and textiles (clothing, household linens, etc.), HHW and other recyclable/reusable
materials. An added benefit of the mobile depot service is that it could also be used to
support and co-promote other sustainable environmental practices across the city (e.g.
water conservation, energy conservation, alternative household cleaners, food waste
reduction, renewable energy, etc.). Priority would be placed on collection of high value,
low volume materials which are easier to manage and store due to limited capacity in the
vehicles. Collection vehicles could be the size of a tractor trailer suitable for larger
locations, with one or more smaller vehicles available to access smaller locations or areas
with space restrictions within the downtown core. These mobile depots could be used to
support community events (e.g. neighbourhood swap events), move-outs (student
and/or multi-residential), and/or could move to different areas of the City on a pre-
determined basis. Non-profit groups could assist with collection/sorting of materials
collected at larger events.

Neighbourhood Drop-off Depots

This option is based on establishing 10 to 20 staffed neighbourhood drop-off depots
which would ideally be located near transit accessible locations. The findings and success
of the mobile drop-off service would assist with selection of locations for permanent
depots (i.e. identifying high traffic areas with good participation). The facilities could be
City owned and operated, privately contracted or some depots could be developed in
partnership with local community based organizations (some of which already provide
material specific drop-off and reuse services/locations to their customers).

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The primary objectives and benefits of the mobile and neighbourhood drop-off depots
include:
• Diversion of up to 20,000 tonnes/year by Year 10 of the Waste Strategy (includes
some tonnes from non City-serviced multi-residential buildings).
• Supports expanded drop-off opportunities and convenience for single family
residential and multi-residential buildings and small businesses.
• Encourages greater diversion/exchange of reusable materials (e.g. books,
clothing, furniture, carpets, small household items).
• Increases diversion of HHW, electronics, oversize and metal items, textiles and
other materials remaining in the current waste stream from landfill.
• Provides opportunity for outreach to profile waste reduction and other
sustainability activities in the City.
• Provides opportunities to engage not-for profit sector and charitable groups.

9.2.2 Incentive Based Options

An opportunity for the City is to provide its customers with more convenient options
which promote greater diversion and are flexible to accommodate changing waste
streams and resident accessibility. One way to address this challenge is to provide
incentives that reward particular activities and behaviours such as reverse vending
machines or a deposit-return system. Reverse vending machines are common in Europe
and are typically used in jurisdictions with deposit return systems and in the United
States for specific materials (i.e. mobile phones, drink containers, light bulbs and
batteries).Toronto residents’ current deposit-return experience is with the Ontario
Deposit Return Program for alcohol beverage container systems for beer, wine and liquor
containers that have been established Province-wide, as well as deposits on specific
containers established by specific vendors (e.g. 10 gallon reusable water bottles). The
recommended option is to explore the establishment of reverse vending machines for
the recovery of materials which have value such as small electronics and mobile phones.
The implementation of this option will be dependent on the outcome of the Waste-Free
Ontario Act.

Reverse Vending Machines

A number of reverse vending machines could be located throughout the City in high
traffic, secure and monitored areas which may include Community and Civic Centres,
arenas, libraries, transit hubs, etc. The machines would dispense a coupon or voucher
with financial or other valueto participants who drop off the solicited materials.

The primary objectives and benefits of the recommended incentive based option include:
• Diversion of an estimated 1,000 tonnes by Year 10 of the Waste Strategy
• Direct and immediate incentive to residents who participate.

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• Potential for partnerships and agreements with take back agencies and other
organizations responsible for the materials which might be captured.
• Higher participation and potentially slightly higher diversion rates for targeted
materials.
• Opportunity to trial innovative technology and incentive approach.
• Visual reminders to support the City's commitment to waste diversion to
residents and visitors.

9.2.3 Multi-residential Services

The City provides solid waste management services (collection of Blue Bin recycling,
Green Bin organics, garbage, oversized items, yard waste, electronics, andHHW) to multi-
residential buildings throughout the City. The Toronto Municipal Code defines multi-
residential to include:

• buildings with nine or more units and generally include apartments,

condominiums and some types of townhouses.
• small multi-residential buildings that receive curbside waste collection using
wheeled curbside bins.
• large multi-residential buildings that use front-end containers for waste
collection.

It is important to note that the majority of multi-residential buildings are eligible for City
services; however, some have opted out of receiving this service and have elected to
retain a private contractor. Of the 621,000 multi-residential units in the City of Toronto,
approximately 420,000, or about two-thirds, receive City service. The portion of waste
generated by multi-residential buildings that is currently being managed by the private
sector is not subject to the City’s collection by-laws, including diversion requirements.

The multi-residential sector is an extremely important part of the overall Waste Strategy
as the waste from multi-residential households now accounts for a significant component
of the waste managed by the City. The number of multi-residential households in the
City continues to grow, therefore reaching diversion targets requires that significant
efforts are made to divert more waste from this sector. A number of gaps, challenges
and/or opportunities were identified with respect to the provision of waste services to
multi-residential customers, including:

• The need for increased waste diversion in the multi-residential sector to support
its diversion goals, and reduce the amount of material currently being landfilled.
• How to better promote and facilitate the reduction and reuse of waste materials
to prevent waste from entering the system and requiring management through
collection, processing and/or disposal.

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 Section 9: Recommended Options

• The impacts of intensification and the changes required to manage additional

waste generated by housing units with typically lower waste diversion
performance records and some of which are in areas that are more difficult to
service using traditional methods. Buildings that do not receive City collection
services due to access limitations cannot participate in the variety of waste
diversion services offered by the City.
• The need for enforcement to maximize the effective and efficient use of the City’s
current programs, services and facilities. To date, significant effort and success
has been realized through promotion and education; however, there are still
areas of the system where performance is not at the desired level requiring
strategic consideration and engagement of enforcement measures.

The options for the multi-residential sector were grouped into three main categories:
organics management, waste collection methods and planning, policies and enforcement
to address the gaps, challenges and/or opportunities specific to these categories.

Organics Management
Support for Community Composting
Consider supporting community composting initiatives operations in locations where
community members can compost their garden or kitchen waste using low-tech
approaches such as a large backyard composter or a three-bin wooden composter.
Organic waste collection bins could be located at different participating sources, e.g.,
religious institutions, community gardens etc. Final compost could be used in community
gardens or to address local landscaping needs.

Waste Collection Methods

Data Management and Accessibility
Investigate and consider the use of new technology for more efficient container
management, such as live tracking of waste, recycling and/or organic waste container
volumes. A waste tracking technology, could be used with existing and new bins to
provide data and statistics for each multi-residential building (e.g. weight of materials
collected could be used to calculate diversion rates and potentially optimize collection
frequency thereby reducing the number of collection trips in a given week). The City
could require that the technology be used at properties that receive collection either
through the City (through municipal or private collection forces) or investigate this as a
future requirement for all multi-residential buildings in the City. Use of technology can
provide better reporting back to property owners and management to help manage the
set-out of bins and monitor waste generation.

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Multi-residential Policies and Enforcement

Multi-residential By-laws and Enforcement
The City continuously assesses how to more effectively enforce existing measures to
achieve its goals. However, where existing measures are inadequate, the City would
consider enacting new, legally permissible by-laws to mandate City-wide waste diversion
requirements (Blue Bin recycling and Green Bin organics service, etc.) to all multi-
residential buildings, regardless of service provider. The goal of the new mandatory
source separation or service provision by-laws would be to mandate diversion at the
building level (with building owners responsible) and/or through mandatory
requirements for haulers operating within the City and servicing multi-residential
buildings. Enactment of the Waste-Free Ontario Act and subsequent adoption of
regulations under the Act might affect implementation of this option. To be effective,
any new by-laws or mandatory service requirements would require proper and consistent
enforcement.

Updates to Current Multi-residential Development Standards

The City of Toronto would review, and revise where appropriate, the City’s multi-
residential development standards and introduce, where necessary, new requirements
such as common area drop-off depot requirements or flexible space requirements to
allow for the addition of future waste diversion programs. New standards could require
that space be set aside for drop-off depots, space for sharing libraries and modifications
to loading space in order to allow for collection by smaller vehicles.

The primary objectives and benefits of the recommended options for multi-residential
waste include:

• Diversion of approximately 43,000 additional tonnes/year by Year 10 of the Waste

Strategy, predominantly through policies and enforcement;
• Helps build sense of community and promotes sustainable behavior;
• Provides data to measure performance by multi-residential buildings;
• Provides information to help manage the set-out of bins; and,
• Greater enforcement, support and communication of existing waste diversion by-
laws.

The quantities of waste diverted through community composting are expected to be

minimal; however, the social value of this program is quite high and was supported
through public consultation. This option provides an opportunity to encourage
community composting programs, creates opportunities for community engagement and
education on the value of composting. Community composting also produces compost
that can be used in other community projects, such as community gardens, creating a
closed-loop system and further reinforcing the Zero Waste message.

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Similarly, it is expected that container management would divert limited quantities of

waste; however, it can provide building-specific data on waste management performance
and increase accessibility for on-demand billing information.It is also possible that this
could lead to behaviour change at the building management level. There is some
potential for possible reduction in collection costs (less trucks, fuel, labour) and traffic
congestion associated with a decrease in the amount of pick-up services required.

It is through planning, policies and enforcement for the multi-residential sector that the
greatest potential for diversion exists among these recommended options. These
options would introduce a level playing field whereby diversion services would be in place
for all multi-residential customers, regardless of the service provider, thereby ensuring
environmental sustainability.At present, multi-residential buildings of a certain size are
required to establish a source separation program (which does not include Green Bin
organics) by the Province; however, there is limited enforcement of these requirements.
City measures would ideally complement the existing or newlyproposed Provincial
regulations and could possibly encourage buildings to come back on to City collection
services.

It is important to note that in addition to the multi-residential specific options, the full
scope of reduction, reuse, recycling and recovery options presented above will also help
to reduce waste and increase recovery of resources from this sector. In particular, the
intent of the Mobile Drop-off Depots is to establish collection points in high density areas
(generally areas with a large proportion of multi-residential buildings), which will attract a
large customer base and improve diversion from those that may not have easy access to
a drop-off depot.

While all the promotion and education implementation tools will be useful in increasing
waste diversion from this sector, there are several that are particularly earmarked for
multi-residential customers, as presented in Table 9-1 (e.g. tools, resources and
incentives for 3Rs Ambassadors, targeted communications and education campaigns,
workshops and outreach and the establishment of a Multi-Residential Waste Diversion
Advisory Group).

9.2.4 Industrial, Commercial & Institutional Services

A substantial quantity of waste from the IC&I sector is managed by the private sector
outside of the City of Toronto system. Although the City is not obligated or mandated to
provide waste management services to the IC&I sector, a portion of the waste stream
generated by these sectors is managed by the City under certain circumstances, in
particular where IC&I buildings and residential customers are combined (e.g. Residential

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Unit Above Commercial (RUAC)) 22. Typically the locations receiving service are defined as
“small Commercial”, and:

• are generally less than four floors and less than 500 square metres of ground floor
space.
• must be eligible for and subscribe to the City’s Yellow Bag program.

The City faces a number of challenges and opportunities with respect to management of
waste from the IC&I sector including:

• providing the IC&I sector with options which promote greater diversion and are
flexible to accommodate changing waste streams and customer accessibility; and,
• identifying a mechanism to allow the City to influence greater waste diversion in
the IC&I sector for waste materials being generated within the City of Toronto,
but managed outside the City of Toronto waste management system.

It is anticipated that waste managed by the private sectorwill be addressed to some

extent with future Provincial regulations anticipated under the Waste-Free Ontario Act,
or possibly through various instruments being contemplated as part of the future
Provincial Strategy, which has committed to giving more attention to IC&I waste
diversion.

Based on these specific gaps, challenges and/or opportunitiesidentified, the following

options are recommended for the Waste Strategy.

Expand Yellow Bag program to More Businesses

The City currently provides IC&I waste collection service to small commercial
establishments primarily within the downtown core, and provides disposal options at City
transfer stations, as well as at the Green Lane Landfill. Eligible commercial
establishments pay for garbage collection and disposal through the Yellow Bag program,
and receive Green Bin organics and Blue Bin recycling collection at no additional cost. At
transfer station facilities and at the Green Lane Landfill, IC&I customers are charged a
tipping fee on a cost per tonne basis. In this option, the City would explore the feasibility
of expanding the number of commercial business that are eligible for City collection
through the Yellow Bag program (but would not include large businesses, institutions or
industries). Small businesses currently on the Yellow Bag program are required to
participate in Green Bin organics and Blue Bin recycling programs. All new Yellow Bag
customers would also be required to participate in these diversion programs.
22
A discussion of privately managed waste is included in Technical Memorandum No. 1 in order to provide
a complete picture of the waste currently managed within the City’s geographic boundaries and other
sources of waste which the City may either manage, or have some influence over in the future.

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City Explores Mandatory Approaches to IC&I Waste Diversion

The City would explore whether IC&I waste diversion can occur more effectively through
a combination of legally permissible City-wide mandatory recycling by-laws, other
incentives or disincentives, and/or joint enforcement efforts with the Province. It should
be noted that some IC&I establishments are required to source separate and divert waste
under current Provincial regulations 23 but new regulations are expected in the next few
years under the Waste-Free Ontario Act, or possibly through other instruments
contemplated in the Provincial Strategy.

The primary objectives and benefits of the IC&I recommendations include:

• Diversion of an estimated 7,500 additional tonnes/year by Year 10 of the Waste

Strategy (note that an estimated additional 4,200 tonnes of garbage would also
be collected);
• Ensures that IC&I diversion occurs for all IC&I accounts directly serviced by the
City;
• Increases IC&I waste diversion as the City has more control over IC&I accounts
that it services and can provide Blue Bin and Green Bin diversion at rates which
are affordable for small commercial businesses; and,
• Increased diversion from all City-serviced IC&I establishments.

23
Ontario Regulations 102/94, 103/94 and 104/94

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9.2.6 Construction, Renovation & Demolition Services

The City provides limited waste management services for Construction, Renovation &
Demolition (CRD) materials at City transfer stations, predominantly consisting of waste
from yard and single family home renovations. Typically large amounts of these waste
materials are managed by the private sector outside of the City of Toronto waste
management system.

Management of this waste stream presents a number of challenges;

• To date, since the City is not responsible for managing this material, there has
been little pressure placed on the CRD sector by the City to divert waste.
• Where the City has tried to implement new diversion programs (for materials
such as shingles, clean wood, etc.), there has been difficulty in finding appropriate
sustainable markets to make these services financially viable.
• Private sector initiatives to construct and operate CRD recycling facilities in the
Greater Toronto Area (GTA) have failed due to economicsas landfill disposal
remains the less-costly option.
• There is limited Provincial enforcement of CRD waste and little information on the
amount of CRD waste generated or diverted.
• The City has no authority over CRD waste managed by the private sector.

Based on these specific challenges identified, the following options are recommended for
the Waste Strategy 24.

Depots and Policies for Home Renovation Waste

The City would establish dedicated CRD drop-off bins at each transfer station for
materials 25 such as clean wood, drywall, concrete, plastic piping, corrugated cardboard,
metal items, ceramics and asphalt shingles. Mixed CRD waste would be accepted for a
higher fee than separated waste.

The City would investigate the feasibility of developing policies, by-laws and economic
incentives (e.g. differential tipping fees, CRD debris deposit, requirement of proof of
recycling to get occupancy permit, etc.) to encourage greater reuse and recycling of CRD
waste, and use of the drop-offs.

24
Note: the original option included a processing component intended to “close the loop” on the options to
divert CRD materials however; it was recommended that the City not include the establishment of a
processing facility in the Waste Strategy in light of recently failed private facilities, difficulty in finding
markets and uncertainty regarding the Waste-Free Ontario Act.
25
Note: Some of these materials are already accepted by the City at existing Transfer Station/Drop-off
Locations.

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Disposal Bans for Some CRD Materials

Toronto would consider phased-in disposal bans on CRD materials at City transfer
stations ensuring that well established and stable markets are available for the diverted
materials, in conjunction with the development of depots and policies.

The City would work with GTA municipalities and other key stakeholders to seek input on
materials to be banned and encourage similar bans. The bans could begin with a
determined contamination threshold (e.g. 10 %) and would target CRD wastes for which
stable recycling markets exist (clean wood waste, drywall, corrugated cardboard, and
asphalt shingles).

The City would work closely with CRD associations to gather input and help to educate
members about the bans. In addition, the City would liaise with Ministry of the
Environment and Climate Change (MOECC) to ensure that CRD bans are consistent with
those under consideration by the Province at this time, and which are likely to be
implemented Province wide over time through regulations under the Waste-Free Ontario
Act or the proposed Provincial Waste Strategy 26.

The primary objectives and benefits of the CRD recommendations include:

• Diversion of up to 15,000 tonnes/year of CRD materials from disposal by Year 10
of the Waste Strategy.
• Helps to generate local jobs.
• Allows the City to enhance waste diversion in the CRD sector for waste materials
managed by the private sector.
• Helps to promote, encourage and facilitate diversion of CRD waste where markets
are available.
• Provides an opportunity for the City to take a leadership role in developing
diversion policies and programs targeting CRD wastes generated by the CRD
sector.
• Provides disposal and diversion opportunities for small businesses and home
renovation waste.

26
The Province of Ontario has announced that it plans to implement material disposal bans over time,
through regulations under the proposed Waste-Free Ontario Act. The Draft Strategy which accompanies
the Act specifically identifies CRD materials as potential candidates for a Provincial ban. Should the City
implement CRD material bans, coordination with the Province would be required.

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9.3 Materials & Energy Recovery

Following the reduction, reuse and recycling of materials, there are opportunities to
recover valuable resources from the waste that remains. These resources could be in the
form of additional recyclables such as metals (mixed with other materials), organics or
energy resources including gas and heat.

A Landfill Gas/Biogas Utilization Study was completed for the City of Toronto in 2015. The
study investigated utilization options for landfill gas/biogas generated at Green Lane
Landfill, the expanded Dufferin Organics Processing Facility and the new Disco Road
Organics Processing Facility. Options examined as part of the study included using the gas
to produce electricity and/or heat, renewable natural gas, or other viable alternative
utilization options. The City is currently exploring opportunities to maximize the benefits
of gas utilization from these facilities by taking a triple bottom line approach. 27

The City wants to preserve landfill disposal capacity for as long as possible. Alternative
processing technologies could divert additional materials from disposal, particularly from
the multi-residential sector and extend the life of Green Lane Landfill.

The recommended option is the development of a Mixed Waste Processing Facility with
Organics Recovery.

Mixed Waste Processing Facility with Organics Recovery

This option involves consideration of the development of a Mixed Waste Processing
Facility with Organics Recovery which would receive a mixed waste stream (i.e. garbage)
for mechanical processing to recover recyclable materials followed by
composting/digestion of the remaining material. The mixed waste stream is anticipated
to come primarily from multi-residential sources. Mechanical processing technologies
are typically able to recover plastics and metals. The organic fraction of the waste stream
can be recovered and processed biologically to recover energy (e.g. biogas) and/or a
compost material. Depending on the quality of the recovered materials, up to 65% of the
material processed may be diverted from disposal. The amount of diversion achieved is
expected to decrease to 30% if the compost product produced does not meet quality
standards and cannot be marketed. This option is intended to support an increase in the
overall waste diversion achieved and to extend the life of Green Lane Landfill.

This recovery option has the greatest ability to divert a larger amount of waste, including
both Blue Bin recyclables and Green Bin organics, while providing flexibility for managing

27
For more information on waste recovery services provided by the City, please refer to Technical
Memorandum No. 1.

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Mixed Waste Processing Facility with Organics Recovery

a variable waste stream. Depending on the quality of materials recovered and availability
of markets, the residual waste stream could be considered for further processing as an
energy source (e.g. refuse derived fuel).

The primary objectives and benefits of a Mixed Waste Processing Facility with Organics
Recovery are:

• A full scale facility for the City is expected to process approximately 150,000
tonnes per year of mixed waste, depending on the success of the other 3Rs
options. Assuming 50% 28 of the material can be diverted as recyclables or
compost, an estimated 75,000 additional tonnes of waste may be diverted from
landfill disposal each year.
• That it produces a variety of materials, including those that can be used for
energy generation.
• That it is flexible to changes in waste quantities and composition.
• That mechanical processing can be coupled with a variety of technologies to
generate outputs such as refuse derived fuel (RDF), biogas and
compost/digestate. RDF and biogas can be used to generate energy.

Figure 9-1 provides a graphic showing how a Mixed Waste Processing Facility with
Organics Recovery would be integrated with the rest of the waste management system.

28
50% diversion is a conservative estimate.

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Figure 9-1: Integration of a Mixed Waste Processing Facility with Organics Recovery

The specific need and timing for a Mixed Waste Processing Facility with Organics
Recovery will be influenced by:

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• The success of the 3Rs options (reduce, reuse, recycle) recommended as part of
the Waste Strategy. Emphasis will be placed on the Waste Strategy
recommendations in the first five years which have the potential benefit of
increasing capture rates for Blue Bin recyclables and Green Bin organic materials
(in particular from multi-residential buildings); and,
• The impact of the Waste-Free Ontario Act and the proposed Draft Strategy for a
Waste-Free Ontario: Building the Circular Economy which includes several actions
that will overlap with elements of the City’s Waste Strategy. In particular, the
establishment of an organics ban at disposal facilities may impact the need for
the recommended recovery option.

As a result, it is recommended that during the first five years of implementation of the
Waste Strategy the City investigates testing of this option on its residual or garbage
streams. The purpose of testing would be to assess different pieces and types of
equipment for recovery of recyclables, along with the quality of the recovered materials.
This may include use of existing facilities that utilize comparable equipment and would
involve the Unit for Research, Innovation & a Circular Economy(see Section 9.5). In
addition, the recovered organic fractioncouldbe processed through existing anaerobic
digestion facilities to assess performance, diversion achieved and quality of the end
product. Testing on approximately 16,000 tonnes per year of residual waste is
anticipated to divert approximately 8,000 tonnes per year of material and support the
City’s diversion objectives in the first ten years of the Waste Strategy.

During this testing phase, planning for a business case would be initiated in early 2020
with the development and issuance of an RFP for professional consulting services to
develop the business case.The business case would be complete by early 2021 so that the
results of the business case can be used for the5-year update of the Waste Strategy.

Should the results of the business case indicate that a Mixed Waste Processing Facility
with Organics Recovery is feasible, in 2022, the City would develop and issue an RFP for a
consultant to assist with the conceptual design and specifications (including site(s) if
required) as presented in the business case. This would be followed by a vendor
selection process considering the preferred approach to design, build, operate, and long-
term maintenance as identified in the business case. It is anticipated that construction
would start after 2026.

Should the business case indicate a Mixed Waste Processing Facility with Organics
Recovery is not feasible (i.e. due to the impact of the Waste-Free Ontario Act or success
of other options), the 5-year update of the Waste Strategy will reassess the options
required to reach the City’s 70% diversion target and other Key Performance Indicators
(KPIs).

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9.4 ResidualWaste Disposal

The City owns and operates Green Lane Landfill (GLL) as its primary facility to manage
residual waste 29. For contingency purposes, the City also has contracts with a number of
private waste disposal facilities.

The recommendations in the Waste Strategy will help to extend the lifespan of GLL to
approximately 2040 30 by:

• continuing and expanding the focus on 3Rs;

• enhancing diversion programs supported with community partnerships,
comprehensive education and enforcement of by-laws; and,
• strategically using existing contracts to redirect some City of Toronto waste to
other approved landfills.

The options considered and evaluated included options for implementation in the near
term (i.e. over the next 10 years) and over a longer period of time. These options are
distinctly different and achieve residual disposal capacity either by extending the life of
GLL or by providing new future disposal capacity once GLL has reached its approved
capacity.

9.4.1 Near Term Residual Waste Options

The identified near term residual waste options recommended for implementation
include:

Review and Adjust Tipping Fees or Customer Base

This option considers adjusting tipping fees to discourage acceptance of waste from paid
private customers and/or adjust the types of customers permitted to use City of Toronto
waste facilities. An increase in tipping fees will discourage paid private customers
increasing landfill life but, potentially decreasing revenues for the City of Toronto.

Utilizing Disposal Capacity at Other Approved Disposal Sites

This option looks at securing residual waste disposal capacity from other approved
residual waste management facilities (e.g.,Landfills, Mixed Waste Processing Facilities
and/or Energy from Waste facilities) in order to preserve long-term landfill capacity at
GLL.

29
For more information on residual waste management provided by the City, please refer to Technical
Memorandum No. 1.
30
Estimates of the anticipated extended lifespan of GLL factored in updated settlement figures, projections
and settlement related to new composition of materials.

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Adjusting tipping fees and securing alternate disposal capacity are being recommended
primarily as a means to further extend the life of Green Lane Landfill. When the City
conducts its regular reviews and updates of the Waste Strategy, consideration should be
given at that time to the remaining capacity available at Green Lane Landfill, the timeline
to secure new capacity, and the potential to implement the other identified options to
provide additional residual waste disposal capacity in the future.With respect to securing
alternate disposal capacity, the City already has contracted capacity with three private
landfills (expiring in 2021) which can be utilized.A minimum or baseline quantity of waste
would continue to be disposed and landfilled at Green Lane Landfill to maintain the
efficient operation of the landfill. Any amount of waste above the baseline quantity could
be directed to another facility.This would extend landfill development, operations,
closure and post-closure care costs over a longer time period.

The primary objectives and benefits of these recommendations include:

• Estimated 100,000 additional tonnes redirected from Green Lane Landfill each
year over the 10 year period. 31,32
• Anticipated cost savings of approximately $10/tonne by using alternative private
sector capacity.
• Preserves long-term disposal capacity by increasing tipping fees for commercial or
private waste tonnes and City transfer stations.
• Provides secure access to required disposal capacity for the duration of the
contract.

9.4.2 Long Term Residual Waste Options

Four options were identified for consideration to provide the City with long term residual
waste disposal capacity:

• Expand Green Lane Landfill;

• Purchase of a New Landfill;
• SecureDisposal Capacity for Residual Management Following GLL Reaching its
Approved Disposal Capacity; and/or,
• Develop a New Greenfield Landfill.

One or more of these options may be implemented in the long-term, depending on

disposal requirements and GLL capacity.The completion of an Environmental Assessment
will be required for a landfill expansion and a greenfield landfill, assuming that any new
landfill under consideration for purchase or alternate disposal capacity has already
undergone the required approval and permitting processes. It is anticipated that,should

31
60,000 tonnes will be redirected in 2017, increasing to 100,000 tonnes thereafter.
32
Assuming the City can renegotiate similar contracts after 2021.

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the City consider a landfill expansion or a greenfield landfill, the City would undertake the
Environmental Assessment process which could take several years. The options of
purchasing a new landfill or securing alternate disposal capacity require that the disposal
capacity be developed by others (although some potential for partnerships may exist)
and at this time it is not known to what extent these options will be available to the City
in the future.

An assessment of the remaining capacity available at Green Lane Landfill will be part of
the five year review for the Waste Strategy. Should it be determined that planning for
additional disposal capacity is required, the four long-term residual waste disposal
capacity options will be reviewed.

9.5 Overall System Recommendation –Unit for Research, Innovation & a

Circular Economy
Through the consultation process, the concept of a Unit for Research, Innovation & a
Circular Economy within SWMS was identified. It was strongly supported that this group
could act as a catalyst to advance new, innovative ideas promoting resource conservation
andsupport the growth of the circular economy. It could also potentially be expanded to
include other environmental sustainability objectives with water, and energy
stakeholders. The Unit for Research, Innovation & a Circular Economycould help
toresearch, develop and promote new markets for recyclable materials and could include
an Economic Development and Green Sector Market Acceleration Program to support
innovation and commercialization by local green companies. TheUnit for Research,
Innovation & a Circular Economywould also explore opportunities for social innovation,
work to develop partnerships and could also facilitate training.

The primary objectives and benefits of thisrecommendationinclude:

• Potential diversion of up to 8,000 tonnes/year by Year 10 through testing of at

least 16,000 tonnes/year of residual waste through mixed waste processing
technologies (see Section 9.3);
• Potential diversion of up to 8,000 tonnes/year by Year 10 through testing of
approaches to divert residue from Green Bin and Blue Bin processing facilities
from disposal. This would include testing of at least 16,000 tonnes of processing
residues throughnew technologies to recover and clean materials, and finding
stable end markets for these materials;
• Potential creation of green jobs and circular economy development opportunities;
• Offers a central unit to promote community partnerships and collaboration,
circular economy, promotion and education;
• Support innovation and commercialization by local green companies and
organizations through partnering on applied research and proof of concept pilots;
and,

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• Research and potential development of new waste diversion technologies,

environmental training and education programs.

It is recommended that this option be further investigated and, where appropriate,

consider how other recommended options or implementation tools could be addressed
through the development of this Unit for Research, Innovation & a Circular Economysuch
as a community partnership unit, various testing or pilot programs associated with
recommended options, and other research and development type activities.

9.6 Operational Considerations

The development of the Waste Strategy included a number of considerations of issues
not related to the 5Rs, but more operational in nature, relating to collection, transfer,
processing and disposal. These operational considerations are presented in the following
sections.

9.6.1 Alternative Service Delivery Approaches

As the implementation of each of the recommended options is undertaken, other
implementation tools such as coordinated and/or alternative contracts may be
considered to further enhance the potential success of each recommendation. Other
options include partnerships to procure services (e.g. coordinating contracts with other
City Divisions) to recognize greater economies of scale or modifications to specifications,
such as collection on only one side of the street, where appropriate. These types of
options are best considered when preparing contract documents for new collection
services, rather than trying to implement them during the middle of an ongoing
contract.t may be considered by the City for future contracts is
coordinated or alternative contracts.
Coordinated and/or Alternative Contracts
The City of Toronto typically procures specific solid waste management services on an
individual operation function basis (i.e. collection, transfer, processing and disposal are
typically all contracted on their own). This option involves consideration of procuring
waste management services with alternative contract terms in order to facilitate more
efficient and cost effective service delivery from private sector contractors. This may
include combining services under one contract which have historically been treated
separately.Alternative contract terms may include a longer contract period to provide the
private sector with additional flexibility for developing or providing infrastructure
requiring significant investment of capital and financing.

One Side of the Street Collection

The Waste Strategy considered collection on only one side of the street through its
addition to the Coordinated and/or Alternative Contracts option. Further analysis of one-

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Coordinated and/or Alternative Contracts

side of the street collection will be required. Based on some initial research completed as
part of the development of the Waste Strategy in consultation with Legal Services and
Equity, Diversity & Human Rights, preliminary considerations were highlighted:
• To mandate one-side of the street collection in designated parts of the City,
Council would need to adopt a by-law requiring residents in those areas to cross
the roadway with their bins to receive waste collection services. Moreover, to
avoid conflicting with the Ontario Highway Traffic Act and be consistent with
Chapter 950 of the Toronto Municipal Code, the by-law would likely need to make
clear that such roadway crossing with the bins occur only at street corners and/or
marked pedestrian crossovers. Residents may choose not to cross the road at
crossings or corners, thereby raising substantial pedestrian and vehicular safety
concerns.
• Such waste collection service changes may cause significant equity impacts and
accessibility concerns for vulnerable communities, such as those with mobility,
cognitive or vision disabilities and seniors. These impacts are further exemplified
by requesting residents to wheel their bins (at least two waste streams bins are
collected weekly) and only cross the street at a marked crossover or corner.
• Seasonal challenges, especially during the winter months, could make it quite
challenging for residents to navigate their bins to the new collection location.
This is of particular concern in snow and ice conditions where set-out space can
be very limited.
• Having residents move bins up, down, and across streets and/or leave bins in
front of other properties for longer than permitted can lead to increased street
and sidewalk litter, as well as stranded, lost, and stolen bins.

9.6.2 Commissioners Street Transfer Station

The City owns and operates seven transfer stations (see Figure 5-3: Map of Waste
Management Facilities and Collection Districtsfor locations of these facilities within the
City), which accept waste from collection vehicles for transfer to other facilities and serve
as drop-off depots for additional types of waste from residents and small commercial
haulers. In general, the City’s transfer stations are mainly used to transfer Blue Bin
recycling, Green Bin organics, yard waste, and garbage.

Commissioners Street Transfer Station is located within an area of the waterfront

scheduled for redevelopment (i.e. the Port Lands Acceleration Initiative). The City is
facing a challenge regarding transfer capacity in the downtown core in that the current
transfer station land use does not fit within the future planning framework.This transfer
station provides the only City-owned downtown option for residents to drop off waste
materials (including household hazardous waste). It is also the closest transfer station for
City collection vehicles and City-contracted service providers to unload waste collected

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from downtown routes. The Commissioners Street Transfer Station is an essential

component of the City’s system required to efficiently deliver waste management
services to the downtown core. A facility located at or in close proximity to the current
facility will be required in the future in order to continue service provision in this growing
part of the City.

Based on these specific challenges, the recommended option for transfer capacity is to
relocate Commissioners Street Transfer Stationwithin the Port Lands Area.

Relocation of Commissioners Transfer Station within the Port Lands Area

Construct and operate a new waste transfer facility at a new site located within the Port
Lands area. Depending on the timeframe for redevelopment occurring within the Port
Lands, relocation could occur within the short term. It is anticipated that waste
generation will continue to increase in the downtown core as a result of continued
development and intensification, supporting the ongoing need for waste transfer
capabilities in the area.

The primary objectives and benefits of the recommended Commissioners Street transfer
station option include:

• Provides for the continuation of the City’s existing waste transfer station service
within the Port Lands area.
• Continues existing level of service provided by the City.
• Maintains potential user's familiarity with location and services available.
• Provides a convenient option for waste drop-off from downtown customer base.
• Ensures transfer station is compatible with local land uses and traffic patterns.
• Supports and services continuing development growth in the downtown area as
new multi-residential buildings are built.
• Provides potential to incorporate designs for an enhanced drop-off depot for
residents.
• Provides access for a full range of divertible and residual garbage management
options for waste collection vehicles and potentially small commercial haulers and
residential customers.

9.6.3 Future Processing Considerations

The City provides recycling and processing services for the materials that it collects
through either its own facilities or contracts with private sector facilities including:

• Blue Bin Recycling

• Green BinOrganics
• Yard Waste

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• Oversized Items and Metals

• Construction, Renovation and Demolition Waste
• Electronics
• Used Tires
• Household Hazardous Waste

The following sections discuss recycling and processing recommendations for Blue Bin
recycling and Green Binorganics for the future based on existing contracts and future
quantities of waste requiring management.It is not anticipated that the
recommendations in the Waste Strategy would significantly impact the quantities of the
other materials listed above and that the City would continue to utilize private sector
processing facilities as required.

9.6.3.1 Blue Bin Recycling Processing

Blue Bin recycling is either transported directly to the contracted Material Recovery
Facility (MRF)or hauled and consolidated at the closest City transfer station. Historically,
Blue Bin recycling wastransported to one of two MRFs in the City; to either the City’s
now-closed MRF located at the Dufferin Waste Management Facility or to a contracted
MRF located on Arrow Road, which is owned and operated by a private company.
Currently, all the City’s Blue Bin recycling (approximately 260,000 tonnes) is processed by
a private company through two contracts.

The following Figure 9-2 provides an overview of how these contracts compare with the
long term projected needs for Blue Bin recycling processing capacity, considering the
impact of the tonnes of Blue Bin recycling diverted through the Waste Strategy (assumes
a 1% growth in Blue Bin recycling generated after 2026).

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Figure 9-2: Blue Bin Recycling Projections and Contract Alignment

As is evident from the figure, the City currently has sufficient capacity in its current Blue
Bin recycling processing contracts to manage the projected quantities up to 2023. Blue
Bin recycling processing capacity requirements will need to be reassessed upon each five
year review of the Waste Strategy to monitor the impact of the options implementation.

These contracts align well with the anticipated timelines for theWaste-Free Ontario
Actlegislation and proposed regulations, which will likely change how Blue Bin recycling
materials are managed in the future in Ontario.

It is recommended that the City not make any investments with respect to long-term
Blue Bin recyclingprocessing capacity until the impact of implementing the
recommended options in the Waste Strategyand specific details of future regulations
(particularly the anticipated Blue Box regulation) under the Waste-Free Ontario
Actlegislation are better understood and the future role of the City is more clearly
defined.

9.6.3.2 Green Bin Organics Processing

As part of implementation of the Green Bin organics program, the City initiated the
development of a facility to process the Green Bin organics collected from residential and
non-residential sources. The first facility was located at the Dufferin Waste Management
Facility, utilizing anaerobic digestion technology. This technology was chosen for its
ability to process a complex organics stream,to allow for the use of plastic bags as liners
in order to make the program as convenient as possible for residents and to capture
materials such as diapers and sanitary waste.

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As the Green Bin organics program expanded, additional processing capacity was
required. In May 2007, Council authorized the design and development of two organic
processing facilities in Toronto. This authorization included a new facility at the Disco
Road Waste Management Facility (operational in 2014) and an expanded facility at the
Dufferin Waste Management Facility. Once the expanded Dufferin Anaerobic Digestion
Facility is operating (expansion is underway and anticipated to be complete in 2018),
these two facilities will have a combined processing capacity of approximately 130,000
tonnes per year.

In addition to the City’s own organics processing capacity, it has also secured several
processing contracts with private sector operators. Currently, the City has contracts with
three private sector processing facilities for a total of 85,000 tonnes of Green Bin
materials. These contracts are in place to provide contingency capacity and processing
capacity while the Dufferin Anaerobic Digestion Facility is being expanded. The following
Figure 9-3provides an overview of how these contracts compare with the long-term
projected need for organics processing capacityand when a third anaerobic digestion
facility may be considered, considering the impact of the changes to the quantities of
Green Bin organics from the Waste Strategy. This assumes all extensions for existing
contracts are utilized (use of extensions would extend contracts to 2020) and that tonnes
of Green Bin organics increase at 1% per annum after 2026. Organics processing
capacity requirements will need to be reassessed upon each 5 year review of the Waste
Strategy to monitor the impact of the options implementation.

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Figure 9-3: Green Bin Organics Processing Projections and Contract Alignment*
Anticipated Timing for Construction of 3rd
Anaerobic Digestion Facility
Additional Capacity Required

*Includes planned food waste reduction estimate as identified in Section 9.1..

Based on the current facilities and private sector contracts, the City will not have
sufficient organics processing capacity to manage its projected needs as of 2020.

There are currently a number of variables with respect to Green Bin organics processing
requirements, including:

• Given the quantities of organics requiring management in 2020 and forecasted

out into the future assuming status quo, a third Anaerobic Digestion facility of
similar size to the new Disco Organics Processing Facility (75,000 tonnes per year)
may not be required for another 10-15 years as the City will not have sufficient
quantities of organics until then to support this investment.
• A Mixed Waste Processing Facility with Organics Recovery should take into
account the potential need for long-term organics processing capacity for
recovered organic materials which could include investigating opportunities to co-
manage similar organic waste streams.
• The City is also currentlyrolling out a larger Green Bin to single family residential
customers that could also impact the quantities of material requiring
management. Should this program modification result in additional tonnes

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requiring management, additional processing capacity may be required in the

system earlier than currently projected.
• As part of the Provincial Strategy required under the Waste-Free Ontario Act, the
Province of Ontario is considering a ban on organics disposal in the future. The
implementation of this type of ban could have significant implications on the
demand for Green Bin organics processing capacity in the Province.
• As part of the Waste Strategy, a recommendation has been proposed to
implement a food waste reduction strategy (see Section 9.1above). The
successful implementation of this strategy will reduce the amount of Green Bin
organics requiring management and therefore should reduce the need for
additional organics processing capacity.

It is recommended that the City monitor the success of the Food Waste Reduction
Strategyidentified for early implementation in this Waste Strategy to determine its
potential impact on long-term organics processing capacity requirements. Additionally,
the City shouldclosely monitor the discussions on a potential organics ban in Ontario and
the potential implications to the City as it relates to the ability to secure long-term private
sector organics processing capacity and the need and/or opportunity to construct new
organics processing capacity for City managed Green Bin organic materials.

9.6.3.3 Future of Dufferin Material Recovery Facility

The City owns the now closed 33Material Recovery Facility (MRF) at the Dufferin Waste
Management Facilitywhich was identified as a potential candidate for several alternative
uses depending on the recommended options in the Waste Strategy. It could be
considered for a number of uses (potentially processing) as part of a future facility siting
process, as required.

9.6.4 Future Residual Waste Considerations

Two options were originally identified as part of the Residual Waste Disposal options:

• Landfill Mining and Reclamation; and,

• Landfill Operation Continuous Improvement and Best Practices.

These options are more operational in nature and will not provide the required residual
waste disposal capacity over the planning period. They are, andcan be considered for the
future as ongoing enhancements to existing operations.

9.7 Implementation Tools

A range of implementation tools have been identified to support the promotion and
education for new programs and services and in the financing and funding of new

33
As of November 2014.

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infrastructure and services to be implemented as part of this Waste Strategy. These tools
are further described in the following sections.

9.7.1 Promotion, Education and Enforcement

The purpose of solid waste outreach, education and enforcement is to effectively
communicate to the City’s customers how to participate in the City’s waste management
programs and to encourage reduction, reuse and recycling of waste. The following
sections provide an overview of some of the tools the City may use for promotion of
programs,education of customers and enforcement of current and future by-laws.

9.7.1.1 Promotion & Education

The City offers comprehensive promotion and educational tools (some of which are
engagement and outreach activities) and resources to its customers, including:

• Videos • 3Rs Ambassador Volunteers

• Waste Wizard (online waste sorting • Community Environment Day
tool) Events
• Collection calendars • Targeted campaigns and
• Live Green Toronto advertisements
• 311 • Multi-residential outreach

As part of its ongoing promotion and education efforts, the City maintains a
comprehensive website (toronto.ca/recycle) which contains a variety of information. In
addition to the online resources, the City also makes available printed resources such as
calendars, posters, bin stickers, and sorting guides which can be printed from the
website, or hard copies ordered through 311.

The City will continue to use the existing promotion and education tools and may utilize a
number of tools presented in Table 9-1 to enhance existing programs and support the
Waste Strategy.

Table 9-1:Promotion and Education Implementation Tools

Implementation Summary
Tool
Interactive Online Enhancements to the Waste Wizard tool could be undertaken to
Waste develop a new online and/or mobile application that can provide
Management various additional SWMS information, such as sorting information,
Tool collection schedules, changes/updates to the waste management
program and opportunities for reuse, recycling and safe disposal.
For example, the tool could allow a postal code to be entered (for
an internet-based website) or could be GPS-enabled to find the
closest locations to manage the waste in question and could also

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Implementation Summary
Tool
provide collection scheduling information for single family and
other customers. This tool could help encourage participation as
well as help to clarify Toronto’s waste management system and
have the ability to provide information in different languages.
Environmental An online tool (e.g., mobile application, web-based calculator) could
Impacts be developed to provide consumer information on the lifetime
Calculator environmental impacts (otherwise referred to as life cycle analysis)
for different products (e.g. plastic versus wooden stir sticks,
disposable versus cloth diapers) to help consumers make
sustainable decisions and promote waste reduction and behaviour
change. For example, to estimate the environmental impacts of
disposable diapers, the tool would consider the process involved to
extract the materials needed to manufacture the diapers (e.g.,
cotton, plastic) and the process to manage the materials after use,
including the energy and water requirements and emissions to air,
water and land. This tool could help encourage participation as well
as help to clarify the complexities associated with Toronto’s waste
management system. The tool could be made available online and
as a mobile phone application.
Expand Social Expanding social media channels to could be used to inform people
Media Presence of program changes, provide reduce and reuse tips/videos, clarify
system complexities, promote 3Rs (Reduce, Reuse, Recycle)
opportunities within the City and through partnerships with local
organizations and support behavior change. There is opportunity to
address cultural diversity through translating and tailoring
messages. Dedicated additional resources can be used to increase
the City’s online presence through social media and to increase
two-way communication. Opportunities include adding/expanding
use of social media tools for SWMS purposes such as Facebook,
Pinterest, YouTube, Twitter, Instagram, Mind Mixer and the City’s
website (and other tools as they develop over the planning period).
It is recommended a social media strategy be developed that
considers the various approaches to increasing the City’s presence
on social media sites.

Provide Creation of an Ambassador forum on the website to facilitate

Additional Tools connections with Ambassadors in other neighbourhoods, form
and/or Resources community hubs to collaborate on outreach initiatives, and provide
to the 3Rs a forum for Ambassadors to share ideas, resources and initiatives.
Ambassadors and Resources for Ambassador forums could include:

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Implementation Summary
Tool
Other Volunteer • presentation packages for multi-residential building annual
Programs general meetings and other building events;
• discussion tool-kits on key multi-residential challenges;
• opportunities for Ambassadors to share their ideas and
initiatives including materials developed;
• a map of multi-residential buildings so that Ambassadors
could collaborate on initiatives;
• discussion groups to brainstorm or help plan waste
initiatives with the ability to translate to different languages;
and,
• poster/notice templates for building waste initiatives
developed by Ambassadors.
Incentivizing 3Rs Consideration of the introduction of incentives for
Ambassadors and Ambassadors/volunteers to expand the program's reach in multi-
Other Volunteer residential buildings. Incentives could include a small honorarium,
Programs monthly draws for prizes, recognition awards for outstanding or
long-term performance, or passes to City of Toronto events, etc.
The City should continue to promote volunteer opportunities
through local high schools for students looking to fulfill community
service hours and create/promote opportunities during holidays,
Professional Activity (PA) days, March Break and summer vacation.
Targeted Group The City of Toronto has a diverse population and it is challenging to
Communications reach customers, particularly for those whom English is not their
first language and those that have recently become City residents.
This new tactic would focus on new and alternative communications
to ensure that more Toronto residents and stakeholders are
reached. This may include research tactics such as focus groups to
test messages, concepts and information delivery mechanisms.
Multi-residential Coordination of on-site workshops/seminars/outreach or waste
– Workshops and reduction challenges to buildings that are currently not receiving
Other Outreach City collection services to encourage participation in diversion
for Buildings Not programs, improve program participation, and reduce
Receiving City contamination.
Waste Collection
Services
Create a Strengthening and building partnerships with various non-profit and
Community for-profit organizations in the City as well as other partnerships
Partnership Unit related to waste reduction will support further waste reduction and
Within Solid diversion. This initiative would be managed by a specially

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Implementation Summary
Tool
Waste established Community Partnership group within SWMS or with
Management partnership/collaboration with other City Divisions where
Services (SWMS) applicable. The group would develop arrangements or agreements
Division with external agencies or organizations, monitor and track annual
performance, and evaluate partnerships on an on-going basis to
work together to encourage and promote waste diversion.
Targeted Development of more audience specific and targeted outreach and
Outreach and education campaigns designed to encourage people to think about
Education the impact of their purchasing and consumption choices. As
Campaign to demographics and lifestyles change, more convenience items are
Reduce Waste being developed that contribute to waste generation. Develop
targeted outreach and education campaigns to promote reduction
of waste.
City to Assume The City assumes a role of a facilitator/coordinator to help the
Role of Facilitator Industrial, Commercial and Institutional (IC&I) sector (including
to Encourage those not receiving City service) implement waste reduction, reuse,
Industrial, and recycling activities. City would play a role of educator and
Commercial and outreach coordinator to help businesses understand the benefits of
Institutional waste diversion and help them to facilitate adoption of waste
Waste Diversion diversion activities.

Develop an The City of Toronto develops an advocacy strategy to support the

Advocacy implementation of the Waste Strategy and/or involvement in
Strategy various committees, organizations and processes which lead to
regulatory/legislative change or consumer products or other
changes which benefit the City of Toronto solid waste management
system. This requires Toronto’s engagement at both the provincial
level (e.g. where most waste legislation is enacted) and at the
federal level – especially engaging with bodies such as the Canadian
Council of Ministers of the Environment (CCME) where provinces
work in collaboration with federal government to advance issues
like extended producer responsibility (EPR).

Establish Advisory
Groups to Inform Two advisory groups are recommended for implementation;
On-going Waste
Planning/Implem • A Circular Economy Waste Reduction Advisory Group will be
entation Process established to provide input into ongoing waste reduction
planning processes, specifically those identified in the Waste

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Implementation Summary
Tool
Strategy. This Advisory Group will support the City’s efforts
to reduce waste and support innovation, with a specific
focus on the development and implementation of efforts
that support a circular economy. Invitations to participate
will first be extended to those organizations that currently
comprise the Waste Strategy’s Stakeholder Advisory Group
and may be extended to other organizations.

• A Multi-residentialWaste Diversion Advisory Group will be

established to provide advice and feedback on the Waste
Strategy's multi-residential related options to increase
diversion from this sector. Membership will likely consist of
multi-residential industry, community not-for-profit groups
and property management representatives.

As the Waste Strategy recommendations are implemented,promotion and education

tools will be used to support each recommendation.

9.7.1.2 Controls, Bans and Enforcement

The City has enacted a number of by-laws that pertain to solid waste matters, namely
Toronto Municipal Code Chapters 548, 604, 629, 841, 844, and 846, along with Chapters
441 and 442 that address solid waste rates and fees. City enforcement of these by-laws
can provide alternative remedies where outreach, education and engagement have not
sufficiently achieved the desired performance levels.

It is recommended that the City consider extending mandatory source separation

requirements to include all multi-residential buildings as part of the Waste Strategy.
Higher diversion performance by the multi-residential sector and enforcement of new by-
laws, as well as additional enforcement of existing mandatory source separation by-laws
at existing City-serviced buildings, who are supposed to be diverting both Blue Bin
recycling and Green Bin organics materials, are key to the success of the Waste Strategy.

The City’s Municipal Licensing & Standards Division (ML&S) collaborates with Solid Waste
Management Services (SWMS) to resolve by-law infractions where required. To a large
extent, investigations into by-law infractions are complaint driven (especially for
residential issues). However, ML&S may discover infractions by the commercial sector
while out on duty (e.g. illegal dumping).Violations of the various City by-laws that pertain
to solid waste matters can lead to prosecution by the City, pursuant to the Ontario
Provincial Offenses Act for set fines or other outcomes.

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The Province is currently reviewing 3Rs Provincial regulations (O. Regs.

102/94,103/94,104/94) and new regulations are anticipated with the Waste-Free Ontario
Act within the first five years of the Waste Strategy. Joint Provincial/municipal
enforcement of Provincial waste regulations should be considered as part of this option.

There are a number of challenges facing the City currently and in the future with respect
to controls, bans and enforcement. These include:

• Regulatory, Control and Role/Responsibility Challenges: having a system where

some waste management responsibilities are outside of the City’s control and
therefore subject to uncertainty and risk with respect to external parties making
changes that can impact the City’s system 34.
• Impacts of Intensification:the impacts of intensification (i.e. increased urban
density) and the changes required to manage additional waste generated by
multi-residential buildings with typically lower waste diversion performance
records and in areas that are more difficult to collect using traditional methods.
• Waste Reduction and Reuse:how to better promote and facilitate the reduction
and reuse of waste materials to prevent waste from entering the system and
requiring management through collection, processing and/or disposal.
• Enhanced Enforcement Opportunities: to maximize the effective and efficient use
of current programs, services and facilities. To date, significant effort and success
has been realized through promotion and education; however, there are still
areas of the system where opportunity exists toachievethe desired level of
program use, which may require strategic engagement of enforcement measures.

The City has in place services that allow residents, small businesses and organizations to
easily participate in convenient waste diversion programs. Recent waste audit studies
indicate that there is an opportunity to improve participation in diversion programs as a
significant amount of divertible materials are still found in the garbage stream. As
previously mentioned in Section 9.7.1 (P&E), the Waste Strategy recommends increasing
funding for waste diversion communication, promotion and education. To support and
complement this recommendation, greater enforcement of existing by-laws is also being
recommended in parallel. This includes having additional dedicated resources to oversee
and strategically manage enforcement efforts as well as increasing the number of by-law
staffing resources to more comprehensively support existing and new Waste Strategy
recommendations.

34
The City has no authority over IC&I, CRD and Multi-residential waste managed by the private sector. This
waste is governed by the Provincial 3Rs regulations; however, there is limited enforcement of these
regulations. The City provides waste management services to some small commercial businesses and
Multi-residential buildings, however, is not required to do so.

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SWMS will work collaboratively with ML&S to develop an approach to educating

customers and enforcing compliance of waste by-laws. This will include development of a
divisional service level agreement that will include annual reporting of activities
undertaken by ML&S and the outcome of their enforcement activities as well as an
assessment of appropriate enforcement related staffing levels in general. It will also
include development of multi-year enforcement plans. The plans will be structured to
address improvement of participation in existing diversion programs and services as well
as any new programs being introduced through the Waste Strategy. An inter-divisional
working group will also be established to discuss target issues and develop an annual
enforcement and communications plan to address the areas of focus.

City Explores Mechanisms to Introduce City-wide Controls over Waste Management

The City explores whether and how greater waste reduction and diversion might result
from undertaking one or more of the following City-wide controls, where legally
permissible: banning certain packaging and other material; mandating recycling
separation and processing of recyclables; imposing levies; implementing disposal bans
(e.g. construction, renovation and demolition materials); developing local Extended
Producer Responsibility measures; improving enforcement of existing City Waste by-laws;
and coordinating with the Province on joint enforcement of Provincial regulations.

These instruments could apply to both residential and non-residential (e.g. IC&I and CRD)
waste and would be designed to reduce the amount of waste disposed and increase
diversion. Residential (single family and multi-residential) households already have
comprehensive service but the policy would target the remaining waste stream and could
lead to additional diversion of materials to fulfill policies such as organics disposal bans.

The primary objectives and benefits of these recommendations include:

• Diversion of an estimated 49,000 additional tonnes/year from landfill by Year 10

of the Waste Strategy, through enforcement of existing by-law requirements at
multi-residential buildings currently serviced by the City; and,
• Proper enforcement of existing by-laws and new measures which may achieve a
level playing field for all players so that those who comply voluntarily are not
disadvantaged.

9.7.2 System Financing and Funding

As the implementation of the recommendations is undertaken, the financing tools
presented in Table 9-2 may be considered to fund implementation. As part of the
development of the Waste Strategy, a long term sustainable rate model was developed
to maintain the current system and fund new projects brought forward as a result of the

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Waste Strategy. A more fulsome discussion of a fully independent utility is provided in

Section 11.2.

Table 9-2:System Financing and Funding Implementation Tools

Implementation
Summary
Tool
Fully This option involves recommendations for elimination of the Solid
Independent Waste Rebate which wouldsupport the City’s priority to achieve long-
Utility term sustainability of the Waste Strategy and to move towards a full
user pay utilitythat is funded through volume based user fees. This
option would involve transitioning to a new, long term, sustainable
rate model. This change would allow the City’s Solid Waste
Management Services (SWMS) Division to evolve into a utility that is
fully self-financed through flat or variable fees charged to its
customer base and would allow for cost recovery of public service
goods (such as litter collection), to be funded from the Property Tax
Base.
Public-Private Public-PrivatePartnerships(P3s) are a long-term performance-based
Partnerships (P3) approach for procuring public infrastructure where the private sector
for Major Capital assumes a share of the responsibility in terms of risk and financing for
Works the delivery and the performance of the infrastructure, from design
and structural planning, to long-term maintenance. Under this
option, the City could consider entering into a long-term agreement
with a private sector partner to design, construct, finance, operate
and maintain a major capital project that would be part of the Waste
Strategy. The City would define the scope of the capital project and
run a competitive procurement process to select a private sector
consortium that provides the best value to the City.
Debt Financing This option involves the City raising capital by borrowing to finance
capital investments.
Increase Solid Increasing the City’s SWMS customer base in the multi-
Waste residential/condominium and IC&I sectors beyond current service
Management levels has the potential to generate additional fee revenues and
Services potentially realize some economies of scale. In addition, providing
Customer Base collection service to a broader customer base would allow the City to
influence waste diversion behaviour by requiring participation in Blue
Bin recycling and Green Bin organics programs as a condition of
receiving City collection service.

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Implementation
Summary
Tool
Allocating Costs The City would describe the separate fees for each material type
for Waste collected (garbage, Blue Bin recycling, Green Bin organics, yard waste
Management to etc.) rather than charging one combined fee placed on garbage.
Applicable Waste Currently this includes provision of collection services for waste and
Streams divertible materials. The drawback of the current fee approach is
that the multi-residential garbage fee is expensive compared to
garbage fees charged by private sector haulers for pick-up of garbage
only, because the City fee includes the costs of Blue Bin recycling,
Green Bin organics and other support and education services in the
garbage rate charged.
Alternative The City would identify and implement additional revenue generating
Revenue opportunities through options such as utilizing biogas produced by
Generation City of Toronto facilities (Anaerobic Digestion and landfills) as a
Opportunities source of energy, selling processing capacity at future facilities such
as a Mixed Waste Processing Facility with Organics Recovery and
other potential revenue sources that may be introduced or present in
the industry in the future.
Performance Provide performance based incentives (e.g. financial) to management
Based Incentives of commercial and multi-residential buildings (generally the building
supervisor, owner or management staff) to encourage behaviour that
will result in an increase of their diversion rates.

9.8 Summary of Recommended Options and Implications

One of the primary goals of the development of this Waste Strategy was to identify the
means to reduce the amount of waste being sent to landfill in the future. This can be
accomplished by reducing the amount of waste being generated, reusing materials, and
increasing diversion of Blue Bin recycling, Green Bin organics and other materials.

Table 9-3 provides a summary of the options being recommended for implementation in
the future and highlights those that specifically contribute to lower amounts of waste to
landfill over the next 10 years. These options essentially comprise the 3Rs plan.

Table 9-3:Summary of Recommended Options for 3Rs Plan

Recommended Options Contributes

to Waste
Diversion
Reduction & Reuse

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Recommended Options Contributes

to Waste
Diversion
• Food Waste Reduction Strategy
• Textile Collection and Reuse Strategy
• Sharing Library
• Support Reuse Events
• Explore Opportunities for Waste Exchange

Recycling
Drop-off Depots • Develop a Mobile Drop-off Service
• Develop a Network of Permanent
Neighbourhood Depots

Multi-residential • Mandatory Multi-residential by-law

Services • Updates to Current Multi-residential
Development Standards
• Community/Mid-Scale Composting
• Container Management

Industrial, • Expand Yellow Bag program to More

Commercial & Businesses
Institutional • City Explores Mandatory Approaches to
IC&I Waste Diversion

Construction, • Depots and Policies for Home Renovation

Renovation & Waste
Demolition • Disposal Bans for Some CRD Materials

Incentive Based • Reverse Vending Machines

Options

Recovery
Materials & • Mixed Waste Processing Facility with
Energy Recovery Organics Recovery Development

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Recommended Options Contributes

to Waste
Diversion
Residual
Residual Waste Near Term Recommendations
Disposal • Review and Adjust Tipping Fees or
Customer Base
• Utilizing Disposal Capacity at Other Approved
Disposal Sites
Long Term Recommendations
• A range of options have been provided
with respect to the appropriate next steps
and timing associated with the next steps
to address these future considerations.

Overall System Recommendation

Unit for • Unit for Research, Innovation & a Circular
Research, Economy
Innovation & a
Circular Economy
Operational Considerations
• A range of options have been provided
Recycling & with respect to the appropriate next steps
Processing and timing associated with the next steps
to address these future considerations.
Commissioners • Relocation of Commissioners Transfer
Transfer Station Station within the Port Lands Area
Implementation Tools
• A range of implementation tools have been
identified to support the promotion and
education of new programs and services to
Promotion,
be implemented as part of this Waste
Education and
Strategy.
Enforcement
• City Explores Mechanisms to Introduce
City-wide Controls over Waste
Management
• A range of implementation tools have been
identified to support in the financing and
System Financing
funding of new infrastructure and services
and Funding
to be implemented as part of this Waste
Strategy.

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It has been estimated that approximately 150,000 additional tonnes/year 35 of residential

waste will need to be diverted by Year 10 of the Waste Strategy to achieve a 70%
residential diversion rate(See Section 12 for further discussion on Goals and Targets).
These estimates have been developed based on recent waste audit information supplied
by the City for single family and multi-residential households and reflect reduction or
capture of materials in the garbage bin, Green Bin and Blue Bins. Achieving diversion
ofthese estimated tonnes relies heavily on participation, promotion and education, and
enforcement to achieve this goal.

Table 9-4 presents a summary of the tonnes diverted through the recommended options.
The implementation timeline has been superimposed on the tonnages to provide context
for the diversion estimates. It should be noted that diversion estimates are purposely
conservative in the first five years until the impact of the Waste-Free Ontario Act is
known. After the 5-year review of the Waste Strategy and as the implications of the
Waste-Free Ontario Act are more evident, the diversion estimates increaseat a greater
rate in order to achieve the targeted 70% residential diversion rateby Year 10 (i.e. 2026)
of the Waste Strategy. These diversion estimates represent aggressive targets and it will
be necessary to allocate sufficient resources (budget and staffing) to realize these
tonnages, supported by active participation and engagement by the community.

35
Based on 2014 Datacall information provided by the City.

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Table 9-4: Summary of Recommended Options (tonnes)

Option 2017 2018 2019 2020 2021 2022 2023 2024 2025 2026
Residential Tonnage Diverted Annually
Food Waste Reduction Strategy 200 400 3,400 6,800 10,200 14,960 19,331 23,703 28,074 34,000
Textile Reuse and Collection Strategy 200 1,500 2,250 3,000 3,750 6,000 8,250 10,500 12,750 15,000
Drop Off Depots 500 1,000 1,500 6,125 10,750 15,375 20,000
Reverse Vending Machines 500 667 833 1,000
City Explores Mechanisms To
Introduce Additional Controls Over

5 year Waste Strategy Review

Waste Management , By Laws and
Acts 2,450 4,300 7,400 9,850 17,680 25,510 33,340 41,170 49,000
Updates to Multi-residential
Development Standards, Community
Composting, DataManagement 20 40 60
CRD Depots, Policies and Disposal Ban 10,000 12,500 15,000
Unit for Research, Innovation & a
Circular Economy 3,000 3,000 3,000 5,000 7,000 8,800 10,600 12,400 14,200 16,000
Total Residential Tonnage Diverted 3,400 7,350 12,950 22,700 31,800 48,940 70,316 101,380 124,943 150,060
Other Tonnage Diverted Annually
Expand IC&I Service &IC&I By-laws 750 2,100 3,450 4,800 6,150 7,500
Multi-residential By-laws and
Enforcement 500 1,000 1,500 8,600 10,750 17,200 23,650 30,100 36,550 43,000
Total Tonnes Diverted 3,900 8,350 14,450 31,300 43,300 68,240 97,416 136,280 167,643 200,560
Planning Implementation Maintain and Monitor

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 Section 10: Long Term System Outlook and Roadmap
for Implementation

10 Long Term System Outlook and Roadmap for

Implementation

"Together we will reduce the amount of waste we generate, reuse what

we can, and recycle and recover the remaining resources to reinvest back
into the economy. We will embrace a waste management system that is
user-friendly, with programs and facilities that balance the needs of the
community and the environment with long term financial sustainability.
Together, we will ensure a safe, clean, beautiful and healthy City for the
future."

This vision statement, used in concert with theeight (8) Guiding Principles discussed in
Section 4.1will guide the implementation of the Waste Strategy in the future.

10.1 Road Map for Implementation

Figure 10-1provides the overall timing and sequencing for implementation of the
recommended options during the first 10 years. The proposed approach to
implementation has been developed taking into account:

• Environmental benefits of the options;

• Consistency with the waste hierarchy (focus on 3Rs first);
• Commitment to social responsibility/acceptability;
• Needs of the system to sustain current operations (e.g. facility capacity
requirements);
• Alignment with current contracts where appropriate to facilitate transition;
• Alignment with other external influences (e.g. pending legislation changes in
Ontario);
• Availability of staff resources to implement;
• Financial sustainability; and,
• Potential to extend the site life of Green Lane Landfill.

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 Section 10: Long Term System Outlook and Roadmap for Implementation

Figure 10-1: Waste Strategy Implementation Timeline

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 Section 11: Waste Strategy Costs and Financing

11 Waste Strategy Costs and Financing

This section presents the capital and operating costs associated with implementing the
recommended options in the Waste Strategy as well as enhancing existing solid waste
management programs.

11.1 Waste Strategy Capital and Operating Costs

Table 11-1provides an overview of the capital and operating costs over the initial 10
years of the planning period, broken out into 5 and 10 year totals. It also presents longer
term capital requirements that will need to be taken into account in future budgeting
processes. Estimates have been developed for longer term capital requirements such as
a future Green Bin processing facility (e.g. an anaerobic digestion facility), a Mixed Waste
Processing Facility with Organics Recovery, and disposal capacity. It should be noted that
these are high level estimates based on information available at the time this document
was prepared. The costs presented in this table include those costs associated with
implementing the recommended options in the Waste Strategy as well as costs for
enhancement and support for existing waste management services.

A more detailed breakdown of the capital and operating costs associated with the Waste
Strategy in the first 10 years is provided in the following sections.

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Table11-1: Capital and Operating Costs Over the Planning Period ($000s)
Capital and Operating Costs
Capital Costs 2027- 2052 ($000s)
2016 - 2026 ($000s)

Total

Q3/Q4 2016 - 2021

Potential

2022-2026 Total
System Component
10 Year Capital

2027-2031

2032-2036

2037-2041

2042-2046

2047-2051
Total Costs from
2027 to

2052+
Total
2052

Reduction, Reuse, Recycling

Reduction & Reuse 4,689 3,545 8,234
Drop-off Depots 1,705 17,400 19,105
ReverseVending Machines 28 223 250
Multi-Residential Services 2,020 2,075 4,095
IC&I Services 330 193 523
CRD Services 665 1,745 2,410
Materials & Energy Recovery
Testing of Mixed Waste ProcessingTechnologies 15,600 35,720 51,320
Mixed Waste Processing Facility with Organics Recovery 150 3,050 3,200 155,000 155,000 310,000
Residual Waste Disposal
Near and Long Term Residual Waste Management (4,580) (5,000) (9,580) 50,000 50,000 50,000 150,000
Overall System Recommendations
Unit for Research, Innovation & a Circular Economy 1,850 2,180 4,030
Operational Considerations
Commissioners Transfer Station Relocation 6,300 21,500 27,800
Future Blue Bin Recycling Processing Capacity - - -
Future Green Bin Organics Processing Capacity 50 50 50,000 50,000 100,000
Implementation Tools
Promotion & Education 10,290 6,150 16,440
Controls, Bans and Enforcement 5,140 9,900 15,040
5-year Update of Waste Strategy 500 500 1,000
Total 44,736 99,180 143,916 155,000 255,000 100,000 50,000 - - 560,000

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11.1.1 10-Year Waste Strategy Costs

Table 11-2 presents the estimated costs associated with implementing the recommended options for the Waste Strategy and
supporting existing solid waste management programs to increase participation and diversion in the first 10 years. Estimates of costs
are presented in the table below as well as a general description of what the costs include.

Table 11-2: Waste Strategy Costs (2016-2026)($000s)

Q3/Q4
2016 – 2022-
Q3/Q4 2021 2026 10 Year
System Component 2016 2017 2018 2019 2020 2021 Total 2022 2023 2024 2025 2026 Total Total
Costs ($000s)
Reduction, Reuse, Recycling
Reduction & Reuse $0 $1,110 $1,121 $842 $842 $774 $4,689 $702 $700 $715 $715 $715 $3,545 $8,234
Costs include: Campaigns to promote food waste reduction strategy, textile collection and reuse strategy, audits to measure pre- and post-implementation of
options, professional and technical services, a mobile education unit and staffing.
$17,40
Drop-off Depots
$0 $0 $0 $245 $980 $480 $1,705 $480 $3,330 $3,930 $4,530 $5,130 0 $19,105
Costs include: Staffing, studies to identify what materials to collect, where to locate mobile and permanent depots, partnership opportunities to collect from
the community, communications for roll-out of programs, planning, 5 mobile depots (2020), consideration of costs required to process/recycle/dispose of
additional material and costs to develop permanent depots (10-20 starting in 2023).
Reverse Vending
Machines $0 $0 $0 $0 $0 $28 $28 $128 $65 $10 $10 $10 $223 $250
Costs include: Staffing and development of agreements with stewards and studies to determine which materials to collect and/or potential incentive
arrangements.
Multi-Residential
Services $0 $360 $415 $415 $415 $415 $2,020 $415 $415 $415 $415 $415 $2,075 $4,095
Costs include: Consultation for development standards, costs for IT to support development of reporting tools related to data management and other metrics,
costs to support community composting (e.g. P&E and grants) and staffing.
IC&I Services $0 $110 $55 $55 $55 $55 $330 $55 $55 $28 $28 $28 $193 $523
Costs include: Staffing to survey existing and new IC&I customers and to research eligibility criteria.
CRD Services $0 $0 $125 $180 $180 $180 $665 $349 $349 $349 $349 $349 $1,745 $2,410
Costs include: Staffing and audits to determine composition of waste received at Transfer Stations and studies for potential markets.

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Q3/Q4
2016 – 2022-
Q3/Q4 2021 2026 10 Year
System Component 2016 2017 2018 2019 2020 2021 Total 2022 2023 2024 2025 2026 Total Total
Materials & Energy Recovery
Testing of Mixed Waste
ProcessingTechnologie $15,60 $35,72
s $0 $2,120 $3,370 $3,370 $3,370 $3,370 0 $7,120 $7,120 $7,120 $7,120 $7,240 0 $51,320
Costs include: Procurement of processing capacity or services, purchase of processing equipment such as magnets, shredders, studies on results and staffing.
Mixed Waste
Processing Facility with
Organics Recovery $0 $0 $0 $0 $0 $150 $150 $300 $300 $700 $700 $1,050 $3,050 $3,200
Costs include: Staffing, business case, studies on siting, technology, feedstock, and professional services.
Residual Waste Disposal
Near Term Residual - - -
Waste Management $20 -$600 $1,000 $1,000 $1,000 -$1,000 -$4,580 -$1,000 -$1,000 -$1,000 -$1,000 -$1,000 -$5,000 -$9,580
Costs include: Savings incurred due to difference in tipping fee and transfer costs through redirection of waste to other disposal facilities.
Overall System Recommendations
Unit for Research,
Innovation & a Circular
Economy $0 $370 $370 $370 $370 $370 $1,850 $370 $370 $480 $480 $480 $2,180 $4,030
Costs include:Staffing, studies, grants, partnerships, pilots, conferences, membership fees, travel.
Operational Considerations
Commissioners
Transfer Station $10,00 $10,00 $21,50
Relocation $100 $100 $100 $500 $500 $5,000 $6,300 0 0 $500 $500 $500 0 $27,800
Costs include: Planning, approvals and permitting costs, construction and professional services.
Future Blue Bin
Materials Processing
Capacity $0 $0 $0 $0 $0 $0 $0 $0 $0 $0 $0 $0 $0 $0
There are no incremental capital or operating costs associated with procurement of future Blue Bin processing capacity.
Future Green Bin
Organics Processing
Capacity $0 $50 $0 $0 $0 $0 $50 $0 $0 $0 $0 $0 $0 $50

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Q3/Q4
2016 – 2022-
Q3/Q4 2021 2026 10 Year
System Component 2016 2017 2018 2019 2020 2021 Total 2022 2023 2024 2025 2026 Total Total
Costs include: Development of a Request for Expression of Interest for Future Green Bin Processing Capacity.
Implementation Tools
$10,29
Promotion & Education
$50 $1,220 $1,580 $2,480 $2,480 $2,480 0 $1,230 $1,230 $1,230 $1,230 $1,230 $6,150 $16,440
Costs include: Staffing and P&E to enhance existing programs and support implementation of Waste Strategy.
Controls, Bans and
Enforcement $0 $220 $580 $880 $1,480 $1,980 $5,140 $1,980 $1,980 $1,980 $1,980 $1,980 $9,900 $15,040
Costs include:Staffing and promotion and education of controls, bans and enforcement options.
5 year Update of Waste
Strategy $0 $0 $0 $0 $0 $500 $500 $0 $0 $0 $0 $500 $500 $1,000
Costs include: Professional services to conduct Strategy review at years 5 and 10.
$170 $5,060 $6,716 $8,337 $9,672 $14,78 $44,736 $22,129 $24,914 $16,45 $17,05 $18,62 $99,180 $143,91
Total Cost
1 6 6 6 6

Legend Planning Implementation Maintain/Monitor

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Table 11-3 presents the additional staffing requirements for the implementation of the
recommended Waste Strategy options. It should be noted that staffing levels are not
cumulative, but represent year over year staff requirements, over and above existing
staff levels. Staffing levels change over time with planning, implementation and
monitoring/maintenance of options.

Table 11-3: Staffing to Support Implementation of Options (FTEs)

2017

2018

2019

2020

2021

2022

2023

2024

2025

2026
Reduction & Reuse 1 1.10 2.20 2.20 1.60 0.95 0.95 0.95 0.95 0.95
Drop-off Depots - - 1 2 2 2 7 12 17 22
Reverse Vending Machines - - - - 0.25 0.25 1 - - -
Multi-Residential Services 1 1.5 1.5 1.5 1.5 1.5 1.5 1.5 1.5 1.5
IC&I Services 1 0.5 0.5 0.5 0.5 0.5 0.5 0.25 0.25 0.25
CRD Services - - 0.5 0.5 0.5 1 1 1 1 1
Testing of Mixed Waste
2
Processing Technologies 3 3 3 3 3 2 2 2 2
Mixed Waste Processing
Facility with Organics - - - - - 1 1 1 1 3
Recovery
Near Term Residual Waste
- - - - - - - - - -
Management
Unit for Research, Innovation
1 1 1 1 1 1 1 2 2 2
& a Circular Economy
Commissioners Transfer
- - - - - - - - - -
Station Relocation
Future Blue Bin Processing
- - - - - - - - - -
Capacity
Future Green Bin Processing
- - - - - - - - - -
Capacity
Promotion & Education 3 4 4 4 4 4 4 4 4 4
Controls, Bans and
1 3 6 12 17 17 17 17 17 17
Enforcement
Total Staff Resources 10.00 13.00 17.50 24.00 29.75 30.25 35.50 40.75 45.75 52.75
Legend Planning Implementation Maintain/Monitor

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 Section 11: Waste Strategy Costs and Financing

11.2 Sustainable Rate Model Development

A financial analysis of the costs of the City’s current waste management system and the
impact of the Waste Strategy was conducted. It involved the development of a robust
financial model (the Model)that allowed the City to estimate the net operating
expenditures (operating expenses less non-rate base revenues 36) required to service the
City’s residential and non-residential customers. These customers include single family
households, multi-residential households, Residential Units Above Commercial (RUAC),
City Divisions, Agencies and Corporations (DACs), Non-Residential customers (i.e.
charities, institutions or religious organizations), schools and small commercial
businesses. The Model also identified all other operating costs that are not directly
applicable to servicing the City’s rate-paying customers (e.g., public goods that benefit
the entire City of Toronto population such as litter collection).

In essence, the Model was developed to identify the total net operating cost (both direct
and indirect) incurred by the City in providing waste management services to customers
and allocated those costs to each type of customer. Waste management services include
collection of garbage, Blue Bin recycling, Green Bin organics and other waste materials, in
addition to the transfer, processing and disposal of those materials. Collection costs
were allocated based on collection services frequency for curbside customers or
estimated tonnage from centrally collected customers (i.e. bulk collection from multi-
residential buildings), while the costs associated with processing, disposing and
transferring materials, system overhead costs, public goods services, parks collection
costs and beautification (e.g. litter clean-up) costs were allocated to all customers based
on the estimated tonnage generated by each customer type.

The Model assumed a forecast period of 10 years (to 2026). The net operating
expenditures were forecasted over this period by an assumed inflation index 37 and
included the incremental operating costs assumed to be incurred from implementing the
recommended options in the Waste Strategy. In addition, the forecast considered
projected changes to the customer base (single family and multi-residential customers),
as well as the projected annual incremental tonnage and increased diversion rate from
implementing the Waste Strategy. The incremental cost and waste tonnage assumptions
from the Waste Strategy were phased into the Model in accordance with the proposed
timing outlined in the Waste Strategy for each recommended option.

37
An inflation index of 2.5% per year has been assumed in the Model. This assumption reflects the
estimated annual inflation in costs, plus any additional cost increases based on the City’s existing contracts
with third party service providers.

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Using the forecasted net operating expenditures, the Model estimated utility rates for
each customer type based on the total cost allocated to that customer type and the total
number of customers serviced by the City. The calculated utility rates were set to cover
contributions to capital reserves to fund the City’s capital costs included in the Toronto
2016 Capital Budget and the incremental capital costs identified in the Waste Strategy
such as the costs involved with building a Mixed Waste Processing Facility with Organics
Recovery. The calculated utility rates were also set to cover 100% of the City’s forecasted
net operating expenses, including incremental operating costs incurred from
implementing the Waste Strategy, to support the City in transitioning towards a fully
sustainable utility model.

Rate scenarios that would generate the required revenue to support continued provision
of waste services and the Waste Strategy recommendations were developed and
included;
1. Average annual rate increase for 2017 to 2026 by customer type;
2. Uniform rate increase that sees a single annual growth rate applied equally across
all customer types; and,
3. One-time adjustment to 'true-up' costs in 2017 and an average rate increase
thereafter.

The annual rate increases are subject to change based on any new budgetary directions.

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 Section 12: Targets and Goals

12 Targets and Goals

Based on the recommended options outlined in the Waste Strategy, and their anticipated
performance and successful implementation, three targets have been set for the Waste
Strategy:

• Achieve 70% diversion of residential waste managed by the City by Year 10 of

Waste Strategy (2026). This includes waste from single family residences and
multi-residential buildings serviced by the City, and translates to additional
diversion of about 150,000 tonnes by Year 10;
• Achieve70% diversion of materials collected (Green Bin, Blue Bin, garbage) from
Industrial, Commercial & Institutional customers that receive City collection
services by Year 10 of the Waste Strategy (2026); and,
• The overall target is diversion of 200,000 tonnes by Year 10 of the Waste Strategy.
This may be achieved through diversion of an additional 50,000 tonnes from
sources currently not serviced by the City (through implementation of mandatory
waste diversion by-laws for all multi-residential buildings, regardless of service
provider, and additional service to small IC&I establishments).
The Waste Strategy identifies an aspirational goal of zero waste over the longer term. The
long term goal of zero waste is defined as zero wasted resources being landfilled or
having no waste go directly todisposal without having first been used as an input to
another process.One innovative element of the City’s Waste Strategy is the
establishment of a Unit for Research, Innovation & a Circular Economyto research
technologies and explore opportunities to establish processing markets to support the
circular economy framework. In establishing this unit, Toronto would be one of the first
cities in North America to make the circular economy a framework for a dedicated unit
within their waste management organization with a goal towards Zero Waste.

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 Section 13: Measuring Performance in the Future

13 Measuring Performance in the Future

The City tracks a comprehensive set of performance metrics as part of the integrated
solid waste management system. Monitoring the performance of the current waste
system, as well as new system options that may be added is vital to ensure its success
and effectiveness. Understanding the performance of the overall waste system, as well as
each component of the system, provides for a better understanding of the potential
areas for improvement, future trends to watch for, and return on investment as new
programs or facilities are implemented. The identification of additional performance
metrics to reflect the new Waste Strategy components is consistent with the
Implementation Tool “Performance Measures to Define Success and Shape the Future of
Waste Management”.

The metrics identified below should be considered for future reporting and have been
specifically identified to:

• Reflect the performance of the current integrated waste management system;

• Measure the impact of the new Waste Strategy;
• Monitor trends associated with waste reduction and reuse activities; and,
• Provide for transparency on aspects of solid waste management including
customer service, enforcement actions, safety performance, etc.

As new programs and facilities are implemented, the list of performance measures
should be reviewed to ensure that future performance is appropriately tracked. The
performance metrics presented in Table 13-1 have been separated into those specific to
measuring the success of the Waste Strategy and those that are operations related.

Depending on when an option may be implemented, a baseline may be set using 2015 or
2016 data, or if the performance metric is new, the year the option is implemented may
act as the baseline.

On an annual basis, some performance metrics will need to be calculated using tonnage
information that the City already tracks for the materials that are managed within their
waste system and for various reporting requirements. These metrics will be compared to
either the baseline or previous year to assess progress toward achieving the Waste
Strategy targets. For some metrics, it will be necessary to conduct waste audits or other
studies to measure baselines and progress.

As an example, food waste reduction can be measured by performing waste audits that
look at the composition of waste, specifically looking at the amount of wasted food,
packaged food and food waste in all waste streams (i.e. garbage or Green Bin organics).

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Performance metrics such as a per capita residual disposal rate, which many
municipalities are using, and waste reduction are tied to the goal of Zero Waste.
Achievements in reducing these numbers are evidence of working towards a Zero Waste
goal.

Three of the performance metrics, safety performance, green procurement and GHG
emissions, will be tracked on a corporate level. Measurements of safety performance
include lost time, medical and first aids, and collisions (preventable and non-preventable)
and are tied to corporate goals and initiatives. The City currently reports GHG emissions
related to waste management using the Global Protocol for Cities (GPC). The protocol
focuses on disposal-related GHG emissions, and currently does not account for the
benefits (or emission reductions) resulting from waste diversion (i.e. Green Bin organics
diversion). A new GHG measurement and analysis model is being developed as part of
the TransformTO initiative and will be finalized in late 2016. SWMS staff are working at a
corporate level to ensure consistent GHG reporting on behalf of the City.

Table 13-1: Recommended Performance Metrics

Category Metric
Waste Strategy Related
Waste Generation Rate Change in waste
generation rate
Single Family Residential Kilograms/Capita
Multi-residential Kilograms/Capita
Non-residential Kilograms/customer
Waste Diversion Rate Change in % diverted
Single Family Residential Kilograms/Capita
Multi-residential Kilograms/Capita
Non-residential Kilograms/customer
Reduction Change in organics in
Circular Economy – Food Waste Reduction Green Bin and/or garbage
bins
Single Family Residential Kg/unit or kg/capita for
units served
Multi-residential kg/unit or kg/capita for
units served
Reuse
Textile Reuse or Recycling Change in quantities of
textiles in garbage bins

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Category Metric
Single Family Residential Kg/unit or kg/capita for
units served
Multi-residential kg/unit or kg/capita for
units served
Residual
Residual Disposal Rate Change in disposal rate -
kg/capita/year
Other
Customer Satisfaction Rating Customer Satisfaction
Rating
Greenhouse Gas Emissions Related to the System Annual tonnes of
CO2equivalents reduced
Number of procurements that include waste reduction, Total Annual
reuse or recycling requirements such as mandating the use
of recycled materials.
Operations Related
Safety Performance Annual Measures
Total Tonnage Managed Tonnes
Green Lane Landfill Volume Filled Cubic metres (m3)/year
Green Lane Landfill Volume Remaining Cubic metres (m3)
Projected year of closure of GLL (or remaining years of Year
capacity at GLL)

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 Section 14: Waste Strategy Updates, Revisions and
Reporting

14 Waste Strategy Updates, Revisions and Reporting

Waste management planning is a continuous process, which involves reviewing and
revising the plan or strategy at regular intervals. Aside from providing a formal
mechanism to incorporate lessons learned and new information obtained over the
previous implementation period, having a regular review process allows adjustments to
be made to ensure progress towards the Waste Strategy’s long-term objectives.

An annual report should be prepared to present an ongoing update of progress of the

Waste Strategy.The annual report should also identify any specific achievements or issues
that arose during the year and how they were addressed. Implementation plans for
options in the following year should also be identified.

The following sections provide an overview of the processes involved in updating and
reviewing the Waste Strategy and annual system monitoring and reporting.

14.1 Updates and Revisions to Waste Strategy

It is recommended that the first formal review of the Waste Strategy be completed in five
years or during 2022, with subsequent updates being completed every five years. The
five year review periods are anticipated to coincide with the timing of the reviews of the
Waste-Free Ontario Act legislation and proposed regulations. Formal review points, and
as required interim review points, provide an opportunity for any adjustments to the
Waste Strategy as required.It is recommended that the initial review include a
comprehensive assessment of the performance of each Waste Strategy option
implemented to determine if the anticipated objectives over that period have been met,
and identify any issues that may have affected their implementation and performance.
The review will consider the annual performance metrics data recorded to confirm any
trends that may need to be investigated further. Reasons for success or under
performance should be explored and documented. The Waste Strategy can be updated
to reflect the results of the review, identify any changes in the Waste Strategy required to
achieve the targets, or any changes in the implementation timeline for the planning
period.

The following are some key factors that should be considered and may necessitate the
need for revision of the Waste Strategy:

• A significant change in customer base;

• Changes in waste composition and generation;
• A change in legislation as it relates to program and/or service delivery;
• Financial impacts/opportunities such as new sources of funding or decreased
material markets, customers and commodity prices;
• Advancements in new technologies that could benefit the City; and,

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• Remaining capacity at Green Lane Landfill.

The review process should be formally documented for presentation to Toronto Council
and to the broader community. This would take the form of an update report on the
Waste Strategy.

14.2 Annual System Monitoring and Reporting

Annual reporting, both internally and externally, beyond the data collected and reported
formally to other parties, is an excellent means of demonstrating the progress achieved
by both the municipality and the non-municipal partners and participants.Across Ontario,
many large municipal jurisdictions prepare some form of annual report on waste
management program performance. These reports can provide an opportunity to
present data gathered and reported as part of the Financial Information Return (FIR),
Ontario Municipal Benchmarking Initiative (OMBI) and Waste Diversion Ontario (WDO)
requirements, in a more engaging and interesting format.

The annual report card presents the opportunity to report on the current year, highlight
accomplishments, and present minor adjustments. It is recommended that an annual
report card documenting the performance of the waste management system be
prepared in the spring of each year, once final year end accounting is complete. At a
minimum, this report card should include data on performance measures identified in
Table 13-1 above.

In addition to the performance of the subject year, a comparison to the baseline should
be provided with commentary where appropriate to address items such as:

• Programmatic or facility changes that were implemented that could have

impacted quantities managed, tonnes diverted, etc.;
• Waste generation anomalies (e.g. severe weather event);
• Changes to external influences such as changes to Provincial or Federal
legislation;
• Any other internal or external factors that impacted the Waste Strategy
implementation;
• Contract changes with City contracted service providers; and,
• Identification of potential trends, such as a year over year increase in waste
generation that should be monitored to assess the potential for future system
impacts.

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The following provides a sample of what is recommended for inclusion in the annual
report card:
• Summary
o Short, graphic summary of key performance indicators, major
accomplishments and most significant new initiatives implemented.
• Annual Implementation Activities
o Overview of the prior year’s plan and what has been implemented to-
date; and,
o Highlights of upcoming year’s plan.
• Integrated Solid Waste Management System Performance Assessment
o Overview of the performance for all of the strategies/Initiatives completed
the prior year;
o Industry recognition and awards; and,
o Identification of trends, drivers and external influence changes.
• Public and Stakeholder Engagement Activities
o Summary of public and stakeholder engagement activities completed in
the prior year.
• Proposed Current Year (and upcoming year) Initiatives
o Breakdown of the planned initiatives for the current year.
• Concluding Commentary

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 Section 15: Keys to Success

15 Keys to Success
The Waste Strategy has been developed to enhance the City’s existing waste
management programs and with a number of elements which will contribute to its
success. However, there are a number of risk factors that need to be considered which
could affect the implementation of the Waste Strategy, some of which are currently
beyond the City’s control.

15.1 Success Factors

The Waste Strategy is a robust, forward-looking plan that builds on the City’s historic
waste diversion success and leadership, and lays the foundation for achieving an
ambitious diversion target going forward. The anticipated successful implementation of
the plan is based on a variety of key factors:

• Customer participation – Although the Waste Strategy outlines several new and
innovative waste management options (e.g. food waste and textiles reduction and
reuse strategies; mobile and permanent neighbourhood drop-off depots, etc.), a
central focus of this plan is to further improve participation and proper utilization
of the City’s existing programs and services by, for example, updating multi-
residential development standards or expanding industrial, commercial, and
institutional (IC&I) services and policies. The success of the Waste Strategy is very
dependent on the participation of the customers of the City of Toronto.
• Expanded public engagement – In a widely diverse city, there are significant
challenges associated with engaging residents from diverse backgrounds in waste
management initiatives, but also tremendous opportunities. Meaningful and
effective public engagement is a cornerstone to the successful implementation of
this Waste Strategy. Increased levels of engagement among multi-residential
building residents will be essential to the success of the Waste Strategy.
• Balance among environmental, economic and social considerations - All three of
these factors, including a first of its kind health impact considerations assessment
and a thorough review of system funding and financing mechanisms, were
considered in great detail in recommending the specific program options and
elements for inclusion in the Waste Strategy.
• Inclusion of a strong Zero Waste research, development and innovation
component- This is another novel and distinguishing element of the plan. It starts
from the concept of waste as a resource and is one of the first long term waste
management plans in North America built around the idea of a sustainable
circular economy and no wasted resources.
• Inclusion of significantly enhanced controls, bans and enforcement capabilities to
support the implementation of core program elements– Adequate enforcement
and openness to tools, such as enhanced controls and material bans, are key

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complements to the related focus on expanded, multi-channel public

engagement.
• Sustainable longer term financing - The Waste Strategy needs to be properly
financed to ensure success. Also, over time, rates need to be set to accurately
reflect the changing costs of different components of the waste management
system service, and to charge users the full cost of services provided. The rate
model developed as part of the Waste Strategy will ensure that the costs needed
to properly implement the Waste Strategy are incorporated into the rates
charged to Toronto system customers today and for the next ten years.

15.2 Barriers and Risks

Section 15.1 outlined factors that will help lead to the success of the City’s Waste
Strategy. It must be noted, however, that as in any other planning process, there are risk
factors that could result in the Waste Strategy not producing the expected results. These
could include both internal factors (e.g. failure to engage City residents) and external
factors (e.g. changes in waste composition, consumer patterns,and/or governing
legislation). It is important that the Waste Strategy is flexible so that it is able to respond
to risks and barriers that have been identifiedthroughout the implementation and
operating periods. The first five year review is one element that allows for a mid-course
correction if some of the assumptions built into the Waste Strategy are found to not
occur as anticipated over time.

Barriers and related risks that may influence the success of the Waste Strategy include
the following:

1) Changes in Provincial waste legislation, regulations, strategies

Changes in Provincial waste legislation have the potential to significantly impactthe City’s
ability to achieve higher waste diversion. Some waste streams may no longer be
managed by the City within the initial ten year time-frame. The implications of the
Waste-Free Ontario Act and its regulations will be more evident at the time of the 5-year
review. The feasibility of implementing various waste reduction measures will be clearer
at that time and may require modification of the Waste Strategy.

2) Diversion estimates may not be reached

The diversion estimates presented in the Waste Strategy may not be reached either
because:

• Waste composition changes over time in ways which are not predictable today;
and/or,
• Citizens may not participate, or do not participate properly in the waste reduction
and diversion programs, thereby resulting in lower capture rates for targeted
materials.

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3) The impacts of the “evolving” tonne

Changes in the composition of waste that will be generated by City households and
businesses through the Waste Strategy timeline present a risk to success, as diversion
estimates have been based on the current waste composition. Some of the most
significant changes in the waste stream that have been anticipated to continue
throughout the planning process include:

• a significant decline in the generation of newsprint;

• a significant increase in plastics packaging (especially hard-to-recycle films, stand-
up pouches and plastic laminates);
• an increase in old corrugated cardboard in both households and businesses due
to growing internet sales; and,
• an increase in the quantity and types of waste electronics and electrical
equipment (WEEE) in both households and businesses.

4) Failure to successfully engage City residents in efforts towards 70% diversion

Diversity is one of Toronto’s greatest assets, but it is also a challenge for those
responsible for designing and delivering environmental programs that require “right
actions” (from purchasing items with reduced packaging to separating and setting out
recyclables and organics for collection) each and every day by millions of residents.

Toronto has always been a leader in developing and distributing materials in multiple
languages using visually attractive and engaging education and outreach tools wherever
possible. Toronto has also been a leader in providing direct hands-on support for hard-to-
reach audiences (like multi-residential households through the 3Rs Ambassador program
and small businesses) to encourage all citizens to “do the right thing” when it comes to
reducing/diverting waste.

The Waste Strategy broadens the City’s education and outreach efforts in several ways. It
moves into a focus on strategic “new materials” (like food waste and textiles) where
more materials need to be diverted, and the physical presence in the community through
mobile and neighbourhood drop-off depots which are expected to raise awareness of
waste management in general.

However, one of the key risk factors to the success of this Waste Strategy is its high
dependence on citizen engagement, particularly engagement of the multi-residential
sector. There is always the possibility that residents will not participate in waste diversion
initiatives at the level anticipated by the City, or even if they do, that the material
captured through the program is of such low quality that it cannot be recycled.

5) Enforcement may not be sufficiently resourced or supported

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The Waste Strategy supportsthe City’s capacity to enforce municipal by-laws and policies
that improve the effectiveness and efficiency of current and future waste diversion
programs required to reach the diversion targets. The Waste Strategy includes more
enforcement staff focused specifically on enforcing waste by-laws and correcting
improper participation in waste diversion programs.

6) The Waste Strategy depends on successful partnerships

Elements of the Waste Strategy require partnerships with NGOs (non-government
organizations) for particular programs. The food waste reduction strategy, could be
strengthened by collaborating or working with GTA municipalities and various food
related organizations, as well as universities and colleges interested in the topic.
Operating textile and drop-off facilities should ensure that NGOs currently collecting
these materials are not negatively impacted by the City program, and partnerships with
the existing NGOs may be considered to expand the service. Partnerships require a
significant investment of time to establish and maintain, and unless they are executed
effectively, they may not be successful.

7) Toronto may not have control over its own waste

As discussed earlier in the Waste Strategy, the Waste-Free Ontario Act will make
producers in Ontario fully responsible for end of life management of products such as
packaging, electronics, etc. placed into the Ontario marketplace. It is not clear at this
time who will be responsible for managing the different types of waste produced by
Toronto residents, which the City currently manages. Various industry groups may
decide to operate independent programs to manage components of the residential
waste stream for which they will be responsible. Therefore, Toronto may not have full
control over the waste created by its current customer base.

15.3 Transition Considerations

The Waste Strategy places a focus on the “3Rs first”, building on the City’s existing and
extensive waste diversion programs and supported by the implementation of new and
complementary programs for waste reduction, reuse, and recycling. The implementation
of these programs will be staggered over the first 10 years of the Waste Strategy,
allowing sufficient time for planning, resourcing and promotion/education to ensure the
success of each program. No fundamental changes to the City’s existing waste
management programs and system are required as part of the Waste Strategy.

A senior staff member will be assigned the overall responsibility for guiding the
implementation of the Waste Strategy. This role will include assigning responsibilities for
specific programs based on the skills and resources required. Timelines and milestones
will also be established and confirmed. The City enjoys the support of one of the largest
and most experienced professional waste management support staff of any city in North
America. Wherever possible, the Waste Strategy has identified opportunities to either

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work in partnership with existing community partners in program delivery or to contract

out specialty services (e.g. the operation of mobile depots for some hazardous household
waste) to trained private contractors.

As noted, key components of the Waste Strategy are incremental in nature and, at least
within the first ten years of implementation, there is minimal reliance on new or cost
intensive capital technology applications. In areas where new technology applications are
recommended for trials and tests (e.g. reverse vending machines for selected waste
electronic equipment, mixed waste processing with organics recovery), the risks involved
will be shared (where appropriate) with private partners or are being investigated on a
relatively small and limited scale to control any potential risks.

The annual system monitoring and reporting process will be beneficial for the City to
identify any gaps in the transition to the new programs as part of the Waste Strategy.

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 Section 16: Conclusion

16 Conclusion
In summary, Toronto is set to implement a number of initiatives that will complement an
already world class waste management system. These initiatives are intended to
emphasize the 3Rs and to promote greater performance of the current integrated waste
management system in the first ten years. This includes the rollout of several new
programs with supporting promotion and education in combination with a more
aggressive approach to enforcement of existing programs, services and by-laws.

Solid Waste Management Services and City Council adopted Strategic Plans to guide the
vision, mission and goals for Toronto in the coming years. As identified in Section 2 of
this report, City Council approved 26 Strategic Actions for 2013 – 2018. Strategic Action
#7 was to develop a Long Term Solid Waste Management Strategy. In addition, at a
divisional level, Solid Waste Management Services established a Strategic Framework to
guide the Division in becoming an international leader in municipal solid waste
management. The completion of the Long Term Waste Management Strategy fulfils
these elements of the corporate and divisional strategic plan actions.

The Waste Strategy consists of options that work with the current system to reduce the
amount of waste generated and to increase the amount of waste diverted from landfill.
Three targets have been set to extend the life of Green Lane Landfill until approximately
2040:

• Achieve 70% diversion of residential waste managed by the City by Year 10 of

Waste Strategy (2026). This includes waste from single family residences and
multi-residential buildings serviced by the City, and translates to additional
diversion of about 150,000 tonnes by Year 10;
• Achieve 70% diversion of materials collected (Green Bin, Blue Bin, garbage) from
Industrial, Commercial & Institutional customers that receive City collection
services by Year 10 of the Waste Strategy (2026); and,
• The overall target is diversion of 200,000 tonnes by Year 10 of the Waste Strategy.
This may be achieved through diversion of an additional 50,000 tonnes from
sources currently not serviced by the City (through implementation of mandatory
waste diversion by-laws for all multi-residential buildings, regardless of service
provider, and additional service to small IC&I establishments).
The City of Toronto, along with many other large municipalities around the world, are
incorporating the principles of Zero Waste into waste management planning. Zero Waste
represents a profound change to the approaches to managing waste, recognizing the
value of waste as a resource. These targets, along with specific initiatives such as a Unit
for Research, Innovation & a Circular Economy, will contribute to the City’s progress

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towards achieving the aspirational goal of Zero Waste to preserve resources for future
generations.

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17 Acknowledgements

The City would like to thank and acknowledge members of the Stakeholder Advisory
Group, citizens of Toronto, key stakeholders, other City Divisions, Agencies and
Corporations and particularly Toronto Public Health and Members of the Executive
Environment Team.

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