Regional Municipality of Niagara...Niagara Region Public Works staff met with the project team on December 11, 2006 to discuss the regional Blue Box recycling program. The site visit

OPERATIONS IMPROVEMENT

ADVISORY SERVICES

RegionalMunicipalityofNiagaraReport on Current State

and Opportunities for

Improvement

August 7, 2007

KPMGandtheKPMGlogoareregisteredtrademarksofKPMGInternational,aSwisscooperative.

©2007KPMGLLP,aCanadianlimitedliabilitypartnershipandamemberfirmoftheKPMGnetworkofindependent

memberfirmsaffiliatedwithKPMGInternational,aSwisscooperative.Allrightsreserved.PrintedinCanada.

UseofthisReportThisreportisconfidentialandisintendedsolelyfortheuseoftheMunicipality

namedonthecoverofthisreportandtheMIPCSteeringCommitteeofthe

RecyclingProgramEnhancementandBestPracticesProject(2006/2007)with

respecttothisspecificmatterandisnotintendedforgeneraluse,circulationor

publication.Thisreportisnottobepublished,circulated,reproducedorusedforany

otherpurposewithoutourpriorwrittenpermissionineachspecificinstance.Neither

KPMGLLP,itsaffiliates,employeesofadvisorsassumeanyresponsibilityorliability

foranyclaims,costs,damages,losses,liabilitiesorexpensesincurredbyanyoneas

aresultofthecirculation,publication,reproduction,useoforrelianceuponour

reportcontrarytotheprovisionsofthisparagraph.Thecommentsinthisreportare

notintended,norshouldtheybeinterpretedtobe,legaladviceoropinion.

Aswithanyplanningassignment,theroleofthisdocumentistoestimatefuture

eventsbasedoninformationavailableand/orprovidedtousatthetimeofourreport,

primarilyinterviewresults,fieldobservations,consultationwithindustry

representativesandavailablepublishedinformation.Thereare,however,anumber

ofuncontrollablepolitical,socialandinternalfactorsthatmayaffectthefindings

outlinedinthisdocument.Asaresult,thisdocumentshouldbeviewedinthe

contextofbeingestimatesbasedoninformation,whichmayormaynotbe

influencedbyunforeseenoruncontrollableevents.Wecautionthereaderthatthe

ultimatesuccessofanyBlueBoxProgramEnhancementinitiativescanvary

significantlyfromtheprojectionsoutlinedinthisreportduetoeconomicor

regulatorychanges,costescalations,decisionsofcompetingcommunities,the

emergenceofnewcompetitors,changesingovernmentfundingprogramsand/or

prioritiesortheinabilityoftheprogramimprovementprocesstoachievecertainkey

milestones.




TableofContents

ExecutiveSummary 2

CurrentStateofYourBlueBoxProgram 4

ProgramDescription 4

DatacallInformationandQuantitativeAnalysis 5

ObservationsandQualitativeAnalysis 6

ProcessMap–Collection 10

ProcessMap–Processing 11

FutureState 13

ApplicableBestPractices 13

OpportunitiesforImprovement 16

ImplementationRoadmap 19

ImplementationTimelines 19

ImplementationRequirements 20

ImplementationBenefits 20

Appendix 21

CurrentCollectionArea 21

FacilityCentralization 22

BestPracticeDescriptions 23

2 RegionalMunicipalityofNiagara Report on Current State and Opportunities for Improvement




Aboutthisreport

Thisreportwaspreparedaspartofthe

RecyclingProgramEnhancement&Best

PracticesAssessmentproject,the

purposeofwhichwastoidentifyactivities

thatconstitutebestpracticesand

determinetheOntario-wideBlueBox

programcostifallprogramsinthe

provinceoperatedunderbestpractices.

Inappreciationofyourwillingnesstoallow

theprojectteamtovisitandlearnfrom

yourprogram,wehavepreparedthis

report,whichidentifiedbestpractices

applicabletoyourprogramandlists

potentialopportunitiesforimprovement.

Programobservations,conclusions,and

potentialopportunitiesforimprovement

outlinedinthisreportweredevelopedas

aresultofbriefsitevisits,high-level

analysisofyourprogram,assessmentof

otherBlueBoxprograms,andprimaryand

secondaryindustryresearchbytheproject

team.Itisimportanttonotethatpriorto

implementinganyofthesepotential

opportunities,yourmunicipalityneedsto

thoroughlyassesstheirappropriateness

andpracticalityinthecontextofyour

specificBlueBoxprogram.Formajor

initiativesrequiringcapitalinvestment,this

wouldentailadetailedcost/benefit

analysis,paybackperiodanalysis,and/or

feasibilityreview.

ExecutiveSummary

TheNiagaraRegionprovidesBlueBoxcollectionandprocessingservicestoalllower

tiermunicipalities.Inadditiontoresidentialservices,theRegionalsoprovidesICI

processingandschoolsandspecialeventscollection.Thelastcollectionservices

contractwastenderedin2002,withcollectioncommencingin2003-04.In2003-04,

theRegionoptedtoofferaweeklyalternatingmaterial(fibresandcontainers)

recyclingprogram,exceptfortworuralcommunities,wheretraditionalbiweekly

serviceisoffered.TheRegionownstheMaterialRecoveryFacility(MRF)whichis

operatedbyaprivatecontractor.TheRegionalsoacceptstwo-streamrecycling

materialsfromotherOntariomunicipalities.TheRegionmarketsitsfibrestoalocal

papermill,AbitibiConsolidated,exceptwhenAbitibishutsdownsitsmill.Currently,

theRegionisina10-yearagreementwithAbitibi,whichexpiresinthefallof2007.

Abitibialsooperatesa“paperretriever”programintheregion,allowingresidents

andbusinessestocollectfibresinspecialprogrambinsandgetpaidforcollected

tonnage.

TheRegionofNiagaraBlueBoxprogramhasthehighestE&EfactorinitsMunicipal

Group(UrbanRegional).At$139/tonne,theRegionofNiagarais76%higherthan

theaverageprocessingcost,whichmay,amongotherfactors,becausedbyother

non-MRFactivitiesbeingincludedintheDatacall.TherecoveryrateforBlueBox

materialsisalsoamongthelowestinthegroup(58%versus64%average,although

the2006WDOWasteAuditrevealedamoreaccurateandeffective78%recovery

rate).Householdtonnageillustratesthelowrateofrecovery–176kg/hhld/yrversus

groupaverageof207kg/hhld/yr.

NiagaraRegionPublicWorksstaffmetwiththeprojectteamonDecember11,2006

todiscusstheregionalBlueBoxrecyclingprogram.Thesitevisitrevealedsomeof

thepotentialcausesoflowrecoveryrate,highcost,andtheresultinghighE&E

factoroftheNiagaraRegionrecyclingprogram,includingthelackoffreeblue/grey

replacementpolicybytheRegion,thealternateweekcollectionofblueandgrey

boxes,andtheloweravailabilityofrecyclablematerialsintheregion.Onthe

processingend,duetothefactthattheRegionisoperatingarelativelynewMRF,

factorsthatarelikelycontributingtohighercostsarethedepreciationofcapital

assets(contributingapproximately$50of$139/tonnetothecostoftheprogram)and

theinclusionofaglasspulverizationlineintotheDatacall.Recoveryrateswerealso

adverselyaffectedbyafaultyfinescreen.Theprematurewearoftherubberdiscs

allowedadditionalmaterialstobelost.Thisissuehasbeenresolved.

Someoftheelementswithintheprogramareworkingwell.Residentsofvarious

ethnicitiesandbackgroundsareinformedabouttheBlueBoxprograminseveral

languagesinpromotionalmaterialsandontheRegion’swebsite.Thecollection

costsfortheprogramarelowerthanaverage.

BasedonthesitevisitandBestPracticesdecisiontreemethodologytheteamhas

identifiedBestPracticesapplicabletomunicipalitiesofparticulargroupingsof

RegionalMunicipalityofNiagara3

Report on Current State and Opportunities for Improvement




characteristics.ThirteenBestPracticesarediscussedinthisreportastheyapplyto

NiagaraRegion.Additionally,severalareasforimprovement,intheshortandlong

terms,thatwereidentifiedduringthesitevisitarediscussed,includingamong

others:

• Providingfreereplacementblue/greyboxes;

• RequestingofaWDOfinancialaudittoimproveDatacallaccountingandmore

closelyreflectperformance

• Assessingoperationaloptimizationintenderingnewcontracts

• Exploringpossiblenewfibremarket

• Consideringalternativecollectionapproachandfrequency

• Reviewingcollectionvehiclerequirements

• Exploringcontractchangestoimprovealignmentofobjectives

• ExploreMRFoptimizationopportunities





CurrentStateofYourBlueBoxProgram

This section of the document contains description,

visual depiction, and analysis of the current state of

your municipal Blue Box program

ProgramDescriptionProgram Title: RegionofNiagaraBlueBoxProgram

Program Type: UrbanRegional

Site Visit Date: December11,2006

Site Visit Team Members: GlenSlutsky,FrancisVeilleux,LindaChurchill

NiagaraRegionprovidesBlueBoxcollectionandprocessingservicestoall12lower

tiermunicipalitiesforresidencesoffiveunitsorless.TheRegionalsoprovides

collectionservicestosomemulti-familypropertiesofsixunitsormore,butnottoall

ofthemunicipalities.Thisisdoneonlyonrequestandwithpaymentfromthe

requestingmunicipality.Inadditiontoresidentialservices,theRegionalsoprovides

ICIprocessingandspecialeventscollection.TheBlueBoxprogramoperates

throughtheuseofcontractorsmanagedbytheuppertiergovernment.Onelocal

municipality,NiagaraFalls,stillmaintainsitsowncollectionfunctionformulti-family

building;however,itisreportedundertheRegionfortheDatacallpurposes,asthis

materialisprocessedattheRegionalfacility.

Thelastcollectionservicescontractwastenderedin2002,withcollection

commencingin2003-04.Collectionservicesweresplitintothreemainserviceareas,

twoofwhich(areas2and3)wereawardedtoModernCorporation,basedonthe

lowestsubmittedbid.Thecontractforarea1wasawardedtoWasteManagement,

basedonthelowestsubmittedbid.Allthreecontractshadafive-yearlifespan.The

WasteManagementcontracthassincebeencancelledbythecontractor,who

invokedacancellationclause,andModernCorporation(thenextlowestbidderfor

area1)nowservicesallareamunicipalities.Bidsfromothercontractorswere

reportedtoberelativelyclosetothelowestbidder,exceptforone,whichwas

substantiallyhigher.Thenextcollectioncontractwillbetenderedin2009,forwhich

atenderoranRFPmaybeused.

Residentsarerequiredtoseparatefibresfromcontainersandplacethemintogrey

andblueboxes,respectively.Containers,whichare16USgallons(60litres)insize,

canbepurchasedfromtheRegionfor$5each.

In2003-04,theRegionoptedtoofferaweeklyalternatingmaterial(fibresand

containers)recyclingprogram,exceptfortworuralcommunities,wheretraditional






biweeklyserviceisoffered.Thematerialswereco-collectedwithorganicsinsplit

bodyrearloaders.Theco-collectionprogramwaslaterchangedtowasteand

organics,sincethosedisposalfacilitiesareclosertoeachotherandcross

contaminationisnotanissuewiththosestreams.Recyclingisnowcollectedina

rearloadedsinglestreamvehicle,stillonanalternatingweekbasis.Alsoin2004,

theRegiondistributedafreeGreyboxtoallarearesidents.Inadditiontocurbside

service,residentshaveanoptionofutilizingrecyclingdepots,locatedatthelandfills,

publicdropoffdepots,andprocessingsites.Roll-offcontainersand95gallon(360

litres)cartsareusedatthedepots.

TheRegionownstheMaterialRecoveryFacility(MRF)andthreevehicles(one

vehicleservices75%schoolsand25%commercialaccounts;anothervehicleisfully

dedicatedtocommercialaccounts,andthethirdvehicleservices90%commercial

accountsand10%specialevents)toservicerecyclablescollectionatschools,

businesses,andspecialevents.TheMRFisoperatedunderamanagement

agreementwithNiagaraRecycling,whichiscurrentlyunderreviewandisbeing

extendedonamonth-to-monthbasis.Underthisarrangement,theRegionpaysall

operatingcostsbasedonanagreedbudgetannuallyandreceivesallrevenuesfrom

commoditysales.NiagaraRecycling,anon-profitemploymentagency,provides

theirclientswithmeaningfulemploymentandreceivesamanagementfeebasedon

$1.15pertonneand2%ofsales.Thiscommunitybasedgrouparrangementhas

beenongoingsincerecyclingbeganinthearea.

Theprocessingfacilitywasmovedtoitscurrentlocationin2004whentheRegion

purchasedanexistingbuildingcentrallylocatedandinstalledanewCP

manufacturingprocessingsystem.Somehydroupgradeswererequired.TotalMRF

capitalexpenditurewasapproximately$13.3million,includingthebuildingcostof

$4.6million.AMRFoptimizationstudyiscurrentlyunderwaytoassesswhetherthe

facilityisoperatingatoptimallevels.

TheRegionalsoacceptstwo-streamrecyclingmaterialsfromotherOntario

municipalities.Currently,containersfromOrilliaareshippedtotheNiagaraMRF.In

thepast,periodicdeliveriesofmaterialsfromPeelandHamiltonhavealsobeen

acceptedattheMRF.

TheRegionmarketsitsfibrestoalocalpapermill,AbitibiConsolidated.Thecontract

withAbitibiwasestablishedin1996fora10-yearterm.OnoccasionswhenAbitibi

shutsdown,theRegionmarketsitsfibrestootherpapermills.TheRegionis

currentlyevaluatingotheroptionsforpapermarkets,duetothecontractexpiryinthe

Fallof2007.Abitibialsooperatesa“paperretriever”programintheregion,allowing

residentsandbusinessestocollectfibresinspecialprogrambinsandgetpaidfor

collectedtonnage.

DatacallInformationandQuantitativeAnalysisRegionofNiagaraBlueBoxprogramhasthehighestE&EfactorinitsMunicipal

Group(UrbanRegional).Thefactorof2.51is41%higherthanthatofanaverage

programinthegroup(1.78),and120%higherthanthelowestE&Eprograminthe





group(RegionalMunicipalityofDurham).Tablebelowillustratesthevariationin

operationalandfinancialstatisticsofNiagaraRegionversustheaverageandthe

lowestE&Eprogram:

ItisevidentfromthetableabovethattheRegion’sprocessingcostsare

considerablyhigherthanthoseofanaveragecomparablemunicipality.At

$139/tonne,theRegionofNiagarais76%higherthantheaverageprocessingcost.

TherecoveryrateforBlueBoxmaterialsisalsoamongthelowestinthegroup(58%

versus64%average,althoughthe2006WDOWasteAuditrevealedamoreaccurate

andeffective78%recoveryrate).Householdtonnagefurtherunderlinesthelow

rateofrecovery–176kg/hhld/yrversusgroupaverageof207kg/hhld/yr.Finally,

depottransfercostsandadministration/interestcostsarethehighestinthegroup

andsignificantlyhigherthanaverage.

ObservationsandQualitativeAnalysisNiagaraRegionPublicWorksstaffmetwiththeprojectteamonDecember11,2006

todiscusstheregionalBlueBoxrecyclingprogram.Duringthesitevisit,a

questionnairewasadministered,aninterviewwasconducted,andatourofa

collectionrouteandaprocessfacilitywasperformed.

Thesitevisitrevealedsomeofthepotentialcausesoflowrecoveryrate,highcost,

andtheresultinghighE&EfactoroftheNiagaraRegionrecyclingprogram.

Factorsthatmayhaveanegativeinfluenceontherecoveryrateoftheprogram

include:

• Lowerthanaveragepaperrecoverylevels(91kg/hhld/yrvs.117kg/hhld/yr

average)maybeaconsequenceofalackofadailynewspaperintheRegion.

Themajorityofotherprogramsinthesamemunicipalgroupingeitherhaveadaily

Program Title Niagara Region Average

Lowest E&E in

Group

Year

Municipal group

Reported and/or Calculated Marketed Tonnes 31,654 40,893 45,877 Residential Collection Costs Per Tonne $108.29 $120.46 $116.84

Residential Processing Costs Per Tonne $139.19 $78.92 $68.91

Residential Depot/Transfer Costs Per Tonne $5.45 $1.88 $4.08 Residential Promotion & Education Costs Per

Tonne $2.28 $3.41 $6.53 Calculated Administration and Interest on

Municipal Capital Per Tonne $19.54 $11.49 $7.60

Gross Costs Per Tonne $274.75 $216.17 $203.96 Households 179,736 192,141 Net Cost/Tonne $147.57 $113.45 $82.31 % Recovery 58.84% 64.32% 71.96% EE Factor 2.51 1.78 1.14 kg/hhld Available 299.32 321.80 331.79 kg/hhld/yr 176.11 207.35 238.77 $/hhld 25.99 23.00 0.91

Urban Regional

2005






localnewspaperorareincloseproximitytoalargeurbancenterwithadaily

newspaper.Furthermore,the2006WDOWasteAuditfoundthat98ofthe122

kg/hhld/yrofpaperavailablearebeingcollectedthroughtheBlueBox.Tomatch

othersinthegrouptheRegionwouldhavetoreacha96%recoveryrate.

• LowerpaperrecoverylevelsmayalsobeattributedtoacompetingAbitibipaper

retrieverprogramthatexistsintheRegion.Insteadofrecyclingpaperatthecurb,

someresidentselecttobringtheirfibrestoanAbitibibin.

• Alowglassrecoveryrate(10kg/hhld/yrvs.26kg/hhld/yraverage)maybe

attributedtoadefectivescreenattheprocessingfacilityin2005,whichhasnow

beenreplacedwithamoreeffectivemechanicalseparationmechanism.The

2006WDOWasteAuditfoundthat33ofthe39kg/hhld/yrofglassavailableare

beingcollectedthroughtheBlueBox

• Duetothefaultyscreen,theprogram’sresidueratesin2005wereveryhigh,

nearing14-15percent.Asaresult,recoveryratesforallmaterialswerenegatively

affected,andinparticularaluminum,whichisthecommoditywiththehighest

revenue.Theissuescausingthehighresiduepercentagehavenowbeen

resolvedandcurrentresiduelevelsareatareported3-5%overall,whichis

consistentwithanaveragetwostreamsystemMRF.

• Recyclingbyresidentsmaybeadverselyaffectedbythelackoffreeblue/greybox

replacementpolicyintheRegion.Althoughfreegreyboxesweredistributedby

theRegionin2004,manyhouseholdsutilizecontainersotherthanblue/greybox

tosetoutrecyclables(cardboardboxes,bags,etc.),asobservedbythesitevisit

teamonthecollectiontour.Thispracticelikelycontributestolowercollection

productivity,increasedlevelsofcontamination,andincreasedsortingintheMRF

(toopenandremoveplasticbags).Thismaybeanindicationofpoor

communications,inaccessibledistributionchannels,ineffectiveenforcement,or

improperpricing/economicincentivesforblue/greyboxes.

Factorsthatmayhaveanegativeinfluenceonthecollectioncostoftheprogram

include:

• Alternateweekcollectionofblueandgreyboxesmaynotbethemostefficient

processfortwo-streamcurbsidecollection,consideringthevehiclesused(see

nextpoint).Usingthismethod,thetruckneedstotraveldownthesameroad

everyweektocollectmaterials,addingtotransportationandlabourcosts.

• Thecurrentlyusedrear-loadingvehiclesareefficientincollectingandcompacting

materials,astheyareabletocarryupto10tonnesofcompactedmaterials.

However,theduetooperationalissuesrelatedtoprocessingofhighlycompacted

materials,theRegionrecentlyinstituteda4-5tonnelimitontheoperatorinorder

todecreaseoverallsystemcosts.Whilecostsavingsontheprocessingendhave

beenrealizedduetothenewcompactionlimit,furthersavingsonthecollection

contractcanbeachievedbyusinglighter,lessexpensivetruckswithlower

compactionlevels,matchingtheRegion’srequirements.

• Thesitevisitteamobservedhighusageofmakeshiftcontainersbyresidents

(someusecardboardboxesandplasticbags),whichmaycontributetolower





collectionefficiencies,astheloaderneedstohandlenon-standardcontainersin

additiontoblueandgreyboxesatmanystops.Pickingupfullcardboardboxes

andotheroddshapedobjectsmayslowdownloadingandaddstrainonthe

worker(thismaybeexacerbatedinwetweather).

Factorsthatmayhaveanegativeinfluenceontheprocessingcostoftheprogram

include:

• AsignificantinjectionofcapitalintotheMRFoverthelasttwoyearshashada

verylargeimpactontheprocessingcost.Thefacilityisrelativelynew,andcapital

hasnotbeenfullydepreciated.Infact,depreciationofcapitalassetsis

contributingapproximately$50of$139/tonnetothecostoftheprogram.Most

otherprogramsinthesamemunicipalgrouphavefullydepreciatedcapitalinthe

MRF(>10yearsold),andwillexperiencesimilarescalationincostswhen

substantialMRFupgradesareinstalled.However,processingcapitalcostsof

$50/tonneappeartoberelativelyhigh,accordingtoaWDOMRFOptimization

Studyof2001(adjustedfor2006),whichindicatesthatcapitalexpensesfora

70,000tonnes/yrcapacityMRF(35,000tonnesperyearpershift)shouldbebelow

$19.

• InclusionoftheglasspulverizationlineintotheDatacallcontributestothe

program’shighprocessingcosts,includingcapital.Theoffsettingrevenueshave

notbeenfullyrealizedyet.

• ThenumberoflabourersattheMRFwasviewedtobehigherthanaveragefor

thesizeofthefacilityandprocessedvolume.Thismaybeduetoapotential

misalignmentofinterestsbetweentheRegionandtheMRFprocessor,Niagara

Recycling.TheRegion’sobjectivesfortheprocessingoperationaretominimize

cost,maximizediversion,andtoincreasevalueofprovidedservices.Niagara

Recycling’smainobjective,ontheotherhand,istoprovideemploymentto

individualsandengageclients.Althoughthereisamanagementfeeandvariable

compensationcomponentinplace,thisincentivemaynotbesubstantialenough

tofullyaligntheobjectivesofthetwoparties.AMRFoptimizationstudyis

underwayandanewcompensationstructureisbeingdeveloped.

• Thehighnumberoflabourersandoverlyhighequipmentmaintenancecosts

(faultyscreenandproblematicbalerissues)maycontributetoinefficiencies.These

issueswillalsobeaddressedintheMRFoptimizationstudy.

• TheMRFappearstooperatebelowitsfullcapacity,asthereisonlyoneshiftin

operation.Thisresultsinthenewandexpensiveequipmentstayingidlefortwo-

thirdsoftheday.Thefactthatfixedassetsarenotbeingfullyutilizedthroughout

thedaymaybeoneofthemaincontributorstothehighcapitalcostofthe

program(50$/tonne).However,theRegionhasinthepastandiscontinuously

seekingadditionalmaterialsourcestoenhancetheutilizationofisprocessing

facility.

• Theresidents’useofBlueBags,whichwereonceemployedinapilotprojectfor

therecyclingprogramintheRegion,resultsinadditionallabouronthepre-sortline

oftheprocessingfacility.Whiletheirquantitymaynotbesignificant,bagsactas

thebottleneckintheprocess,astheyneedtobemanuallyrippedapartorsorted






intoabunkerforsubsequentprocessing.Furthermore,thebagscontributeto

additionalnon-recyclablesonthesortingline.

• Allocationandreportingofnon-residentialprocessingactivitiestothecostofthe

programintheDatacallisalsocontributingtohigherapparentprocessingcosts.

Activitiessuchasschoolcollectionandprocessing,papershredding,direct-to-bale

cardboardprocessing,customerservice(WasteInfoLine),andtheglasspulverizer

linemaybeerroneouslyreportedunderprocessingcostsfortheRegion.School

collectionprogrammaybeeligibletobereportedasacollectioncost.

WhiletheNiagaraRegionprogramhasthehighestE&Eratiointhegroup,someof

theelementswithintheprogramareworkingwell.Theseinclude:

• Thepromotionandeducationmaterialisprofessionallydoneandvisuallyappealing.

ResidentsofvariousethnicitiesandbackgroundsareinformedabouttheBlueBox

programinseverallanguagesinpromotionalmaterialsandontheRegion’s

website.FrenchandItaliancalendarsareavailable.

• TheuseofBlueandGreyboxesisconsideredtobeveryefficientandeffective.

Graphicsanddescriptionsofacceptedmaterialsontheboxeshelpresidentssort

materialsathome,makingthedependenceonthecalendarandotherpromotional

materialslesssignificant.Thesizeofeachbox(60litres)isquitelargeand

probablysufficientforatwo-weekaccumulationperiod.

• Thecollectioncostsfortheprogramarelowerthanaverage.GPS,anti-idling

devices,androuteoptimizationmaybecontributingtothelowcollectioncost.

• Whenco-collectionofrecyclingandorganicmaterialswasalteredtoorganics

beingco-collectedwithwaste(recyclingcollectedinasinglecompartmenttruck),

theRegiondidnotincuranyadditionalexpenditures,resultingincollectioncosts

remaininglow.





ProcessMap–Collection

Blue Box Type: 16-gallon containers

Depot Containers: 95-gallon and roll off bins

Materials Accepted: Plastic and Glass Containers, Aluminum and Steel Cans, Cardboard, ONP, Boxboard, Paper, Polystyrene, PE Bags

Separation: Fibers and containers in Grey and Blue boxes, respectively

Replacement Policy: Boxes can be purchased at $5 each

Collection Contractor: Modern Corporations

Collection Frequency: Alternating week Blue/Grey box collection. 2 of 12 municipalities have bi-weekly two-stream collection

Roadside Position: Both sides of the street

Number of Operators per Vehicle: 2 (drive/load)

Truck Design: Single compartment, rear loader, GPS and anti-idling enabled

Compaction: Yes, limited to 5 tonnes/load (summer) and 4 tonnes/load (winter)

Loading process: Manually lifted and loaded

Work Week Structure: 5 days a week

MRF Facility: Municipally owned, operated by Niagara Recycling, a non-profit corporation

MRF Contract: currently under review and is being extended on a month-to-month basis until Spring ‘07

Building and Equipment: New equipment as of 2004, building structure is older

Number of streams processed: 2 (fibres/containers)

Labour (FTEs): Containers – 20, Fibres – 14 , Maintenance – 2, QC – 2, NTEC clients – 8

Capacity: 50,000 tonnes/year on one shift

Niagara Region Blue Box ProgramProcess Map

Collection TruckBlue/Grey Box

Strengths Findings Opportunities

Two-box system is considered very effectiveHigh quality P&E materials, in multiple languagesLow collection costs, compared to groupHigh proximity to markets, leading to higher revenuesLarge capacity boxes

High processing costs and lower recovery rate, compared to groupAlternate week collection may not be optimalMisaligned interests between Region and processing contractorProcessing capacity may exceed actual throughputLack of free container replacement policy Lower than expected fiber revenues, given proximity to markets2004 Audit is not representative, due to program changes

Gain collection efficiencies by converting to a two-stream, biweekly collection process Improve the utilization of processing equipment by increasing volumes and having a second shiftImprove diversion levels and curbside cleanliness by providing replacement blue/grey boxes free of charge Seek competitive pricing on processed materials, specifically fibersUtilize front end loading containers at depots and schools to gain loading and compaction efficiencies

MRF






ProcessMap–Processing










FutureState

This section of the document contains Best Practices

applicable to your program, visual depictions of major

components, and opportunities for improvement

ApplicableBestPracticesForthepurposesofthisproject,BestPracticesaredefinedaswastesystem

practicesthataffectBlueBoxrecyclingprogramsandthatresultintheattainmentof

provincialandmunicipalBlueBoxmaterialdiversiongoalsinthemostcost-effective

waypossible.

Inthecourseofthisproject,wehavedeterminedthatnotallBestPracticesare

universal;theyaremostlycircumstantial.Asaconsequence,wedevelopeda

DecisionTreeapproachtoidentifyBestPracticesthatapplytospecificprograms,

basedonasetofpredefinedprogramcharacteristics.

YourprogramcharacteristicsthatwereusedintheDecisionTreeanalysisareas

follows:

• SouthernOntarioBasedProgram

• Generatingover40,000tonnesperyear(46,996totaltonnes)

• HavingaHouseholdDensitybetween10and70homesperkilometresofroads

(32hhld/km)

Theresultofouranalysisindicatesthatyourmunicipalitycouldpotentiallyadoptand

benefitfromanumberofthefundamentalBestPracticesidentifiedbythestudy

team.Alistofthesebestpracticesispresentedbelow,withabriefdiscussionofthe

applicabilityofeachtotheparticularcircumstancesinNiagaraRegion:

Up-to-date plan for recycling as part of an integrated waste

management system

Itisimportanttomaintainandimplementanup-to-dateplanforrecyclingaspartof

anintegratedwastemanagementsystem.Suchaplanwillensureastrategic

managementfocusthatwhencombinedwithcomplimentarywastereduction,

organics,reuse,energyfromwaste,andwastediversionincentives(baglimits,user

pay)willresultinarobustBlueBoxprogram.NiagaraRegionisintheprocessof

completingaServiceLevelReview,whichwillbecompletedbysummer2007.

Basedonitsoutcome,aWasteDiversionStrategyisbeingdeveloped,whichwill

identifyhowNiagaraRegionwillachieveitsdiversiontargetof65%bytheyear2012.

NiagaraRegionisalsoinvolvedinanEnvironmentalAssessment(EA)partnership

withtheCityofHamiltontofindalong-termdisposalsolutiontocombinedresidual

wastes(afterdiversion),whichshouldbecompletedbytheyear2013.Itshould





ensure,however,thatanydisposalplandoesnotnow,orinthefuture,impacton

theabilitytocapturemorematerialsfordiversionthroughreduction,reuse,recycling

andcomposting.

Multi-municipal planning approach to collection and processing of

recyclables

Amulti-municipalplanningapproachoffersparticipatingjurisdictionstheopportunity

toestablishacommonlistoftargetmaterialsandsimilarcollectionprogramsso

thereisconsistencyinprograms.Currently,theRegionoperatestherecycling

collectionandprocessingsystemonbehalfofallofitslower-tiermunicipalities.The

Regionalsoacceptstwo-streamrecyclingmaterialsforprocessingfromother

Ontariomunicipalities(somecontainersfromOrilliaareshippedtotheNiagaraMRF).

Inthepast,periodicdeliveriesfromPeelandHamiltonwerealsoacceptedatthe

MRF.However,bringinginmorematerialsforprocessingcouldimprovetheMRF’s

equipmentutilizationrates.

Defined performance measures including diversion targets and

monitoring

Havingaplanisofonlylimitedbenefitiftherearenotdefineddiversiontargetsand

performancemeasures,supportedbydatacollectionandanalysisthatmeasurethe

effectivenessoftheplananditsimplementation.Itiswithsuchprogrammonitoring

thatsounddecisionscanbemadebasedonlocalprogramdata,withinaframework

ofacontinuouslyimprovingtheprogram.TheRegionisplanningfora65percent

diversionratetargetby2012.TheRegionuseswasteauditsandincomingmaterial

qualitycontrolandmonitoringtomeasureprogramperformance.

Optimization of operations

Performancedata,onceobtainedandanalyzed,allowfortheoptimizationof

operations.Thebenefitsofoptimizationincludebalancedroutesandpayloads,

reducedcollectiontime(andthereforereducedcollectioncosts),andlesscostly

processing.TheRegionhasdemonstrateditscommitmenttooperationoptimization

throughthechangesinthesystemwithregardstoco-collection,compaction,glass

management,andtheMRFoperationsreview.Thecollectioncontractorcurrently

usesrouteoptimizationandGPStoreducetimeonrouteandcosts,resultingin

mosttrucksonlymakingonetripperdaytotheMRF.Additionaloptimizationactions

thatcouldbeconsideredincludediscontinuingalluseofbluebagsandothernon-

conformingcontainersforresidents,schools,anddepotsinordertoimprove

collectionefficiencies.Regardingprocessing,aMRFoptimizationstudyiscurrently

underwaytoassesswhetherthefacilityisoperatingatoptimallevels

Key program staff adequately trained in the core competencies

required for each duty

Thesitevisitteamfoundnogapsinstaffknowledgeandtraining.Duringthesite

visit,staffdemonstratedathoroughknowledgeoftheirprogram’scollectionand

processingsystem.






Following generally accepted principles for effective procurement,

contracting, and contract management

Administrationandtenderingbestpracticesincludeensuringkeyprogramstaffare

adequatelytrainedinthecorecompetenciesrequiredforeachduty,andfollowing

generallyacceptedprinciplesforeffectiveprocurement,contracting,andcontract

management.TheRegionusesoutsidecontractorstoprovideservices.All

indicationswerethattheprofessionalstaffwerewellversedintheobjectivesofthe

contractingprocessandtheadministrativeframeworktocarryoutthoseobjectives.

Atwoenvelopesystemisusedtoevaluateproposalsandtenders.Thecollection

contracthasa5-yearterm,duetoexpirein2009.PertheRegion’spurchasingpolicy

forcontractsoveracertainvalue,atenderprocesswillbeused.Inthenextcontract,

theRegionshouldconsiderspecifyingatermthatalignsthecontractlengthwith

equipmentdepreciationschedules(usually6-8years)toensurethattheprogram

doesn’tfullypayforequipmentthatmayhaveadditionallifeattheendofthe

contract.

Appropriately planned, designed and funded P&E program

AneffectiveP&Eprogramconsistsofaresearchbasedapproachtodeliveringacore

messagetoatargetedaudiencetomeetaspecificgoalontimeandonbudget.The

Regionhastwostaff,eachworkinghalf-timeonP&E,alongsidetheRegion’s

CorporateCommunicationsDepartmentandwiththeAssociateDirectorof

CollectionandOperations.Messagesaretargetedandfocused.Differentethnic

populationsareincluded.ExpendituresonP&Eareadequateforaprograminthis

grouping.TheeffectivenessofP&Eeffortsismeasuredbycustomer(resident)

feedback,contractorfeedbackandthequality/quantityofincomingrecyclablesatthe

MRF.Materialsaredistributedveryeffectivelytoalllower-tiermunicipalitiesinthe

Regionandtoallresidentsservedbytheprogram.

Policies established and enforced that serve to induce waste

diversion

PoliciesusedbytheRegionincludemandatoryrecycling;ananti-scavengingby-law;

andaby-lawbanningrecyclablesandorganicsfromlandfilldisposal.TheRegionalso

hasoneofthelowestsetoutgarbagelimits–twocontainersperhouseholdper

week.Policiesareenforcedbytwofull-timeWasteManagementBy-Law

EnforcementOfficers

Expanded list of Blue Box materials accepted

Toachieve60%diversionofBlueBoxmaterialsthereisaneedtocollectthefive

mandatoryBlueBoxmaterialsaswellasseveralofthe“supplementary”BlueBox

materialsthat:compriseasignificantportionofthewastestream(asdeterminedby

wasteaudits),havereliablemarkets,andcanbepracticallyrecoveredforrecycling.

TheRegion’sprogramaccepts13commodities,includingpolystyreneand

polyethylenefilm(pleaseseeAppendixforguidanceonrecyclingpolystyreneand

polyethylenefilmmaterials)





Extended hours workday for collection

Anextendedcollectiondaymeansthatthenormalworkingdayforcollectioncrews

islengthened.Individualsgetintheirweeklyhoursinfourdaysperweekinsteadof

five.Mostmunicipalitiesintheregionprovide5-dayperweekcollectionservice,

exceptsomethatreceive4-dayservice.Sincethecollectionfunctioniscontracted

out,itisassumedthatthecontractoroptimizesitsoperationswithrespectto

collectionschedule.

Use of optical sorting equipment

TheRegion’sMRFcurrentlyprocessesover45,000tonnesannually.Ifthisvolume

isprojectedtograduallyincreaseandoperationisabletofullyutilizetheprocessing

equipment,opticalsortingmaybecomeviableoption.ItappearsthatinNiagara’s

currentstate,lowutilizationofequipment(onlyoneshift)maynotjustifyoptical

sorting.However,aMRFoptimizationstudyisunderway,whichmayinvestigate

thispracticeaspartoffutureregionalexpansionofMRFcapacity.

Single stream collection of Blue Box materials (alternatively, two

stream collection of fibres and containers)

Single-streamrecyclingmaybecomemoreeconomicallyattractiveasthevolumeof

processedmaterialsescalateswithtimeandimprovedrecyclinghabitsofresidents.

SincetheMRFunderwentasignificantupgradein2004with$13.3incapital

expenditures,itisnotlikelythatsinglestreamrecyclingwillbeconsideredinNiagara

inthenearfuture.However,thecurrentMRFoptimizationmayproducescenarios

whereasingle-streammodelisaviablealternativefortheRegion.

OpportunitiesforImprovement

Incremental – Short-Term

Incrementalimprovementopportunitiesincludechangesthatcanbeimplemented

immediatelyoroverthenext6-12months.Typically,theyresultinnoticeable

improvementwithoutsignificantstrainonresources.

• NiagaraRegionmayfinditadvantageoustorequestinformationfromAbitibion

thevolumescollectedthroughthepaperretrieverprogram.Mostlikelyany

impactonrecoveryrateswillbelow,butthiswillallowtheRegiontofullyaccount

fortheamountofpaperrecovered.Theprojectteamacknowledgesthatthishas

beenattemptedinthepastandtheRegionmaynotbesuccessfulagain.

However,withthecontractexpiryintheFallof2007,theRegionmayrequestthis

informationaspartofapotentialcontractrenewal.

• ProvidefreereplacementBlueandGreyboxestoresidentsonanas-neededbasis

toincreasetherecoveryofrecyclablematerialsthroughincreasedcapacityand

considerhaltingthepolicyofallowingrecyclablestobesetoutinothercontainer

types(e.g.,cardboardboxesandplasticbags)BlueandGreyboxesshouldalsobe

proactivelydistributedfreeofchargetonewandexpandingneighbourhoodsand

toresidentsthatmovetoNiagaraRegion.FreeBlue/Greyboxesdemonstrateto

residentsthatthemunicipalityisprioritizingrecycling,leadingthemtochange






behaviouranddivertmorematerials.Furthermore,increaseduseofstandardized

containerswillyieldcollectionefficiencies,asloaderscantransfermaterialsfrom

thecurbtothetruckeasier.Themunicipalitycouldlimitthenumberoffreeboxes

tooneperyeartoavoidmisusebytheresidents.

• RequestaWDOfinancialaudittobeconductedontheRegion’sprogram.

AlthoughtheRegion’s2004Datacallwasauditedin2006,aspartoftheWDO’s

audits,2004dataisnolongerrelevant,astheprogramhasundergoneasignificant

transformationinconstructinganewfacility,developingaglasspulverizationline,

andalteringModernCorporations’contracttoincludeArea1.TheRegionwill

benefitbyunderstandingtheproperallocationmethodsforDatacallsubmission,

whichmaydecreaseitsprogramcostand,correspondinglytheE&Eratio.

• Eliminatethepracticeofacceptingbluebagsascontainerforrecyclablematerials.

Whiletheyarenolongerpromotedbytheprogram,bagsareacceptedby

contractorsatthecurb(bluebagswereobservedbytheteamontheMRFtipping

floor).DuetotheissuestheycauseattheMRF,thebagsaddcost,strain,and

inefficiencytoprocessing.Ifimplemented,thefreeBlueandGreyboxesshould

provideenoughcapacitytoresidentstolasttwoweeksbetweenpickups.

• AsthepaperpurchasingcontractwithAbitibiissettoexpireattheendof2007,

theRegionshouldbeginconsideringotheralternativeswithinthepapermarketfor

itsfibrematerials.DuetoitsproximitytomajorOntariomunicipalities,theRegion

mayreceiverevenuesthatexceedthosefromAbitibi.

Transformational Medium- and Long-Term

Transformationalimprovementopportunitiescanbeimplementedoverthenext1-3

years.Theyusuallyrequiresizeableeffortandresourcesandwillresultinsubstantial

improvementstotheprogram.

• Forthenextcollectioncontract,theRegionshouldconsideralternativestoits

currentalternateweekcollectionprocessforBlueandGreyboxes,includingabi-

weeklytwostreamprocessusingco-collectionorweeklycollection.These

alternativesmayresultinsavingsonthecollectioncontractduetothefactthat

vehiclesdon’ttraveldownthesameroadeveryweek,ormayincreasediversion

duetotheincreasedconvenienceofweeklycollectionatapproximatelythesame

cost.

• Forthenextcontract,theRegionshouldevaluatechangestothecollectionfleet

torequirethatthecontractoremploycollectionvehicleswithcollectioncapacity

matchingtheoptimalcompactionratioofmaterials,and/ortrucksthatwouldallow

thecollectionprocesstobedonebyasingleoperator.Suchchangescouldyield

significantlaboursavingswithlittleornoimpactontheservicelevel,andallow

moremeaningfulcostcomparisonswithothermunicipalitiesinthegrouping.

• Forschoolanddepotcollection,theRegionshouldconsiderusingcontainersthat

couldbemechanicallytippedintothecollectiontruck.Front-loadingvehicleswork

wellforthispurpose,astheyincreaseloadingefficiencybyminimizingmanual

labour,decreasingloadingtime,andtakingadvantageofitscompactioncapability.





• InordertobetteraligntheobjectivesoftheRegionandofNiagaraRecycling,

RegionofNiagarashouldconsiderandevaluatecompensationandremuneration

methodologythatprovidesincentivesandmotivationtothecontractortodecrease

cost,increasediversion,andaddvalue.Someofthecomponentsofsuch

methodologymayincludehavingalowerfixedpaymentcomponentandhigher

variablepaybonus,avariablecomponenttiedtoresiduerates,aperformance

managementframework,andacontinuousimprovementmechanismattheMRF.

EffortsarebeingmadebytheRegiontodevelopamoremotivationaland

accountablecompensationstructure.

• EvaluatetheMRFoptimizationstudyintermsofpossiblechangestoincreasethe

degreeofmechanizationattheMRFandoptimizethesortingprocess.

• WhilesomethirdpartymaterialshavebeendeliveredtotheMRFinthepast,the

Regionshouldcontinuetoseekoutnewsourcesofrecyclablesinorderto

maximizetheuseoftheprocessingequipment,facility,andlabourandbringthe

operationuptofullcapacity.Processingvolumescouldbedoubledbyinstitutinga

secondshiftattheMRF,withonlyamarginalincreaseontheoverheadcost.

Consequently,thebuilding,equipment,andmanagementtimewillbeallocatedto

alargervolumeofmaterial,significantlyloweringthecostpertonne.TheRegion

canchargeothermunicipalitiesandICIcustomersforprocessingtheirmaterialsor

acceptmaterialsfreeofcharge,whileretainingmarketingrevenuesforprocessed

materials.






ImplementationRoadmap

In this section, we provide information on how to

transition from the Current State to the Future State

ImplementationTimelinesBelowaresuggested,high-leveltimelinesfortheopportunitiesforimprovement

identifiedinthisreport.

ID Task Name Duration

2007 2008 2009 2010

Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2

1

2

3

6

7

8

13

37wShort Term Opportunities

4wAccount for Paper Retriever Program

12wConsider Free Box Policy

12wConsider Paper Market Options

154.2wMedium and Long Term Opportunities

26wReconsider Alternate Collection Frequency

104wMaximize Use of Capital Investment in MRF

12wEliminate Blue Bag Practice

12wRequest a WDO Audit

5

4

26wReview Truck Types Needed For Collection

26wReview MRF Process Flow and Ergonomics

13wReview Management Agreement with MRF

52wReview the Depot Type of Equipment Used

9

12

11

10





ImplementationRequirements

Resource Requirements

Staffing

• Managementtimetofostertherelationshipwiththelocalmillandnegotiatethe

sharingofinformationandanewsupplyagreement

• Managementtimetoreviewthereplacementboxpolicyandbluebagpractice

policy

• Stafftimetoenforcequalitycontrolrequirements

• Stafftimewithaconsultanttoreviewthecollectionequipment,staffing,and

frequency.Theywillalsobeneededtoreviewthedepotprogram,theMRF

managementagreement,andtheMRFoptimizationstudy

Assets

• Possibleequipmentchangeand/orrelocationintheMRFespeciallyifsingle

streamisadopted.

• Possibleequipmentchangeindepotprogram

Supplies

• Asupplyofcontainersmaybeneededifnewpolicyisadopted

Financial Requirements

Specificimplementationcostsforsuggestedopportunitiesforimprovementcannot

bedeterminedwithoutdetailedplanninganddesign,andconsiderationoftotal

systemcostimplications.Thatlevelofanalysiswasbeyondthescopeofthe

projectteam’svisittoNiagaraRegion.Additionalfinancialresourcesmaybe

requiredinthefollowingareas:

• Consultantsmaybeneededtoassistinassessingpotentialchangesinthe

presentcollectionsystem

• ProcurementofnewBlueandGreyboxes,aspartofthefreecontainer

replacementpolicy

ImplementationBenefitsBasedontheteam’sobservations,experience,andanalysisdonetodate,

implementationoftheopportunitiesforimprovementhasthepotentialtoyieldthe

followingbenefits:

• Increasedprogramparticipation

• IncreasedrecoveryofBlueBoxmaterials

• Lowerresiduerates

• Lowercostsduetooptimizationofcollectionandprocessingfunctions

• Lowerunitcostsduetohigherutilizationofprocessingcapital






Appendix

This section contains documentation to support information in this report

CurrentCollectionAreaBlueArea–WeeklyAlternatingBlueandGreyBoxstreams

Green–Biweekly,twosteamscollectedtogether





FacilityCentralizationFirstBlueLine–Halfhourdrivingdistance

SecondBlueLine–Onehourdrivingdistance






BestPracticeDescriptionsTheinformationinthisappendixreflectsourMay18,2007DraftFinalReporttitled

“BlueBoxProgramEnhancementandBestPracticesAssessmentProject“.Forthe

futureupdatesandthelatestinformationonBestPracticespleaserefertothe

WasteDiversionOntariowebsiteatwww.wdo.ca.

Large Suburban Southern Blue Box Program

Overview

ThisProgramProfile,pairedwiththeFundamentalBestPracticeandSpotlight

summaries,isdesignedtoprovidegeneralguidancetomunicipalitiesonhowto

design,manage,andoperatetheirBlueBoxprogramsunderBestPractices.Itis

specificallytailoredtoprogramsofdefinedsize,density,andgeographyinorderto

enhanceapplicabilityofBestPracticesandincreasethelikelihoodoftheiradoption.

Program Characteristics

ThefollowingcharacteristicswereusedtodefinethisProgramProfile:

� GeographicalRegion:Southerncommunity

� SizeofProgram:Generatingover40,000tonnesperyear

� ResidentialDensity:Between10and70homesperkmofroads(mixed

urbanandrural,orsuburban)

Applicable Best Practices

EachoftheFundamentalBestPracticeslistedinthetablebelowappliestoallBlue

Boxprograms.Thesepracticesareintroducedinthetextbelow,anddescribedin

greaterdetailintheseparateFundamentalBestPracticesummaries.

ConditionalBestPracticesthatapplytoeveryprograminthisprofilearealsolistedin

thetable.SeveralotherConditionalPracticesarebestforsome,butnotallprograms

inthisprofile.Thesepracticesandthespecificconditionsunderwhichtheyapply

arediscussedbelow.Leadingpracticesarepresentedinboldtype,foreaseof

reference.Additionalguidanceregardingpracticesthatmaybebestundercertain

circumstancesisalsoprovidedforconsideration.Lastly,supplementarybest

practicesguidanceforspecificprogramareas(e.g.,collection,processing,depotand

multi-residentialrecycling)canbefoundinthe“Spotlight”summaries.

FUNDAMENTALBESTPRACTICES–applicabletoallprogramsinallprofiles

� Developmentandimplementationofanup-to-dateplanforrecycling,aspartof

anintegratedwastemanagementsystem

� Multi-municipalplanningapproachtocollectionandprocessingrecyclables

ProgramProfile

UseofProgramProfile

Thisdocumentisintendedtoprovide

generalguidance,notdetailed

prescriptiverecommendations,on

howanygivenprogramshouldbe

structured.

TheProjectTeambelievesthatby

adoptingBestPracticesoutlinedin

thisdocument,recyclingcoordinators

willimprovetheperformanceoftheir

BlueBoxprogram.However,the

degreeofimprovementwillvary

acrossmunicipalities,asmultiple

factorscontributetooverallprogram

performance.Furthermore,more-

detailedguidancemaybeneededby

somecommunitiestoensurethat

practicesaretrulyimplementedina

BestPracticesfashion.





� Establishingdefinedperformancemeasuresincludingdiversiontargetsand

monitoringandacontinuousimprovementprogram

� Optimizationofoperationsincollectionsandprocessing

� Trainingofkeyprogramstaffincorecompetenciesrequired

� Followinggenerallyacceptedprinciplesforeffectiveprocurementandcontract

management

� Appropriatelyplanned,designed,andfundedpromotionandeducationprogram

� Establishedandenforcedpoliciesthatinducewastediversion

CONDITIONALBESTPRACTICES–applicabletoallprogramsfittingthisprofile

� ExpandedlistofBlueBoxmaterialsaccepted

Program Planning and Design

Programshavingthisprofilearelarge,complex,andurban/regionalinnature.The

challengeinthisgroupistoachievediversiongoalsandmaximizeefficient,cost-

effectiverecyclingservicestoallresidents.

Programsinthisgroupareeitheramajorregionalpopulationcenterorarapidly

growingregionattheedgeofamajorurbancenterthatstillhasruralportionsatits

outskirts.Landfillspaceiseitherexceptionallycostlyorisalreadylostto

development.Itisimportanttomaintain and implement an up-to-date plan for

recycling, as part of an integrated waste management system.Suchaplanwill

ensureastrategicmanagementfocusthat,whencombinedwithcomplementary

wastereduction,organics,reuse,energyfromwaste,andwastediversionincentives

(baglimits,userpay),willresultinarobustBlueBoxprogram.Additionalelements

ofaplanforrecyclingaspartofanintegratedwastemanagementsystemcanbe

foundinthecorrespondingFundamentalBestPracticessection.

AlthoughaprogramwithinthisgroupingwillbeabletosupportitsownMRF,all

suchprogramswillbenefitfromamulti-municipal planning approachtocollection

andprocessingofrecyclables.Thisisespeciallythecaseforprogramshandling

closeto40,000tonnesperyear,whocouldhostaregionalMRF,sothataggregation

ofblueboxtonnagewillresultinlargerMRFsofhigherthroughput,therebylowering

per-tonneprocessingcostsforallparticipatingcommunities.Amulti-municipal

planningapproachalsooffersparticipatingjurisdictionstheopportunitytoestablisha

commonlistoftargetmaterialsandsimilarcollectionprograms.Thiswillcreate

consistencyamongneighbouringmunicipalities,whichfacilitatespublic

understandingregardingwhatandhowtorecycle.Thisisparticularlyimportant,as

residentsoftenrelocatebetweenneighbouringjurisdictions.Afurtherbenefitisthe

abilitytodevelopcontingencyplanswithneighbouringjurisdictions.Additional

discussionofthedetailsofamulti-municipal planningapproachcanbefoundinthe

correspondingFundamentalBestPracticessection.

Havingaplanisofonlylimitedbenefitiftherearenodefineddiversion targets and

performance measures, supported by data collection and analysisthatmeasure






theeffectivenessoftheplananditsimplementation.Performancemeasuresand

datatobeobtainedincludemonitoringofdiversionamounts,conductingwaste

audits,andconductingparticipationstudies.Itiswithsuchprogrammonitoringthat

sounddecisionscanbemadebasedonlocalprogramdata,withinaframeworkofa

continuouslyimprovingtheprogram.Additionaldiscussionofperformancemeasures

andprogrammonitoringcanbefoundinthecorrespondingFundamentalBest

Practicessection.

Performancedata,onceobtainedandanalyzed,willallowfortheoptimization of

operations.Thebenefitsofoptimizationincludebalancedroutesandpayloads,

reducedcollectiontime(andthereforereducedcollectioncosts),andlesscostly

processing.Duetothesizeofprogramsinthisgroup,thereareopportunitiesto

investincapitalequipmenttoautomatetherecyclingprocessandincreasetherate

atwhichBlueBoxmaterialsarecollectedandprocessed.Specificopportunitiesthat

applytoprogramsofthisprofilearefurtherdiscussedintheCollectionand

ProcessingsectionsofthisProgramProfile.

Forcommunitieswithinthisprofile,programsdesignedtoachieve60%diversionof

BlueBoxmaterialswouldneed to collect the five mandatory Blue Box materials

as well as several of the “supplementary” Blue Box materialsthat:comprisea

significantportionofthewastestream(asdeterminedbywasteaudits),havereliable

markets,andcanbepracticallyrecoveredforrecycling.

Forprogramsover40,000tonnesperyear,singlestreamcollectionandprocessingis

feasible.Singlestreamrecyclingoffersthepotentialforincreasedcollectionsavings

andincreasedrecoveryofrecyclables,butalsoresultsinincreasedprocessingcosts

and,dependingonthecontainertypeused,increasedcontamination.Despitethe

recentgrowthinsinglestreamsystems,itwouldbeamistaketoassumethatthe

singlestreamrecyclingapproachrepresentsthemosteconomicalalternativeforall

communities.Insomecases,otherapproaches,suchasthedual-stream,two-bin

recyclingapproach,mayprovetobemoreeconomical.Thisconclusionunderscores

theimportanceofusinglocaleconomicandmarketdatainassessingtheeconomic

feasibilityofsinglestreamrecyclingforalocalcommunity.Refertothe

correspondingBestPracticeSpotlightsformoreinformationonCollectionand

Processingconsiderationsrelatingtosinglestream.

Collection

Curbside collection of recyclables should be used to service all available

curbside-eligible households in the community. Drop-off depots should be

utilized to collect overflow Blue Box materials and additional recyclable

materials for which curbside collection is not practical or cost-effective. Depots

mayalsobewarrantedinoutlyingvillagesintheremainingruralportionsofthe

region.SupportingBestPracticesrelatedtodrop-offdepotsarediscussedinthe

correspondingBestPracticeSpotlight.

Theurbanportionsofprogramsofthisprofilewilllikelyhaveasizablemulti-family

population.Collection of multi-family recyclables needs to be a substantial part





of this program. On-site collection of recyclables should be used to service all

available multi-family households in the community, and should be integrated

with curbside collection of recyclables wherever possibleinordertoensure

programsuccess.Becauseoftheuniquechallengesofmulti-familyrecycling,

associatedbestpracticesarefurtherdiscussedinthecorrespondingBestPractice

Spotlight.

Providing sufficient rigid collection containers free of chargetoresidentswill

ensurethatoverflowmaterialsarenotdisposed.Selectionofthesizeand/ornumber

ofcontainersneedstotakeintoconsiderationestimatedsetoutvolumeof

recyclables,basedonthefrequencyofcollection.Mostprogramswillprovide

weeklyorbi-weeklycollectionofrecyclables.Collection of Blue Box materials

should be at least as frequent as waste collection.

ThesizeofprogramswithinthisprofileallowsfortheconstructionofaMRFthatis

capableofprocessingrecyclablesthathavebeencollectedsinglestream.Froma

processingperspective,singlestreamcollectionofrecyclablesisnotpreferredover

twostreamcollection,becausetheprocessingcostpertonneandprocessresidue

rateswillbehigheratasinglestreamMRFcomparedtoanequivalenttwostream

MRF.Singlestreamcollectioncosts,however,canbesignificantlyreduced,

comparedtotwostreamcollection(assuminguseofcartsandbi-weeklyservice),

andthepointatwhichthecombinedcollectionandprocessingcostfavourssingle

streamisapproximately40,000tonnesperyear.

Singlestreamcollectioncanbenefittheremoteportionsoftheregiondueto

reducedcollectioncosts.Furthermore,becausetransferofrecyclablesmaybecost-

effectivefortransportingmaterialsfromremotepartsoftheregion,handlingBlue

Boxmaterialsinasinglestreamcanminimizeglassbreakageduetothecushioning

propertiesofpaperandplasticproductsasmaterialsaretipped,loadedintoa

transfertrailer,andtippedagain.

Collectingmaterialssinglestreamallowsothercollectionpracticestobe

implementedthatcansignificantlyreducethecollectioncost.Oneofthese

practicesiscontrolled compactionthatallowscollectiontobemoreproductive

becausetruckscanstayonroutelongerbeforefilling.Thecompactionneedstobe

controlledsothatthepressureissufficienttoachieveareasonableamountof

volumereduction,withoutover-compactingthematerials.Over-compactionresults

inglassbreakageandflatteningofroundcontainers,whichcancausetheautomated

systemsinasinglestreamMRFtobelesseffectiveinseparatingflatpaperproducts

fromroundcontainers.Compactioncanalsobeusedintwostreamcollection;

however,theper-householdcostforcollectioninsinglestreamsystemsistypically

lessthancomparabletwostreamsystemsbecausematerialscanbeloadedintoa

singlestreamtruckinlesstime.

Anothercollectionpracticethatisenabledbysinglestreamcollectionisproviding

programparticipantswithcartsfortheirBlueBoxmaterialsinsteadofbins.The

significantlygreaterstoragevolumeofcartscomparedtobinsmeansthatoverflow

BlueBoxmaterialsaretypicallynotdiscarded,althoughsomeexceptionsmayoccur.






Thecartsalsoallowforevery-other-weekcollectionofBlueBoxmaterials,with

reducedcollectioncost,comparedtoweeklycollection.Theuseofcartsalsoallows

forfullyautomatedcollection,inwhichamechanicalarmpicksupanddumpsthe

cartwithoutthedriverhavingtogetoutofthetruckforthemajorityofstops.This

canallowforcollectingmorestopsperhour,yieldingfurthercostsavings.Because

machineryisdoingtheheavylifting,amoreageandgender-balancedworkforcecan

beusedandWSIBclaimsaretypicallyreduced.Inareaswherefullyautomated

collectionisimpractical(e.g.,duetoobstaclesimpedingcollection),semi-automated

collectionofrecyclablesincartsmaybeanoption.

Itshouldbenotedthatmanyofthepracticesthatareenabledbysinglestream

collectioncanbeachievedbytwostreamsystemsthatcollectpaperproductsand

containersonanalternatingweekbasis,includingcompactionanddualcollection.

CollectingonanalternatingweekbasisdoesnotmeanthattheMRFonlyprocesses

paperproductsoneweekandcontainerstheotherweek;ratheritmeansthathalf

theroutescollectonematerialandtheotherhalfofroutescollecttheothermaterial

onanygivenday.ThisallowstheMRFtobeoptimallysized.Becausesolidwaste

plannersseektooptimizeanentireintegratedsolidwastesystem,atwostream

BlueBoxsystemmaybepreferredoversinglestreamiftotalsystemcostsare

reduced.Plannersofprogramssimilartothisprofileshouldcarefullydeveloptheir

businesscasesupportingtwostreamcollectionoversinglestreamcollection.

Additionalopportunitiesforimprovingcollectionefficienciesandreducingcoststhat

applytoprogramsmatchingthisprofileincludetheuse of route optimization

software and providing carts or dumpsters at multi-family complexes.These

andothercollectionoptimizationpracticesaremorefullydiscussedinthe

correspondingBestPracticeSpotlight.

Processing

Partnership and transfer opportunities should still be explored for all programs

with this profile.Anycommunitywithaonetotwo-hourhauldistancetoaMRF

shouldconsidertheuseoftransfertopotentiallyreducesystemcoststhrough

economiesofscaleduetoincreasedthroughputresultingfrommulti-municipal

cooperation.

Additionally,MRFsinthisprofileshouldinvestigatethesuitabilityofprocessing

paperandplasticswithopticalsortingequipment,asutilizationofthatequipment

maybeaBestPracticeundercertainconditions.Typically,theuseofopticalsorting

equipmentisfeasibleinonlythehighestthroughputfacilities.Inthecaseofoptical

sortingofplastics,theequipmentisdesignedforsortingplasticbottlesonlyand

thereforeisgenerallynotsuitabletosortingamixedplasticsstreamthatincludes

tubsandlidsandpolystyrene.Opticalsortingofpaperisstillsomewhat

developmentalandautomatedsortingofpapermaybelimitedtoonlycertain

facilities,basedonhowmaterialsaresortedintosub-streams.Otheroptimization

strategiesforMRFsaremorefullydiscussedinthecorrespondingBestPractice

Spotlight.





Training

BestPracticesincludeensuring key program staff are adequately trainedinthe

corecompetenciesrequiredforeachduty.Thisisdiscussedindetailinthe


Procurement and Contract Management

BestPracticesincludefollowinggenerally accepted principles for effective

procurement and contract management.Thisisdiscussedindetailinthe


Abestpracticethatappliestothisprofileisthealignmentofservicecontractlengths

withequipmentdepreciationterms.Thispracticeisconditionalontheprogram:(1)

contractingwithaserviceproviderratherthanusingmunicipalstaff;and(2)

specifyingthattheserviceproviderprovidenewcollectionequipmentordesignand

buildanewMRF.Thereasonforaligningthecontractlengthswithequipment

depreciationtermsistoensurethattheprogramdoesn’tfullypayforequipmentthat

mayhaveadditionallifeattheendofthecontract.InthecaseofMRFs,theterm

shouldbealignedwiththefirstscheduledmajoroverhauloftheplant’sequipment.

Asuitablylongtermalsoensuresthatequipmentisinstalledthathasalifecyclecost

advantagethatmaynotberealizedbythecontractoroverashorteroperatingperiod.

Promotion and Education

Aneffective promotion and education (P&E) programleadstohigherresident

participationrates,improvedmaterialquality,lowerresiduerates,andincreased

customersatisfaction.AvarietyofP&Estrategiescanbeemployedbymunicipal

programstoachievedesiredprogramgoals,asdescribedinthecorresponding

FundamentalBestPracticessection.

Furthermore,toincreaseprogrameffectiveness,municipalitiesmayneedto

coordinateP&Eactivitieswiththeirneighbours.Multi-municipalP&Eenables

participatingcommunitiestohaveacommonlistoftargetmaterialsandsimilar

collectionprogramsinneighbouringjurisdictions.Whencombinedwiththe

availabilityofmassmediaforprogramsofthisprofile,amulti-municipalmassmedia

campaigncanbeemployedthatallowsforconsistentpromotionofmessages,as

residentscontinuallyrelocatebetweenneighbouringjurisdictions.

Policies and Incentives

Inordertoachievethe60%diversiontargetsetbytheProvince,programsinthis

categorywillneedto use incentives and policies that promote waste diversion.

Suchtoolsmayincludesolidwastebaglimits,userpayprogramforwaste,and/or

enforcedmandatoryrecyclingbylaws.Eachcommunityneedstoevaluateitswaste

diversionplansandinitiativestodeterminetherightbalanceofeconomicandnon-

monetaryincentives.Adetaileddiscussionofpoliciesandincentivesthat,when

establishedandenforced,servetoinducewastediversioncanbefoundinthe







FundamentalBestPractices

TheProjectTeamidentifiedeightFundamentalBestPracticesthatapplytoall

municipalrecyclingprogramsinOntario.Theseareasfollows:

• Developmentandimplementationofanup-to-dateplanforrecycling,aspartofan

integratedWasteManagementsystem

• Multi-municipalplanningapproachtocollectionandprocessingrecyclables

• Establishingdefinedperformancemeasures,includingdiversiontargetsand

monitoringandacontinuousimprovementprogram

• Optimizationofoperationsincollectionsandprocessing

• Trainingofkeyprogramstaffincorecompetencies

• Followinggenerallyacceptedprinciplesforeffectiveprocurementandcontract

management

• Appropriatelyplanned,designed,andfundedPromotionandEducationprogram

• Establishedandenforcedpoliciesthatinducewastediversion

EachoftheseFundamentalBestPracticesisdescribedindetailinthissection.





Development and Implementation of an Up-to-date Plan for

Recycling, as Part of an Integrated Waste Management System

Overview

Arecyclingprogramplanthatresultsfromathoroughplanningprocessisastrategic

andpracticalguideforthedesign,management,operation,andoptimizationofa

community’sBlueBoxprogram.Tobeeffective,itshouldreflectcareful

examinationofallprogramcomponents,anddirectgoalsetting,actionsteps,and

resourceallocationtoachievemeaningfulresultsovertime.Implementationofa

well-conceivedplanisfacilitatedbyanoverarchingvision,purpose,anddirection,

allowingsynergiestoberealizedacrossoperational,geographical,andpolitical

boundaries.Therecyclingplanmaybeastandalonedocumentormaybe

incorporatedintoalargerintegratedwastemanagementplan.

Key Benefits and Outcomes

Programplanningisalong-terminvestmentthatwillresultinthefollowingbenefits:

• Aclearvisiontoguideprogramdevelopment

• Definedprogramgoalsandobjectivesagainstwhichprogresscanbemeasured

• Focuseduseofstaffandmonetaryresourcesaimedatachievingcost-effective

results

• Clarificationofwhatisneededtoproactivelybringaboutchangeratherthanjust

reacttochange

• Provisionofa“roadmap”onhowtomeetprogramneedsandobjectives

• Enhancedoperationalandpoliticaldecision-makingprocess

• Integrationofsolidwasteservices,leadingtolowersystemcosts

• Overallimprovedprogrameffectivenessandefficiency

Description of Best Practice

Integratedwastemanagementisdefinedasacombinationoftechniquesand

programstomanageallmunicipalwastestreams.CriticaltothesuccessofanyBlue

Boxrecyclingprogramisup-frontplanningofhowtheprogramwillbedevelopedand

implemented,withtherecognitionthatBlueBoxrecyclingisanintegralpartofthe

overallwastemanagementsystem.

Thevalueofrecyclingprogramplanningcomesnotjustwiththedevelopmentofa

document,butisrealizedduringtheprocessofplanningitself.Whilethenatureand

extentoftheplanningprocesswillvary,dependingonthelevelofresources

availableforplanningandthecomplexityofprogramsbeingplannedfor,planningis

fundamentaltoallprograms.

FundamentalBestPractice






Regardlessofthesizeorcomplexityoftheplanningdocument,arecyclingplan

shouldaskandprovideanswerstofourbasicquestions:

1 Wheredowewanttobe?

2 Wherearewenow?

3 HowdowegetfromCurrentStatetoFutureState?

4 Howdowemeasure/trackourprogress?

Thekindofinformationthatcanbepresentedtoanswereachofthesequestionsis

providedbelow.Theamountofinformationandthedegreeofitsdetailwillvarywith

programsizeandresourcesavailableforplanning.

1. Where do we want to be (Future State)?

Thiscomponentoftheplanestablishesalong-rangevisionforhowtherecycling

programwouldlook,iffullyandsuccessfullyimplemented,andsetsthegoalsand

objectivesoftheprogramtobeachievedduringtheplanningtimeframe.Typical

planninghorizonisaroundthreetofiveyears;however,programplanningcanhavea

longertimeframe–fivetotenyears–dependingontheextenttowhich

infrastructureisneeded.Animportantpartofthisplanningstepistoengage

communitystakeholdersinthevisioningprocess,sothattheresultantvisionis

sharedbyall.

Equallyimportantisrecognizingthatrecyclingasjustonecomponentofanoverall

wastemanagementsystem.Theentiresystemshouldbeaimedatminimizing

wastegenerationandcapturingvaluableenergyandmaterialresourcesfromwaste

priortodisposingofmaterialsthatcannotbetechnicallyand/oreconomically

recoveredforfurtheruse.Establishinganintegratedwastemanagementsystem

anddeterminingtheappropriateroleforrecyclingwithinthatvisionservesasaguide

tofurtherrecyclingplanninganddecision-making.

2. Where are we now (Current State)?

Developingananswertothisquestionwillentailareviewandassessmentofthe

currentrecyclingandrelatedwastemanagementprograms,operations,and

activitiesincluding:

• Populationandrecyclablematerialstonnageprojectionsfortheplanningperiod,

estimatesofcurrentdiversionlevels

• Adescriptionofthestrengthsandweaknessesofallaspectsoftherecycling

programandrelatedpolicies,procedures,facilities,andoperations.Thisreview

shouldincludeanassessmentofthecurrentandprojectedcapacityofthe

recyclablematerialshandlinginfrastructure,anassessmentofrecyclable

materialsmarketconditions,andmarkettrends,andanycircumstancesor

conditionsthatmayaffecttheprogramoverthecourseoftheplanningperiod

• Documentingcurrentcostsforprograms





• Identifyinghowthecurrentrecyclingprogramworksinconjunctionwithother

wastemanagementprograms

• Identifyingremainingneedsandgapstobeaddressed

3. How do we get from Current State to Future State?

Withrespecttoansweringthisquestion,plansshoulddescribethestrategiesand

actionstepstobeusedinordertoaddresstheidentifiedneedsandgapsandmeet

theBlueBoxprogram’sgoalsandobjectives.Topicstobeaddressedinthe

developmentoftheseplanstrategiescouldinclude:

• Potentialprogramandpolicyoptions

• Opportunitiesforcooperation(bothinternalandexternal,withrespectto

neighbouringjurisdictions)

• Opportunitiesforcoordinationandintegrationofrecyclingprogramsand

operationswithothercomponentsoftheresource/wastemanagementsystem

• Opportunitiesforpublic/privatepartnerships

• Clarificationoftherolesandresponsibilitiesofvariousstakeholders

• Costing/budgetestimatesandfinancingapproach

• Continuousimprovementsmeasures

• Animplementationtimetablereflectingshort,midandlongtermplanning

milestones

4. How do we measure/track progress?

Toaddressthisplanningquestion,plansshouldoutlinethemethodstobeusedto

measuretheBlueBoxprogram’sprogressandperformanceresults.Having

performancemeasuresandtrackingperformanceagainstthesemeasureswill

ensurethatcontinuousimprovementwillbeanintegralpartofthesystem.Thiswill

include:

• Adoptionoftheplanbytheappropriatedecision-makingbodies

• Identifyingthemeansbywhichdataandinformationcanbecapturedtomeasure

progresstowarddefinedprogramtargets

• Timelinesforreviewoftheprogramandtherecyclingplanitself

Programplansshouldincludespecificdiversiontargetsagainstwhichprogram

effectivenesscanbemeasured(seeBestPracticeonPerformanceMeasurement).

Implementation

Anymunicipalityshouldbeabletodevelopabasicrecyclingplanandwillbenefit

fromdoingso.Thekeyaspectindevelopingaplanistomatchtheplantothe

programneeds,sizeandcomplexity.Thereisno“onesizefitsall”solutionfora

plan,butagoodplanningprocesswillhavethefollowingcommoncharacteristics:






• Isflexible,applicabletotheprogramanduserfriendly

• Isparticipatory--hastheinvolvementofallthekey“stakeholders”intheplanning

processand,ultimately,theirsupport

• Ispracticalandrealisticwithrespecttogoals,objectives,resourcesandoutcomes

• Accountsforbudgetandresourceallocationsandlimitations

• Providesforrealisticandachievablerecommendationsfortheprogram

• Establishesandensuresaccountabilityforresults

• Leadstoresourcedecisionsandacknowledgestherealityofthelimitationsof

financialandotherresources

• Isnotstatic–theprocessandplanhavetobereviewedandrevisedonaregular

basis

• Isnotdoneinisolationofotherplanningprocesses,suchasforotherwaste

managementsystemcomponents,aswellasforbroadermunicipalplanning,

suchascommunitymasterplanning

Lastly,arecyclingplanshouldaddressandincorporateelementsfromotherdefined

BestPractices.

Source and Links

“Preparing a Waste Management Plan – A methodological guidance note”

http://www.eukn.org/eukn/themes/Urban_Policy/Transport_and_infrastructure/Techni

cal_infrastructure/Waste_collection/Waste-management-plan_1002.html

“Guidelines for Strategic Planning”,USDepartmentofEnergy

http://www.orau.gov/pbm/links/sp-guide.pdf

“Guide to the Preparation of Regional Solid Waste Management Plans by Regional

Districts,”MinistryoftheEnvironmentEnvironmentalProtectionDivision,British

Columbia:http://www.env.gov.bc.ca/epd/epdpa/mpp/gprswmp1.html#s17

EuropeanTopicCentreonResourceandWasteManagement

http://waste.eionet.europa.eu

OntarioCentreforMunicipalBestPractices

http://www.amo.on.ca/Content/ocmbp/PolicyIssues/WasteManagement/default.htm





Multi-Municipal Planning Approach to Collection and Processing

Recyclables

Overview

Awidely-recognizedprincipleofbusinessisthatsignificantefficienciesand

economiescanbeobtainedfromlargerscaleactivities.Thesameprincipleappliesto

recyclingprograms.Therefore,itisconsideredafundamentalBestPracticefor

municipalitiestoexploreamulti-municipalapproachtoplanningrecyclingactivities.

Considerableamountofindustryresearchanddataanalysisindicatesthatnearlyall

municipalitiescanbenefitfromaco-operativeapproachtoplanningand/orproviding

recyclingservices.


Manycommunitieshavefounditadvantageoustoworkco-operativelyinproviding

solidwastemanagementservices.Workingjointly,municipalitiescanincrease

bargainingpowerwithprivateserviceprovidersforcollectionandprocessingof

recyclables.Poolingresources,suchasprocessingequipment,collectionequipment,

orfacilities,canresultinincreasingequipment,labour,and/orfacilityutilization,

therebyrealizingfinancialandoperationalefficiencies.

Co-operationbetweentwoormoremunicipalitiesisbecomingmorecommonas

municipalitiesfaceincreasingbudgetaryconstraints.Co-operativeplanningcanlead

toimprovedperformanceacrossvirtuallyallrecyclingprogramcomponents,

enhancingeffectivenessandefficiencyinthefollowingareas:

• Economiesofscale

• Increasedresidentparticipation/satisfaction

• Optimizedprogramfunding

• Sharedstaff/time/costs/skills/equipment

• Improvedsupplier/contractorrelations

• Reducedneedformanagementsupervision

• Reducedneedforcounciltimeandattention

• Increasedcapacitytoadoptnewtechnologiesandmethods

• Materialmarketsandpricingadvantages,yieldinghigherrevenues

• Increasedinnovationinstrategies,servicesandproducts

• Sharedriskmanagement

• Sharedcapitalrequirements

FundamentalBestPracticeFundamentalBestPractice







Whilemulti-municipalcooperationcanyieldpositiveresultsinallcircumstances,its

applicabilityishighestwhen:

• Municipalitieswithintheregionareinneedofthesamesetofservices

• Jurisdictionshaveworkedtogethersuccessfullyinthepast

• Responsibilitiesandrolesareclearlydefined

• Thereareclearadvantagestoworkingcooperatively

• Entryandexitprotocolsforcontractualrelationshipsareclearlydefined

Asuccessfulmulti-municipalplanningapproachwillfocusonsupportingmunicipal

objectives,including;

Cost Containment

Economiesofscalecanresultindramaticsavingsformunicipalitiesduetovolume

discounts;standardizedequipmentsize,features,andspecifications;standardized

servicelevels;andpromotionandeducationsynergies.Forexample,a2006,

cooperativecollectioncontractamongsixmunicipalitiesinYorkRegionreportedly

resultedinannualBlueBoxandwastecostsavingsofover$900,000.

Improved Quality and Productivity

Municipalitiesthatsharesomeoftheworkloadacrossamultitudeofcomponentsof

arecyclingprogramcanlowertheirunitcostanddevelopstaffexpertisethrough

commonresources.Thisoftenresultsinimprovedqualityandconsistencyofthe

servicesdeliveredandincreasedstaffproductivity.Adesirablebonusobtainedfrom

interactionwithknowledgeablestaffisanincreaseinresidentsatisfactionwiththe

program,which,inturn,resultsinincreasedparticipationanddiversion.

Transferability

Multi-municipalcooperationcanresultingreaterresidentparticipationandsmoother

operationoftherecyclingprogram.Asresidentscommuteandrelocatefromone

communitytoanother,commonmessagesthroughco-operativepromotionand

educationandcommonservicelevels/proceduresmakeiteasyforresidentsto

maintaintheirparticipationanddiversionlevels.

Overtime,costreductionswillberealizedthroughstafftimeandpromotional

savingsobtainedfromlessre-educationandreducedcollectionrejections.

Contaminationlevelsoftendecreaseanddiversionismaintainedorincreasedasa

resultofthediminishedneedtoeducateresidents.

Competitiveness

ManymunicipalitiesstruggletoattractbiddersforrecyclingRFP’sortenders.One

obviousbenefitofmulti-municipalplanningistotakeadvantageofthelargertonnage

offeredunderco-operativecontractstoattractmorebidders,aswellasnon-local

bidders.WDODatacallstatisticsconfirmthatrecyclingcostsaresteeplyreduced





whengreaterquantitiesofmaterialsarecollectedandprocessedabovea10,000

tonnesperyearthresholdlevel.Clearly,themoretonnagethatcanbecombined

underasinglecontract,themorecontractorsarewillingtoparticipateandtopasson

savingstomunicipalities.

Theinversealsoholdstrue.Acontractthatrequireshalfatruckperweektocollect

ismuchlesslikelytoattractmultiplebiddersthanacontractthatrequiresfivetrucks

perweek.

Market Revenue

Revenuesforlargeramountsofrecyclablesoftenincreasebecauseofshipping,

storageandhandlingeconomies.

Recyclablemarketsareusuallywillingtopaybetterpricesforalarger,continuous

supplyofgoodqualitymaterial.Amulti-municipalapproachtoplanning/marketing

materialmayprovidesomeofthesebenefits.

Implementation

InordertoimplementthisBestPractice,municipalitiesareadvisedtofollowa

seven-stepapproachoutlinedbelow:

1 Identifyserviceneedsofeachpotentialco-operatingjurisdiction

2 Identifyandcommunicateadvantagestoworkingco-operatively

3 Identifyandimplementcommunicationandworkingprotocolsamongpotential

cooperatingmunicipalities(asteeringcommitteeorataskgroupmaybe

required)

4 Determineanddocumentclearlyhowthemulti-municipalprogramwillbefunded,

usingfinancialprojectionsandabusinessplan

5 Identifythegovernancestrategiesforprovidingforaccountability,monitoring,and

decision-makingauthoritytoparticipatingjurisdictions.Thesemayincludea

utility-typeboard,asub-committeeofmunicipalrepresentatives,amunicipal

corporation,oracombinationoftheabove.

6 Identifycosts(andcostsavings)associatedwiththeco-operativeprogram,using

financialprojectionsandbusinessplanfromStep4.

7 Testmulti-municipalstrategiesinlow-riskcircumstances,suchasajoint

advertising,containerpurchasing,promotion&education,etc.,andbuildon

successesofsuchefforts

Co-operativerecyclingactivities,moreoftenthannot,simplyentailestablishinggood

contractsthatalignwithactivitiesandservicesmunicipalneighboursarealready

providing.Communicationisthekeytoengagingintheco-operativeplanning

process.

Forexample,itispossibletobeginaco-operativeplanningprocessbysynchronizing

theexpirydateofneighbouringmunicipalcontracts,sothatwhenthenexttenderis

issued,contractorsmaybidonmultiplecontractssimultaneously.Municipalitiesmay






ormaynothavedifferentservicelevelsandfeaturesundereachcontract.Such

minimalmulti-municipalplanningmayresultinconsiderableeconomiesofscalefora

supplierwhoisoftenwillingtoshareaportionofsavingswiththemunicipalitiesin

ordertowinthebid.

Anotherexampleistheco-operativepurchasingofblueboxes.Sincesupplierswill

almostalwaysoffervolumediscounts,savingscanbeobtainedsimplyby

coordinatingannualbluebox(oranyotherprogramconsumable)purchase

requirements.

Nocrossgovernancestructures,utilityboardsorjointventuresarerequiredto

participateintheseormanyothertypesofrecyclingactivities.

Potential Challenges and Suggested Solutions

Municipalitiesoftenhavereservationsaboutplanningactivitiesandserviceswith

communitiesoutsidetheirownboundaries.Concernsfrequentlycenteronlossof

autonomy.Staffandcouncilmaybeconcernedthattheydonotwanttolosecontrol

oftheirprogram.Suggestedsolutionstoovercometheseissuesare:

• Exploreopportunitiesforshareddecision-makingandmanagementauthority;and

• Clearlydocumentrolesandresponsibilities,suchthatcontrolisnotlost,but

economiesaregained.

Anotherfrequentconcernisthatservicesprovidedareoftendifferentinsurrounding

jurisdictions.Suggestedsolutionstoovercometheseissuesare:

• Considersomeprogramsthatyoucouldworktogetheron.Shareeducational

items,forexample,orsharemodelcontractsorcommunicationliteraturethat

canbeadjustedtosuitindividualprograms;

• Considerwhyprogramsaredifferent,andifitmightbemutuallybeneficialtojoin

forces,evenifitmeansalteringaprogram;and

• DesigncontractsandRFP’stoprovidefordifferentservicesindifferentlocations.

Sources and Links

Therearenumeroussourcesofonlineinformationthatwillofferhelpwithmulti-

municipalplanningactivities.Belowaresomeidentifiedsourcedocumentation/links

foradditionalinformation:

BlueBoxAssistanceTeam(A-Team)

http://www.vubiz.com/V5/Stewardship/bluebox.htm

AssociationofMunicipalRecyclingCoordinatorshttp://www.amrc.ca

WasteDiversionOntariohttp://www.wdo.ca

StewardshipOntariohttp://www.stewardshipontario.ca

Recyclers’KnowledgeNetworkhttp://www.vubiz.com/stewardship/Welcome.asp





Establishing Defined Performance Measures, Including Diversion

Targets, Monitoring, and a Continuous Improvement Program

Overview

Propermanagementofarecyclingprogramincludesthemonitoringand

measurementoftheprogramgoalsthroughtheestablishmentofdiversiontargets

andperformanceobjectives.Targetsandobjectivesmustberealistic,measurable

andrelevant.Furthermore,targetsandobjectivesareneededfortheindividual

programcomponentstobeevaluated(e.g.,curbsidecollection,depots,processing,

promotionandeducation,etc.)Evaluationfacilitatescontinuousimprovementwithin

therecyclingprogram.


Effectivemonitoringandevaluationallowsprogrammanagerstocontinuously

improvetheirmunicipalrecyclingprogramsandtrackprogressthroughtheuseof

targetsandperformancemeasures.Specifically,programstaffareableto:

• Setobjectivesandtargetsforrecyclingprogramsthatareimplementedand

evaluatedwithinadefinedtimeperiod

• Collectspecificprogramdatatoevaluatetheeffectivenessofrecyclingprograms

beforeandafterimplementation

• Makedecisionsonrecyclingprogramsbasedonadetailedanalysisofdiversion

ratesandassociatedcosts

• Evaluateprogramobjectivesagainstthepre-definedtargets

• Tailordatacollectedtomatchthespecificgoal,avoidingthecollectionofdatathat

arenotpertinent

Description and Implementation of Best Practice

Themonitoringandevaluationprogramshouldbedevelopedwithappropriate

resourcestogatherandevaluatetherequiredinformation.Thecollecteddatamust

berelevanttotherecyclingprogramandthetargetsetmustbemeasurable.The

effectivenessoftherecyclingprogramshouldbeevaluatedandgoalsshouldbeset

forcontinuousimprovement.Specificstepsforimplementationaredetailedbelow.

Step 1: Establishing Program Objectives

Objectivesandtargetsmustbereasonablyestablishedbythemunicipalitytomeet

therequirementsofthespecificprogramtowhichtheywillapply.Thedesired

outcomesandtheassociatedbenefitstotheprogramshouldbedefined.The

targetsmustbemeasurableandachievable,butchallenging,andleadtoincreased

benefits.Anexampleofsettingprogramobjectivesandtargetswouldbethesetting

ofadiversiontarget,establishingstepstomeetthetarget,andthenmonitoringthe







diversionratetoevaluateifthetargetisbeingmet.Ongoingassessmentsofthe

targetsandobjectivesmustbemadetoensurethattherecyclingprogramgoalsare

beingmet.

Step 2: Baseline Measurements and Waste Audits

Inevaluatingprogramperformance,itisoftendesirabletofirstestablishabaseline.

Thisbaselinewillbespecifictotheprogramunderconsiderationandcanbeusedto

comparethefutureperformanceoftheprogram.Datacollectedaspartofthe

baselinemustbeappropriatelysuitedtoaccomplishtheobjectives.Understanding

thespecificwastestreamthattheprogramistargetingisacriticalfirststep.Thisis

generallyaccomplishedthroughthecompletionofwasteaudits.Wasteaudits

determinethecompositionofwastebeinggenerated,canmeasurethe

effectivenessofexistingprogramsandcanidentifyopportunitiesforimprovements

inthewastemanagementprogram.PleaserefertotheStepbyStep:WasteAudits

linkinthesourcedocumentationreferencesectionforthisfundamentalleading

practice.

Step 3: Defining Data Requirements

Bestpracticesassociatedwithprogramevaluationareaimedattrackingprogram

effectiveness(howsuccessfulhastheprogrambeeninachievingitstargetgoalsand

objectives)aswellasefficiency(theextenttowhichtheprogramaccomplishedits

objectiveswithminimaluseofresources).

Indefiningdatarequirements,thefollowingquestionsshouldbeanswered:

• Willthemeasuretrackprogramoutcomesasopposedtojustoutputsandinputs?

• Isthemeasureforabsoluteimpactsorrelativeimpacts?

• Caninformationpertainingtothemeasurebegatheredsystematically,

consistently,andobjectively?

• Istheresufficienttimeandresourcestogather,organizeandinterpretthat

informationinordertotellameaningfulstorytotheevaluationaudience?

• Willtheintendedaudiencesperceivethemeasureascredible?

• Willtheknowledgegainedthroughuseofthemeasurebeuseful(e.g.,for

programimprovement,adjustmentinfunding)?

Typesofdatacollectedcanconsistofset-outrate,capturerate,participationrate,

residuerate,materialtonnages,costallocation,recyclablemarketstatistics,MRF

residueaudits,MRFproductivitystatistics,staffrequirements,facilityrequirements,

supplies(i.e.,blueboxes),andequipment.Selecteddefinitionsareprovidedinthe

lastsectionofthisBestPracticenarrative.

Step 4: Data Collection and Management

Nextdeterminehowthedatawillbegatheredandstored.Differentdatacollection

methodsincludemechanical(scales),surveys,focusgroups,visually,etc.If

appropriatedevelopadatabasetostorethedatainasecurelocation.Throughout





themonitoringphaseevaluatethedatabeingcollectedtoensurethattheyare

relevanttomeasuringthedesiredoutcome,andaccurate.Monitorthestepsaspart

ofthetargetandifrequired,adjustthestepsandtargetasdataisevaluated.

Step 5: Assessment and Reporting

Compilethedataandanalyzeitbycomparingtothebaselineinformation.Assess

themonitoringandevaluationprogramagainstthedesiredandmeasurableoutcome.

Reportontheoutcomeoftheobjectivesandtargets.Identifyandanalyzethe

factorsthatinfluenceyourprogram’sabilitytomeetestablishedgoals.Overall,use

thefindingstoidentifybarrierstorecycling,assessprogramperformancerelativeto

theobjectives,assessMRFperformance,andimprovetheeffectivenessofthe

recyclingprogram.Onceagoalismet,continuouslybuildandimproveonfuture

goalsfortheprogram.

Step 6: Reviewing Goals and Objectives

Evaluationforcontinuousimprovementisanongoingactivity.Programperformance

mustbemonitoredatappropriateintervals,oftendeterminedbytheneedsof

individualprogramcomponents.Theeffectivenessofpriorevaluationmethods

shouldalsobeevaluated,sothatthisprogramcomponent,too,canbeimproved

upon.

Select Definitions

Capture Rate–Thecapturerateistheamountofrecyclablessetoutforrecycling

dividedbythetotalamountofrecyclablessetoutforrecyclingplusrecyclablesleftin

thegarbage.Captureratescanalsobecomparedforeachmaterialtype.

Participation Rate–Theparticipationrateistypicallydefinedasthepercentageof

householdsonacurbsidecollectionroutewhosetoutrecyclablesatleastonceina

consecutivefourweekperiod.ItisdifferentfromSet-OutRate(seebelow),asit

measuresthepercentageofresidentsparticipatingintheprogramingeneral,not

necessarilyoneverygivencollectionday(somehouseholdsmaynotgenerate

enoughrecyclablestoset-outtheBlueBoxoneverycollectionday).

Residue Rate–Thepercentofmaterialinarecyclingstreamthatisrejectedduring

processing.

Set-Out Rate–Percentageofhouseholdsonacurbsidecollectionroutesettingout

recyclablesonthedayofcollection.Asapercenttheset-outrateisthe#of

householdssettingoutrecyclingoncollectiondaydividedbythetotalnumberof

householdsavailabletosetoutmaterial.

Waste Audit–Aformal,structuredprocessusedtoquantifytheamountandtypeof

wasteincludingrecyclablesbeinggenerated.






Source and Links

StewardshipOntario’sPlanYourOwnWasteAuditwebpage:

http://www.stewardshipontario.ca/eefund/projects/audits/waste_audit_own.htm

E&EProject#105–ProtocolforMRFResidualSamplingApril,2006:

http://www.stewardshipontario.ca/pdf/eefund/reports/105/105_tech_memo_2.pdf

E&EProject#164–MarketsHelpDesk(seeAppendixC:ProtocolsandProcedures

forConductingAuditsatthePIWMF)

http://www.stewardshipontario.ca/pdf/eefund/reports/164/164_final_report.pdf

CaliforniaDivisionofRecyclingProjectEvaluationTips:

http://www.consrv.ca.gov/DOR/grants/grant_seekers/ProEval.htm

EvaluationofRecyclingPrograms,EastCentralIowaCouncilofGovernments:

http://www.iowadnr.com/waste/pubs/files/ecicogfinal.pdf

EPAMeasuringRecyclingAGuideforStateandLocalGovernments:

http://www.epa.gov/recyclable.measure/download.htm

StepbyStep:WasteAudits

http://www.wme.com.au/magazine/downloads/WasteAudit_dec2002.pdf





Optimization of Operations in Collections and Processing

Overview

Optimizationofoperationsisaprocessofcriticallyassessingcollectionand

processingfunctionsandmakingchangesthathaveanetpositiveeffectonrecovery

ratesand/orcost.Acombinationofdata-driven,expertise-driven,andheuristic

approachescanbeusedtooptimizeoperations.Wherecollectionand/orprocessing

areoutsourced,closecollaborationwiththecontractor,sufficientflexibilityintheuse

ofcontractorlabourandassets,andthoroughunderstandingofcostdrivers

contributetooptimizationofthesystem.


• Collectionefficiencymeansgettingmoreforless—pickingupmorerecyclables

usingfewertrucks,fewerstaffand/orlesstime.Optimizedcurbsidecollection

operationsmaximizethequantityoftargetmaterialssetoutateachstopon

collectiondayandminimizetheamountoftimerequiredtocollectthatmaterial,

therebyminimizingtheunitcostsinvolved.

• Optimizedprocessingoperationsmakefulluseoftheavailableprocessing

capacity,minimizetheamountofmanualandmechanicalsortingrequiredto

producerecyclableproductsthatmeettargetmarketspecifications,and

maximizethequantitiesofthesematerialsfromtheincomingfeed,while

minimizingtheamountofoutthrows,residueandprohibitivesassociatedwith

thecapturedmaterial.


Optimizationentailsevaluationandimplementationstepsaimedatimprovingthe

performanceandefficiencyofthoseoperationsbeingevaluated.Therearebasic

principlesassociatedwithoptimizationthatapplytobothcollectionandprocessing.

Keyprinciplesareasfollows:

• Haveanintegratedapproachtodesignandmanagementofoperationssoasto

takeadvantageofopportunitiestosharefacilitiesandotherresources,suchas

thoseassociatedwithP&Eprogramdesignandimplementation,andreducethe

costsofthesystemasawhole

• Pursuethe“lowhangingfruit”first:optionsthatprovidethegreatestreturnon

investmentwithrespecttomeetingoperationalperformanceandefficiency

targetssetbythejurisdiction(seeBestPracticeonMonitoringandEvaluation)

• Useexistinginfrastructureasappropriatepriortoestablishingadditional

infrastructurethatmayduplicateorcompetewiththatalreadyinexistence

• Provideforareasonabledegreeofredundancytominimizedowntime,while

avoidingunnecessaryduplicationofinfrastructure.Anexampleofthisistohave







sparecollectionvehiclesorarrangeforaneighbouringprocessingfacilityto

acceptmaterialintheeventofprocessingfacilitydowntime

• Matchthescaleandnatureofoperationalinfrastructuretothetaskathandand

useappropriatetechnology–therighttoolforthejob

• Balancetheuseofmechanizationwithuseoflabour

• Avoiddoublehandlingofmaterials(e.g.,movingmaterialsfromplacetoplace

withinaMRFwhenconveyorscoulddothejobmorecost-effectively)

• Provideincentivestoworkersandcontractorsforspawninginnovationand

continuousimprovement.Onemeansofdoingthisistoofferspotbonusesfor

ideasthatgeneratesignificantcostsavings

• Useergonomic,workerfriendlyequipmentandsystems,suchassorting

conveyorsofproperheightandwidth,comfortablesafetyequipment,andgood

lightingandairconditioning

• Maintainaflexibledesignandoperationalapproachtorespondtochangingneeds

andcircumstances

• Makeanappropriatelevelofcapitalinvestmenttomaximizebenefitsoverthe

longtermatareasonablepaybacklevel

• Utilizeapreventativemaintenanceprogrambyservicingequipmentpriorto

breakdownsinsteadoffixingituponbreakage,thusreducingdowntime

• Addressoperationalissueswhentheyarisebyunderstandingtheunderlying

causes,developingpotentialsolutions,andminimizingadverseimpact.An

exampleistointroducecompaction-enabledcollectiontruckswhenlowmaterial

densityhasbeenidentifiedasanissue

• Provideappropriatelevelsofmanagementandsupervisorypersonnelwhoare

trainedonoptimizationtechniquesanduseofBestPractices

• Planandprovideforemergencies,contingencies,andgrowth

Inworkingtooptimizeoperations,itisimportanttorecognizethatotherobjectives

beyondoptimizationmeritfocusandattention,suchasprovidingforworkersafety

andacceptableworkingconditions,andprotectingpublichealthandwelfare.

Consequently,optimizationmustbeperformedinamannerconsistentwithmeeting

othersuchimportantcommunityobjectives.

Additionaloptimizationbestpracticesandconsiderationsspecifictocurbside

collectionandprocessingareprovidedinseparatesectionsonthesetopics.Best

practicesfordepotandmulti-familyrecyclingprogramsarealsodiscussedin

separatesectionssotitled.





Sources and Links

E&EFundProjectNumber207.YorkCollectionandProcessingOptimizationStudy,

2006

http://www.stewardshipontario.ca/eefund/projects/benchmark.htm#207

EfficientRecyclingCollectionRoutinginPictouCounty,2001

http://www.cogs.ns.ca/planning/projects/plt20014/images/research.pdf

USEnvironmentalProtectionAgency.GettingMoreforLess:ImprovingCollection

Efficiency,1999

www.epa.gov/garbage/coll-eff/r99038.pdf

SingleStreamBestPracticesManualandImplementationGuide,SusanKinsella,

Conservatree,2007

http://conservatree.com/learn/SolidWaste/bestpractices.shtml






Training of Key Program Staff in Core Competencies

Overview

Municipalitiesneedtoensurethatmanagementprogrampersonnelareadequately

trainedonposition-relatedcompetenciesandresponsibilities.Trainingprovidesthe

skillsneededtodevelop,manage,monitor,documentandpromotethenumerous

andcomplexcomponentsofasuccessfulrecyclingprogram.Regardlessofthesize

ortypeofmunicipalprogram,trainingactsasanenablerofperformance,facilitating

theachievementofobjectivesinacost-effectivemanner.


Properstaffingandtrainingleadstoimprovedperformanceinallkeyprogram

components,includingbotheffectivenessandefficiencyinthefollowingareas:

• Residentparticipationandsatisfaction

• Optimizedprogramfunding

• Stafftime/costs

• Supplier/contractorrelations

• Reducedneedformanagementsupervision

• Reducedneedforcounciltimeandattention

• Jobsatisfaction,motivationandmoraleamongemployees

• Processefficiencies

• Capacitytoadoptnewtechnologiesandmethods

• Knowledgeofmaterialmarketsandpricing,yieldinghigherrevenues

• Innovationinbusinessstrategiesandproducts

• Reducedemployeeturnover

• Enhancedmunicipalimage

• Riskmanagement

• Increasedabilitytoattract/promotestaff


Municipalitiesthattakeontheresponsibilityofprovidingrecyclingservicesalso

assumethedutytoprovideadequateamountsoftimefromknowledgeable

managementandoperationsstafftodeliverthoseservices.Itisassumedthatall

municipalitiesandprivatecontractorstrainoperationsstafftolevelsthatensurethe

safetyandefficiencyoftheprogram.






Additionally,municipalitiesneedtorecognizetheimportanceofhavingappropriately

trainedmanagementstafftoeffectivelyperformtheassignedresponsibilities.

Providingadequatestafftimemaybeachallengetosmallermunicipalities,however,

alleffectiveandefficientrecyclingprogramsdependontheavailabilityofenough

timefromknowledgeablepeople.Therefore,allmunicipalitiesareencouragedto

strivefortheappropriatestaffingandmanagementtraininglevels.

Knowledgeablestaffroutinelyachievehigherlevelsofsuccesswithintheirlocal

recyclingprogram,asmeasuredbygreaterresidentparticipationandsatisfaction,

alongwithincreaseddiversionandoptimizedprogramfunding.Businessresearch

showsthatproductivityincreaseswhiletrainingtakesplace(seeendofthissection

forreferences).Staffwhoreceiveformaltrainingcanbesignificantlymore

productivethanuntrainedcolleagueswhoareworkinginthesamerole.Asaresult,

mostbusinessesprovideon-the-jobtraining,whichgenerallyyieldsapositivereturn

oninvestment.

Whilerationaleandobjectivesfortrainingvaryacrossorganizations,municipalities

seekingtoimproveprogramperformanceshouldconsiderfocusingonthefollowing

goals:

Improved quality and productivity

Trainingthatmeetsbothstaffandemployerneedscanincreasethequalityand

flexibilityofmunicipalrecyclingservicesbyencouraging:

• accuracyandefficiency

• strongworksafetypractices

• bettercustomerservice

Enhanced Transferability

Thebenefitsoftraininginoneareacanflowthroughtoalllevelsofanorganization.

Overtime,trainingwillreducecostsbydecreasing:

• wastedtimeandmaterials

• redundantwork

• workplaceaccidents

• recruitmentcoststhroughtheinternalpromotionofskilledstaff

• absenteeism

Increased Competitiveness

Municipalitiesmustcontinuallychangetheirworkpracticesandinfrastructureto

improvediversionandcontainrecyclingcosts.Trainingstafftomanagethe

implementationofnewtechnology,workpracticesandbusinessstrategiescanalso

actasabenchmarkforfuturerecruitmentandqualityassurancepractices.






Inadditiontoimpactingmunicipalcosts,trainingcanimprove:

• staffmoraleandsatisfaction

• inter-staff/departmentcommunicationandleadership

• timemanagement

• customersatisfaction

Effective Recruiting

Trainingaidstherecruitingprocess.Ifamunicipalityiscommittedtotraining,itmay

bemorewillingtohireadesirablecandidatewholacksaspecificskill.Trainingalso

makesamunicipalitymoreattractiveintheeyesofpotentialemployeesbecauseit

showsthemthattheyhaveroomtogrowandacceptnewchallenges.Additionally,

trainingexistingemployeesoftenreducestheneedtohirenewstaff.

Trainingrewardslong-timeemployees.Municipalitiesaremorewillingtopromote

existingemployeeswhohavelearnednewskillsandarereadytotakeonnew

challenges.

Trainingreducestheneedforsupervision.Notonlydoesskill-basedtrainingteach

employeeshowtodotheirjobsbetter,butitalsohelpsthemworkmore

independentlyanddevelopacan-doattitude.

Perhapsthemostimportantbenefitofahealthytrainingcultureisthattheskillsof

yourstaffareformallyrecognizedandtheircontributiontothemunicipalityandthe

recyclingprogramisopenlyvalued.

Staff retention

Trainingincreasesstaffretention,resultinginsignificantcostsavings.Thelossof

onecompetentpersoncanequaltheequivalentofoneyear'spayandbenefits.In

somecompanies,trainingprogramshavereducedstaffturnoverby70percentand

ledtosubstantialreturnsoninvestment.

Implementation

Ontariorecyclingprogramcoordinatorsandseniorstaffneedtheskillsandexpertise

toeffectivelyemployallofthefundamentalbestpracticesdescribedinthisreport.

Suchskillsinclude:

• recyclingprogramplanning,development,evaluation,andcontinuous

improvement

• recyclingservicesprocurementandcontractadministration

• useofpolicymechanismstopromotewastediversionandrecycling,and

promotionandeducation

• operationsplanningandmanagement(wherethemunicipalityprovidesthat

function)





Numerousorganizationsofferopportunitiestoacquiretraining,informationand

networking.

TheAssociationofMunicipalRecyclingCoordinators(AMRC)offersseveralrecycling

conferencesandworkshopseachyear.

WasteDiversionOntario(WDO)offersmanyguidesandinformationalpackagesto

assistwithmunicipalDatacallcompletion,fundingandCAN/OCNAinkindadvertising.

AssociationofMunicipalitiesofOntario(AMO)isanon-profitorganization

representingthemunicipalorderofgovernmentandprovidesavarietyofservices

andproductstomembersandnon-members.

StewardshipOntario,WDO,andAMOregularlyhost"OntarioRecyclerWorkshops"

(ORWs)forOntariomunicipalwastemanagementstaffandprivatesectorservice

providers,aswellasformunicipalcouncillorsandinterestedstewardsofBlueBox

recyclables.Theseworkshopsandwebcastsprovideinformationabouthowto

optimizeWDOfundingtosupportmunicipalresidentialBlueBoxrecyclingprograms.

ProjectstudiesandreportscommissionedundertheEffectivenessandEfficiency

Fundareavailable,alongwithtenderingtoolsandinformationfromtheRecyclers’

KnowledgeNetwork.

TheSolidWasteAssociationofNorthAmerica(SWANA)hasbeenaleadingsource

ofinformationandtrainingprogramsforsolidwasteprofessionalsforover40years.

SWANAofferstrainingandcertificationasaRecyclingSystemsProfessional.

Althoughalloftheaboveorganizationsoffersometrainingandinformationservices,

thereisnocoordinatedrecyclingmanagementtrainingsystemcurrentlyavailablein

Ontario.

Broaderandmorecomprehensivetrainingresourcesandtoolsmaybeimplemented

inthenearfuturetoequipmunicipalrecyclingstaffwithadequateskillstoeffectively

manageandoperateBlueBoxprograms.

Forexample,intheUnitedKingdom,WRAP(theWaste&ResourcesAction

Programme)hasannouncedphasefourofitsfreetrainingcoursesforrecycling

managers.Thetrainingprogram,developedtosupportrecyclingmanagersin

improvingexistingrecyclingschemesandintroducingnewcollectioninitiatives,has

provedverypopular.Inthefirstyearofoperation,25courseshavebeenrunand400

delegatesfromacrosstheUKhavereceivedtraining.

Thethree-dayresidentialcoursesareaimedatpeoplefromlocalauthorities,the

communityandprivatesectorswhomanageordevelopandpromotecollectionsof

recyclableorcompostablematerials.Thecontentfocusesonequippingdelegates

withtheknowledge,skillsandtoolstodevelopcost-effectivesystemswithhigh

participationandrecoveryratesforthecollectionandsortingofmaterialsthatmeet

endmarketrequirements.

Basedonthisandotherexamples,theTeamestimatedthatannualcostsfor

recyclingprogrammanagementtrainingwouldamounttoapproximately$412,000.






Thisassumesthattwostaffmembersfromthelargest40programsandonestaff

memberfromtheremaining150programsneedtobetrained.Training-related

expensesrangefrom$1,600to$2,150perdelegate.

Source and Links

Therearenumeroussourcesofonlineinformationabouttraininganddevelopment.

Belowaresomeidentifiedsourcedocumentation/linksforadditionalinformation:

AssociationofMunicipalitiesofOntariohttp://www.amo.on.ca

AssociationofMunicipalRecyclingCoordinatorshttp://www.amrc.ca

WasteDiversionOntariohttp://www.wdo.ca

StewardshipOntariohttp://www.stewardshipontario.ca

Recyclers’KnowledgeNetworkhttp://www.vubiz.com/stewardship/Welcome.asp

OntarioRecyclerWorkshops

http://www.stewardshipontario.ca/eefund/orw/orw_main.htm

SolidWasteAssociationofNorthAmericahttp://www.swana.org

Researchontrainingintheworkplace:SmithA.,2001,ReturnonInvestmentin

Training:ResearchReadings,http://www.ncver.edu.au/research/proj/nr1002.pdf

2001,AustralianNationalTrainingAuthority.

WRAPlaunchesphase4ofitsrecyclingmanagertrainingprograms.

http://www.wrap.org.uk/wrap_corporate/news/wrap_launches_6.html





Following Generally Accepted Principles for Effective Procurement

and Contract Management

Overview

AvastmajorityofOntarioBlueBoxmunicipalprogramsinvolvetheuseof

contractorsforcollectionand/orprocessingofrecyclables.Sincecontractor

selectionandperformanceinthesemunicipalitieshasasubstantialimpacton

programdesign,servicedelivery,cost,andsustainability,effectivepracticesin

procurementandcontractmanagementneedtobeemployed.


Welldesignedandexecutedprocurementandcontractmanagementprocessescan

yieldanumberofeffectivenessbenefits.Specifically,it

• Ensureshighqualityservicetospecifiedrequirements

• Offersflexibilitytoaddresschangingneeds

• Providesincentivestomaximizeparticipation,tonnageandmaterialrevenues

• Providesapropersystem(orsystemcomponent)designthatincreasesdiversion

atalowercost

• Opensthedoortoinnovation

Efficienciesthatcanbegainedinclude:

• Costsavingsduetoincreasedcompetition

• Costsavingsduetoeconomiesofscale

• Costsavingsduetoproperlystructuredcontractterms


ThemajorityofOntarioBlueBoxprogramsinvolvesomeelementofcontractingof

services.Itis,therefore,essentialtoemployeffectiveprocurementandcontract

managementprocesseswithintheseprogramstoyieldpositiveprovince-wide

diversionandfiscalresults.

Thegoalsofgoodprocurementandcontractmanagementareto:

• Securethedesiredlevelofservicesfromcompetentcontractorsatthelowest

possiblecost,and

• Createaneffectiveworkingpartnershipbetweencontractingpartiesthat

continuesthroughthedurationofthecontract.

Acceptedleadingpracticesforeffectiveprocurementandcontractmanagementto

extractthebestvalueformunicipalBlueBoxcontractneedsinclude:







• Planningprocurementswellinadvanceofservicerequirements.Usefullifeof

existingequipment,leadtimesforreplacingthisequipment,andleadtimesfor

theexecutionoftheprocurementprocessitselfallrequirecarefulconsideration.

Failuretoplanproperlymaymeancostlymaintenanceandbreakdownsandsub-

optimalcontracting.

• Investigatingandunderstandingsuppliers’marketstounderstandtheplayers,

dynamics,costdrivers,andinnovatorsinordertomaximizevaluewhensetting

procurementstrategy.Thisresultsinmunicipalstaffbecominginformedbuyers.

• Involvingsuppliers(inpre-procurementconsultations)tohelprefinerequirements,

whereownexperienceislimited,andtoleverageinnovationandcapabilitiesof

experiencedsuppliers.Thisresultsinmunicipalstaffbecomingsmartbuyers.

• Developingacleardefinitionofservicesandperformancerequirements

• Usingtheappropriateprocurementinstrument,suchasaTenderoranRFP

• Usingacompetitiveprocurementprocessandworkingtoencouragemultiple

proponents/bidders

• Usingatwo-envelopebidprocess(whenaRequestforProposalprocessis

appropriate)

• Usingapre-defined(transparent&fair)bidevaluationprocess

• Usingknowledgeableevaluators.Thismayincludeacross-functionalteam,

supplementedwithindependentexperts,asrequired.

• Apartnership-orientedapproachtomonitoringandmanagingthecontractand

contractortoachieveobjectivesandtakemutualadvantageofopportunitiesfor

improvement

Implementationofaneffectiveprocurementandcontractmanagementinvolvesa

seriesofsequentialsteps.Thesestepsarepresentedbelow:

Step 1: Precisely define services to be contracted

Thisinvolvesdevelopinganswerstoquestionssuchas:

• Whoistheservicerecipient?Isitoneormoremunicipalities?

• Whatservicesaretobeprovided?Whatisthenatureandtypeofservice(e.g.,

collection,processing,transportation,marketingofmaterials,communication

andeducation,programadministrationandoperation)?

• Whatisthelengthofcontract?Forcontractsinvolvingthesupplyofequipment,

thebestcontractsmatchthelifecycleoftheequipmentbeingsupplied.Ifthe

contractistooshort,thecontractormustcapitalizetheequipmentoverthe

periodofthecontract,resultinginlessthanoptimalunitpricingandoverallcost.

Ifthecontractexceedstheequipmentlifebyayearormore,thecontractorwill

incurnewequipmentorexpensivemaintenancecoststhatmustbebuiltinto

theprice.Currentlifecycleexpectationsfornewcollectiontrucksareabout7

years;newmaterialsrecoveryfacility(MRF)equipment10-15years.





Municipalitiesshouldalsoevaluateoptionspriortoproposal/bidprocessthrough

informaldialoguewithpotentialserviceprovidersandotherstakeholders.

Municipalitiesshouldclearlyandspecifically:

• examineweaknessesinpastagreementsandanyissueswithservice

• reviewagreementsfromothercommunities

• identifybothshort-andlong-termneeds

• identifywhereflexibilitycanbeincorporatedwithoutleavingtoomuchopento

interpretation

Programmanagersandprocurementpersonnelshouldprovideadequatedataand

technicalspecificationsforaccuratepricingofservices.Atypicalcollectioncontract

mayinclude:servicestobeprovided,collectionfrequency,streamseparationand

numberofstreams,volumetonnageandtypesofmaterial(fromrecentauditedmix),

futurematerialscontemplated,numberofhouseholds/stopsperkilometrefor

collection;areastobecollected/routemaps.Aprocessingcontractmayinclude:

tonnesperhour,productmix,qualitymeasures(e.g.,bailedmaterialcomposition

thresholds),uptimeasapercentageofoperatinghours,andacceptableresiduerate,

amongotherfactors.

Staffshouldalsoprepareacostestimateofservicesrequestedtoinformthe

procurementprocess–benchmarktootherrecentmunicipalprocurementprocesses

forsimilarservices,wheneverpossible.

Step 2: Determine contractor pool and your market position

Goodresultsaremorelikelytocomefromaminimumof3bidders.Inruralareas,

bargainingpowermaybeimprovedbybundlingservicesorpartneringwithother

communitiestoincreaseattractivenessofpotentialbusiness.Ontheotherhand,if

theserviceareaistoolarge,asmaybethecaseinurbanareas,thiscanalsolimit

contractors.Inthisevent,itmaybedesirabletode-bundleservicesorbreak-upthe

contracttoallowmore,smallerbidderstheopportunitytobidonselectionorentire

system.

Theleveloffinancialinvestmentexpectedmaydeterminethemarketofsuppliers.A

highcapitalinvestmenttypicallyrequiresalongercontractandimpliesmorerisk.

Fewercontractorsmaybecapableofbidding.

Withrespecttorecyclingcollectionandprocessing,theleadingpracticeisto

structuretheprocurementprocesstoallowforseparatecontractingforcollection

andprocessingwhenfeasible.Thisstimulatescompetitionbyencouraging

collectioncontractors,whomaynotbeabletobidonaMRF,toprovidegoodservice

atcompetitivepricesonthecollectionprocess.Withthisapproach,itismost

desirabletohandletheprocurementprocessforprocessinginadvanceofcollection,

ortospecifyaMRFlocation,sothatcollectionserviceproviderswillknowwherethe

MRFwillbelocatedandcanstructuretheirproposals/bidsaccordingly.Quality

controlconcernswhentwocontractorsareinvolvedcanbemanagedcontractually

withappropriatemonitoring,penaltiesandincentives.






Municipalitiesneedtodevelopcontractpaymenttermsthatalignwithincentivesand

desiredperformancelevels.Itshouldbeclearandunambiguoushowadherenceto

contacttermsandachievementofperformancethresholdswillbetiedtopayments

forservices.

Additionally,itisdesirabletoobtainseparatepricesforcollectionandprocessing

evenifunderonecontract,andtorequestpricingforthehandlingofanymaterials

thatmightbeaddedatsomepointduringthetermofthecontract.

Finally,aself-assessmentprocessisneededtodeterminewhetheryourmunicipal

organizationisfairandequitablewhendealingwithcontractors.Investinginand

protectingyourreputationforopen,transparentandfairprocurementpracticeswill

positivelyinfluencethepoolofavailablebiddersonfuturecontracts.

Step 3: Prepare a detailed, unambiguous RFP or Tender

Programsstaffshouldselecttheappropriateprocurementmechanism.Atender

worksbestwhen:

• servicescanbedefinitivelyspecified

• allbiddersarequalified

• priceissoledecidingfactor

ARequestforProposals(RFP)–Worksbestwhen:

• Localgovernmentisreceptivetodifferentapproachestodeliveringservice.This

mayoftenyieldadditionalvalueopportunity

• Priceisnotsoledeterminingfactorincontractorselection

Step 4: Employ a fair and transparent contractor selection process

Ahealthycompetitivemarketiscriticaltoavailabilityofservicechoiceandbetter

valueinprocurement.Localservicemarketsbecomediminishediffairand

transparentprocessesarenotused.Servicechoice,therefore,becomesmore

limitedinthefuture.Municipalitiescaninfluenceandencouragecompetitionand

morerobustsuppliermarketsbyemployingthefollowingactivities:

• Usesuppliermailinglistsandwidespreadadvertisingtosolicitinterestinyour

serviceneeds

• Co-operatewithnearbymunicipalitiestocreatejointopportunitiesthatcould

increasethenumberofsuppliers

• Learnaboutcapabilities/interestsofpotentialcontractorsinadvancebymeeting

withthem

• Considerpre-qualifyingbidders

• Holdpre-proposal/bidmeeting

• Provideadequateopportunitiesforquestions/answersduringproposal/bid

development

Example: Components of a good RFP and Contract

� Clearlydefinedterms

� Detaileddescriptionofservice(s)

tobeprovided

� Adequatebackgroundinformation

anddata

� Expectationsregarding

qualificationsandexperience

� Detailedperformance

specificationsthataddressthe

following:

- Locationofservice

- Regulatorycompliance

- Recyclables(initial&provisions

forfuture)

- Marketsforprocessedmaterials

- Capacity/throughput

- Vehicleaccess,operatinghours,

weighing

- Residuemanagementandlimits

- Startupschedule

- Handlingofcomplaints

- Recordkeepingandreporting

- Equipmentrequirements

- Publiceducationrequirements

� Paymentterms

� Incentives/penaltiestosupport

increasingperformance

� Opportunitiesforamendingscope

toaddresschanging

circumstances

� Avenuesforresolving

disagreements-mandatory3rd

partymediationclause

� Clearfinancial/costproposal

instructions

� Proposalsubmissioninstructions

� Descriptionofselectionprocess

andevaluationcriteria





• Determinedetailedevaluationcriteriaandscoringsystemtobeused

• Clearlydescribeevaluationcriteriainbiddocuments

• Requireandverifyreferences

Potentialcontractorselectionandevaluationcriteriainclude:

• ResponsivenesstoRFPorTender

• Qualifications&experience(organization,management),including

facility/operationalcapacity,financialstability,andreferences

• Technicalsoundnessofresponse

• Cost

• Innovation

Eachcriterionmustbeclearlydefinedandexplainedinthedocumentation.

Mandatoryandpreferredrequirementsshouldalsobespecified.

Evaluateproposalswithaqualifiedteam,whichmayincludebusinessunit&

technicalpersonnel(orqualifiedandindependentconsultants,ifnecessary),

purchasing,andlegalrepresentatives.First,evaluatecompliancewithmandatory

requirementsonapass/failbasis.Then,evaluatecomplianttechnicalresponsesona

pointscaleoronapass/failbasis.Finally,openthepriceenvelopetoevaluateprice

andvalueaccordingtothepre-specifiedevaluationcriteria.Documentevaluations

andfinalrationaleforselection.

Throughawell-executedprocurementprocess,thecontractwillbeawardedtothe

bestoverallscoredproposal(accordingtothepredeterminedbidcriteriaandscoring

process).However,ifactionsorcircumstancesdidnotresultinproperprocurement

(suchasimpropersequenceofresponsecomponentevaluations,failuretocometo

termswiththewinningbidder,failedduediligenceprocesses),theprocessmay

needtoberedone.

Communicateresultstoallbidders,includingstrengthsandweaknessesoftheir

proposals.Forthewinners,thissetsthestageforanyfinalnegotiationsonservices.

Forthelosers,ithelpsthemtoimprovetheirbidsforthenextcompetition,which

benefitsallparties.

Step 5: Negotiate a partnership-oriented contract

Thefinalcontractnegotiationprocesswiththewinner(andifnotsuccessful,the

runner-up)shouldgosmoothlyiftheprocurementwaswell-managed.Well-prepared

RFPsincludeacomprehensivedraftcontractandrequirethesuppliertocommenton

thedraftcontractintheirproposal.Thefocusshouldnowturntosettingthestage

forbuildingasuccessfulbusinessrelationship,positioningbothpartiesforsuccess.

Specifically,themunicipalityshould:

• BuilduponRFPtermsandconditions

• Finalizethestructureofincentivesforimprovingperformance






• Allowflexibilityforamendingscopetoaddresschangingcircumstances,including

technicalorprocessinnovation,meansofaddressingextraordinary

circumstances,suchaschangesinlaw,index-basedmonthlyfueladjustments,

index-basedannualpaymentadjustmentforinflation(e.g.,CPIorPPIwithfuel

componentremoved),adjustmentsforgrowth,etc.

• Provideavenuesforresolvingdisagreements

• Buildinongoingcommunicationandfeedback

Step 6: Maintain partnership approach in contract administration and

monitoring through entire contract term

Successfulrelationshipsrequireattentionandeffortinregularmaintenanceand

communicationbytrained/skilledcontractmanagementpersonnel.Tomaintainand

buildonthepartnership,municipalstaffshould:

• Becomeknowledgeableaboutfactorsaffectingrecoveredmaterialsmovement

andvalue

• Monitorrecyclingmarketpricesandtrends

• Monitormarketsusedandrevenuesreceived

• Continuouslymonitorcontractorcompliancewithperformancespecifications

andcontractterms.Applypre-agreedincentivesandpenaltiesforperformance

• Liveuptoyoursideoftherelationship,includingtheflexibilityarrangements,to

helpyourcontractorbesuccessfulinprovidingyourservice

• Communicateregularlyonpre-agreedscheduleandfrequency

• Addressproblemsassoonastheyarise

• Haveabackupplaniftherelationshipdeterioratesorservicesarejeopardized

Common pitfalls to avoid

Byavoidingpitfalls,municipalitiesincreasethelikelihoodofselectingaqualified

supplieratalowpriceandbuildingalastingrelationshipwiththem.Thefollowing

listincludessomeofthemostcommonpitfallsinrecyclingrelatedprocurement:

• Notusingacompetitiveprocess

• Over-orunder-specification

• Prescribingthe“Howofoperations”versusfocusingonthebusiness,legal&

performancerequirements

• Micromanagingthecontractorsoperationsbeyondensuringbusiness,legaland

performancerequirementsarebeingmet

• Notmanagingthecontractorduetoinfrequentcommunicationandperformance

discussions

• Notprovidingforoperationalflexibilityorforinnovation





• Poorlymatchingequipmentlife-cycleandmaintenanceprovisiontocontract

length

• Poorprocurementplanning,includinginsufficientleadtimeforprocurements

andinsufficientknowledgeofthemarketplace

• Poorlydefinedservicerequirementsandperformancestandards

• Prohibitivebondsandlettersofcredit,whichunnecessarilyreducecompetition

andadddirectlytocost

• Noserviceexitstrategyorcontractlanguage

• Lackoftransparencyandfaircompetition

• Allowingapoorprocurementtoproceed

Sources and Links

RecyclingContractingTipsandToolstrainingmaterialsdevelopedforStateof

Pennsylvania,R.W.Beck,February2006

BestPracticesReview–ContractingandProcurementinthePublicSector,

MinnesotaDeputyStateAuditor,November2005

Modelcollectioncontractsavailableunder“ToolsforRecyclingCoordinators.”

http://www.mass.gov/dep/recycle/reduce/assistan1.htm

BlueBoxResidentialRecyclingBestpractices–APrivateSectorPerspective,AJoint

ProjectofStewardshipOntarioandtheWasteManagementAssociation,Guilford

andAssociates,February2007

StewardshipOntarioModelTenderTool






Appropriately Planned, Designed, and Funded Promotion and

Education Program

Overview

Tobeeffective,amunicipalBlueBoxprogramneedstobesupportedbya

PromotionandEducation(P&E)componentthatisappropriatelydesignedand

funded,andincorporatesspecificaudiences,definedmessages&media,planned

frequencyofcommunication,andmonitoringofresults.Awell-designedand

implementedP&Eprogramcanhaveeffectsonvirtuallyallotherelementsofthe

BlueBoxsystem,includingplanning,collection,processing,marketing,andpolicy

development.


TheimpactsofeffectiveP&Epropagatethroughouttherecyclingprogram.Most

significantbenefitsinclude

• Potentiallyhigherrevenuesformarketedmaterialsduetothelowerdegreeof

contamination

• Higherwastediversionandrecyclablesrecoveryratesoverall

• Establishmentofnewrecyclingbehavioursandreinforcementofemergingor

existingpositivepatternsamongresidents

• Increasedcommunityinvolvementintheprogram

• Setoutofonlythosematerialsthatareacceptedbytheprogram

• Propersetoutofrecyclablesatthecurb,leadingtoincreasedcollection

efficienciesanddecreasedoperatorsafetyissues

• Lowerresidueratesatprocessingfacilities,resultinginhigherrecoveryandlower

costs


PlanningandimplementingtargetedP&Eprogramsthatsupportrecyclingandwaste

diversionarevitaltomunicipalBlueBoxprograms.Expertsinthefieldagreethat

P&Eisoneofthecornerstonesofaneffectiveprogram.Mostrecently,anOWMA

reportstatedthata“unanimousconclusion(ofagroupofprivatesectorcompanies)

isthateffectivepromotionandeducationprogramsaresignificantcontributorstothe

successoftheblueboxprogram.”AnotherrecentE&EFundstudy,aimedat

enhancingBlueBoxrecoveryintheGoldenHorseshoearea,determinedthat

effectivecommunicationandeducationisrequiredto“increasecost-effectivelythe

numberofrecyclablesrecovered…”.Furthermore,astudytitled“BestPracticeP&E

Review”definesandarticulatesanumberattributesthatleadtoasuccessfulP&E

program.Somecontentfromtheabovestudiesisusedthroughoutthisdocument.






ThekeytoeffectiveP&Eliesintheconceptof“appropriateness”–consideringwhat

levelofplanning,research,deployment,andmeasurementisappropriatefor

differentcommunitiesacrosstheprovince.Eachcommunity’sabilitytodesignand

deployP&Eisaffectedbycommunitysize,geography,resources(financial,skills-

basedandtime)andmanyotherfactors.

Thedescriptionthatfollowsattemptstoprovideusefuldirectiontocommunities,as

theyconsiderwhatmaydeterminetheappropriateP&Efortheirprograms,taking

intoaccountfourkeyfactorsthatinclude:

• Design

• Funding

• Deployment

• MonitoringandEvaluation

Design

P&Eprogramsthatcontributetobestpracticesinrecyclingarebasedonacurrent

(andregularlyupdated)communicationsplan,withidentifiedgoalsandmeasurable

objectives.

Ideally,recyclingP&Eprogramsandtargetedcampaignswillberootedina

communicationsplan,basedontargetedcommunityresearch,orifresourcesare

unavailable,onreliableexistingresearchthathighlightscommonfactorsthatare

broadlyapplicable.

Communicationsplansincludeastatementofgoalsandobjectives,targetaudiences,

keymessages,tactics(includingplannedmediaanddistribution),timing,andplans

formonitoringandevaluation.WhilethemajorityofOntariorecyclingprogramsdo

nothaveinplacedetailedorcurrentcommunications,inthecourseofthisstudy,

projectteammembersweretoldbyvariouscommunitiesthattheyintendtodevelop

theseplansinthenearfuture.

TheBestPracticeP&EReviewreport,previouslymentioned,indicatesthatmostof

Ontariocommunitiesconductsomeformofresearchtoidentifytheiraudiences,

themes,targetedmessages,imagesandbrandingbeforerollingoutnew

communicationsefforts.Forcommunitiesthatlacktheresourcestocarryout

targetedresearch,severalresearchdocumentsarecurrentlyavailablethatmay

provideinsightsfromwhichtheymayextrapolate.SeeSourcesandLinkssection

formoreinformationontheseandotherresources.

Funding

Asaruleofthumb,communitieswilldeterminetheleveloffinancialresourcesthey

haveavailable,whethertheyareadequatetocoverfullprogramcosts,and,if

necessary,identifyothersourcesoffundingormodifytacticstoachieveP&E

programgoals.Thebestplancannotbeimplementedifadequatefinancingisnotin

place.






ArecentstudyofeightprogramsthatareconsideredtobeamongtheP&Eleaders,

aswellasofotherwell-performingcommunities,revealedthattheirP&Ecosts,as

reportedinthe2005WDODatacall,rangefromapproximately$0.83to$1.18per

household,withrecoveryrateatorexceeding60%.

Statisticalanalysisshowedapositive,albeitweak,correlationbetweenincreased

P&EspendingandincreasedrecoveryinOntariorecyclingprograms.

Inapplyingtheaboveconclusions,oneneedstotakeintoconsiderationthatP&E

fundingmayvarysignificantlyfromoneyeartothenext,basedontheintroductionof

newservices,newmaterials,additionalprogrammingandseveralotherfactors.

MoredetailsonthecostanalysisareprovidedintheKeyObservationssectionof

thisreport.Promotionandeducationfundingconsiderations,astheyrelatetothe

NetSystemCostunderBestPractices,areoutlinedinVolumeIIofthisreport.

Deployment

P&Einitiativesthatcontributethesuccessofarecyclingprogramemployamixof

media(e.g.,calendars,brochures,radiospotsandothers)overasustainedperiodof

time.Thesevaryaccordingtotheaudience,availablebudget,andresources.

Mix of Media

TheuseofmediareportedbyP&Eleadersmaybegroupedinfivebroadcategories:

• Print(paidads,brochures,calendars,newsletters)

• Broadcast(TV,radioads,PublicServiceAnnouncements)

• Electronic(websites,emails)

• Outreach(specialevents,in-schooleducation,communityeducationcentres,door

todoorcampaigns,landfill/depotcontact,etc.)

• Icons&incentives(BlueBoxesorothercollectioncontainers,magnetsandother

‘gifts’,communitymascotsetc).

ThestrongestandmosteffectiveP&Ecampaignsstrategicallycombinemediaand

tactics.TheBlueBoxProgramP&EReviewreportsuggeststhatwhereverpossible,

communitiesshouldtrytoimplementamulti-tieredapproach,withappropriate

tacticsselectedfromeachofthreetiers:

• Tier1-Radiocomponentsor,ifpossible,TV(vs.printads)

• Tier2-householderdropofcalendarsoruser-friendlytoolsshowcasingwebsite

offerings;complementedby

• Tier3-publicrelationsorword-of-mouthstrategiestoanimatecommunities–

highlyvisibleeventsandactivities,communityandcorporatepartnerships,role

modelidentification,personaltestimonials

Communitiesthatusethisapproachbenefitfromthemassmediaimpactthathelps

buildawarenessandshiftattitudes,combinedwithoutreachthathelpsengage

residentsandcontributestoskill-building.Wherelimitedbudgetsandmediaoutlets





constrainP&Eprogramchoices,theBestPracticeP&EReviewsuggestsfocusingon

alimitedrangeofTier2activities,deployedwithgreaterfrequencytoachieve

greaterimpact.

Sustained & sustainable deployment: Campaignsthatincludeaprogramfor

ongoingandsustainedcontactwithtargetedaudiencesgenerallyhavegreater

impactthanaone-time“blitz.”Year-roundexposureisthetarget.

Communitiesthatlookforandimplementinnovativeandcosteffectivestrategiesto

deploytheirmessagingexpandthereachoftheirmessagingandgetabetter‘bang

fortheirbuck.’Therearemanywaystomaximizedeploymentordelivery

mechanismsincluding:

• Partneringwithothercommunitieswithsimilarmessagingtodesign/deliver

tactics

• Sharingwithcommunitypartnerstodelivermessaging(e.g.,sendingprint

materialswithutilitybills,insertingmessagingintopoliticians’newsletters,

workingwithcommunitygroups)

• Enlistingaknowncommunityspokespersonto‘carrythemessage’

• Combiningpublicrelations(earnedmediacoverage)withother‘cost-based’tactics

(calendars,newslettersetc.)

• WorkingwithappropriatecommunitypartnerstodesignandordeliverP&E

messaging

Messaging:RecyclingP&Ecampaignsthattargetthosewhoarereceptiveto

recyclingandskewtowardthefemaleheadofthehouseholdshowgreatersuccess.

Mostcommunityresidentsareawareofrecyclingandwhattorecycle,particularly

withmaterialsthathavebeenrecycledforseveralyearsnow.Theycontinuetoneed

informationtosupporttheadditionofnewmaterialstorecyclingcollectionprograms.

Theyalsoneedtobemotivatedtotakeaction.

RecentfocusgroupfindingsinseveralGreaterTorontoAreamunicipalitiesindicate

thatdespiteeffortstoprovideinformationaboutrecycling,manymulti-family

residentsremainunaware.Effortstoreachouttomulti-familyresidentsrequire

continuedpersistenceandcreativity,withrewards(e.g.,withindicationsthattheir

effortspayoff,andbyprovidingclean,saferecyclingsitesfortheiruse)and

attentiontoethnic/culturalissuesthatareoftenpervasiveinmulti-familybuildings.

Inmanycommunities,theneedfortraditionalinformationalmessagingisbecoming

secondarytoinspirationalapproaches.Mostresidentsareawareofatleastthe‘first

generation’materialsthatmayberecycled.

Themostcompellingmessagesalsospeaktotheemotions(again,ratherthan

simplyprovidinginformation).

Linguisticissuesareavitalcomponent:tobesuccessfulandengaging,P&Emustbe

producedinthelanguagesspokeninthecommunity.






Thefoundationforthemessagingliesintargetedcommunityresearchor,where

resourcesareunavailable,considerationofthewealthofinformationthatexistsin

availablereferencedocuments.

Allocation of financial resources: Formost,ifnotallOntariocommunities,P&Efor

recyclingprogramsisconstrainedbylimitedfinancial(andstaff)resources.The

majorityofrespondentsintheP&EReviewsurveyreportedthattheythoughtthey

wouldneedtodoubletheirbudgetstobeabletoaccomplishthefullrangeoftasks

toensure“successfulP&E.”

Despitethat,communitiesacrosstheprovincearedevelopingandsustainingP&E

programsthatarecontributingtoprogrameffectivenesswith,insomecases,very

limitedresources.ToachieveBestPractices,communitiesshouldconsiderplanning

theirP&Estrategiestoincludesomeofthelowcost/highimpactcomponents(and

others)identifiedabove.

Opportunity to increase efficiency: Forsomeelementsoftheirprograms,

communitiesarealreadysharingresourceseitherwithothercommunitiesorwith

otherprogramswithintheircommunitiesorexistingP&Evehicles.

OthersharedresourcesforP&Ethatexistorareindevelopmentinclude:

• theWDOAdbank

• anewweb-basedresourceaboutallOntariorecyclingprograms

(www.blueboxmore.ca)

• P&Emodulecomingto“Recyclers’KnowledgeNetwork”(expectedinMay2007)

• ProjectreportsfromallE&EFundCommunicationandEducationstudies

Communitiesthatseekoutnewopportunitiestoshareresources(information,

graphics,activitiesandothers)willincreasethecost-effectiveimpactoftheirP&E

programsandinsomecases,beabletoemploytacticsthatwouldotherwisebe

cost-prohibitive.

Monitoring and Evaluation

P&Eprogramsthatcontributetobestpracticescontainamonitoringandevaluation

componentthatisbudgetedandmappedoutintheplanningphase.

Formanycommunities,theabilitytoimplementformalqualitativeandquantitative

researchwillbeconstrainedbybudgetarylimitations.

Inamoreinformalway,evaluationmayalsobemonitoredbychangesin

amounts/qualityofmaterialsmarketedoverayear.Becausetherearesomany

factorsthatinfluenceprogramperformance,thisisalessprecisemeansof

evaluatingaP&Ecampaignorprogram,butitdoesprovideanindicator.IntheBlue

BoxProgramP&EProgramSurvey,London,DurhamandTorontoindicatedthatthey

lookto‘spikes’inrecoveryoroverallannualtonnagesintheirconsiderationofP&E

effectiveness.





CommunitiesthatusethesemeasuresasindicatorsofP&Eeffectivenessmaylink

theirfindingswithexisting(andgrowing)researchabouttheimpactofspecifictools

andcampaignsinOntarioandbeyond.

Source and Links

Reports

AMRC,CountyofOxfordetal;“Research Report: Identifying Best Practices in

Municipal Blue Box Promotion and Education”,2005

CityofHamilton:“Blue Box Recycling Public Opinion Survey (March 2006)”

CityofBarrie&CSR:“Master Recycler Program Report”, 2000&“Phase II Report”,

2001

Coffman:“Public Communication Campaign Evaluation”,2002

InformaResearchforMcConnellWeaverCommunicationManagement:

“Communication & Benchmark Survey, Enhanced Blue Box Recovery Program,

Focus Group Report”;2006

McConnellWeaverCommunicationManagement:EnhancedBlueBoxRecovery

“Benchmark Survey & Focus Groups”;2006

McConnellWeaverCommunicationManagement:“Enhanced Blue Box Recovery

Strategic Communication Plan”,2006

“Blue Box Residential Recycling Best practices – A Private Sector Perspective”,A

JointProjectofStewardshipOntarioandtheWasteManagementAssociation,

GuilfordandAssociates,February2007

PraxisPR:“Best Practice P&E Review Final Report”,2007

Skumatz:”Policy and Program Options that Increase Recycling”,2004

Presentations

AMRC:“2005 Promotion & Education Awards”, 2006AMRCPolicy&Programs

Committee:“2006 Municipal P&E Awards”,February2007

“Industry Experts Speak about Advertising: Research Perspectives”:Apresentation

atAMRC’sSpringWorkshopbyInformaResearch,PraxisPRandMcConnellWeaver

CommunicationsResearch;February,2007

Upcoming Resources

StewardshipOntario’sEfficiencyandEffectivenessFundCommunication&

Educationprojects






Established and Enforced Policies that Induce Waste Diversion

Overview

Municipalitiesneedtoutilizeacombinationofpolicymechanismsandincentivesto

stimulaterecyclinganddiscourageexcessivegenerationofgarbage.Mostofthese

policiesareaimedtowardcausingapermanentshiftinresidents’behaviourthrough

theuseofeconomicandnon-monetarylevers.Economicincentivesworkby

assigningatangiblevaluetotherecyclableportionoftherefusestream.Non-

monetaryincentives,ontheotherhand,forceresidentstolimitundesiredbehaviours

andstimulatedesiredones,usingpunitiveandrewardingpolicytools,respectively.

Eachtypeofincentiveisdescribedinfurtherdetailinthissection,withpragmatic

applicationguidance.


Byusingamixofeconomicandnon-monetaryincentives,municipalitiescanchange

residents’behavioursandgenerateprogramrevenues.Specificeffectiveness

benefitsinclude:

• Higherparticipationrates

• Increaseinmaterialsdivertedtorecycling

• Reductioninrecyclablematerialsloss

• Improvedqualityofmaterials

• RealizedsynergiesbetweenpoliciesandPromotionandEducation

Efficiencybenefitsinclude:

• Decreaseingarbagecollectioncosts

• Increaseinprogramrevenues

• Highreturnoninvestment

• Lowcapitalrequirements


Economic incentives

Economicincentivesareasdiverseandvariedasthemunicipalitiesandwaste

authoritiesthatemploythem.Thebasicobjectiveofincentives,asrelatesto

recyclingprograms,istoplaceacostondisposingofwasteatthecurbside,which

willcausesystemuserstodivertappropriatematerialtodiversionprograms.The

intendedresultisadecreaseinwastedisposedandanincreaseinrecyclingvolumes.

Thereareanumberofapproachesemployed,thenamesforwhichareoftenused

interchangeably:Pay-as-you-throw(PAYT),unitpricing,andvariableratestructures

areoftencited.Generically,theseareoftenreferredtoas“userpay”systems.






Incentiveprogramscanemployvariablefeestructures,andsimplebuteffective

formsusebagsorstickers.Otherapproachesrequiresubscriptionbycontainer

volume,ormaybeweight-based.Bagtagsandstickerprogramsareconsistentwith

approachesusedinmanyOntariocommunities,inwhichsystemuserspayforbags

ortagsthatqualifyforcurbsidegarbagecollection.Insomecases,partialsystems

areusedinconjunctionwithbaglimits(seediscussiononnon-monetarypolicies),

allowingusersamaximumnumberofbagsatthecurb(often2or3),afterwhich

userpaidbagsortagsarerequiredtoqualifyforgarbagecollection.

Ingeneral,the“userpay”concepthasthepotentialtorecoverpartorallofwaste

managementcostsfromsystemusers.Utility-basedorself-financingsystems

recoveralloftheircosts,whiletheuserpaysystemsrecoverpartorallcosts.

Potentialincreasesinnetrecyclingcostsmayresultinlowerunitcosts,whileother

aspectsofthewastemanagementsystemwillbenefitfromreducedgarbage

collectioncosts,reduceddisposalcostsandincreasedlandfilllifeexpectancy.Well-

conceivedincentiveprogramsmayalsoimprovematerialquality,resultingin

increasedprogramrevenuesandreducedsortingcosts.

Non-monetary Incentives

Bag limitsareacommonpracticeoflimitinghowmuchwaste,andspecificallythe

numberofgarbagebagsfullofwaste,willbeacceptedforcollection.Theyareoften

employedwith“userpay”systems,whichwillassignacostperbagforcollection

forbagsoverthelimit.Baglimitsarearelativelysimplemeansofencouraging

residentstobecomemoreconsciousoftheamountandtypeofwastetheygenerate

toinitiateachangeinattitudeandbehaviourabouttheirwastegenerationhabits.

Typicalbaglimitdesignsinclude:

• Strictbaglimitisimposedwithnootheroptionsprovidedforplacingadditional

wasteatthecurb.Oncethebaglimitsetoutisreached,anyadditionalunitsof

garbageareleftatthecurbbythecollectioncrew

• PartialBagLimitallowsresidentstopurchasespecialtagsorbagsforexcess

garbage(alsoreferredasapartialuserpaysystem).Becauseresidentsare

givenanalternativeapproachtodealwithexcessgarbage,itisnotascriticalto

provideconvenientwastediversionalternatives.However,residentswillexpect

somelevelofwastediversionservicestoenablethemtodiverttheirwasteand

reducethefinancialburdenofpayingforexcessgarbage.Thisapproachis

muchmorecommonamongcommunitiesimposingbaglimitsofthreebagsor

less

• HybridSystemcombinesfeaturesofthestrictbaglimitandwithfeaturesofthe

partialbaglimit.Typically,inahybridsystem,acommunitywillimposeastrict

baglimitbutwilldistributeasetof“free”tagsforusebyresidentstoaugment

thebaglimit

Baglimitprogramssendaclearmessagetoresidentsthatitisnolongeracceptable

toproduceunlimitedamountsofgarbage.However,theyareusuallycoupledwith

significantconvenientopportunitiestodivertwaste.






Communitiesthatimposebaglimitsoflessthanthreeperweek,ingeneral,

experienceanoticeablereductionintheamountofwastesentfordisposalandan

increaseinrecyclingrates.Theretendstobeaninverserelationshipbetweenthe

numberofbagspermittedatthecurbandthediversionandrecyclingratesachieved.

Thelowerthebaglimitthehigherthediversionrateofwastefromlandfillandthe

recyclingrate,aslongasresidentshaveaccesstoconvenientandcomprehensive

wastediversionopportunities.Curbsiderecyclingisgenerallyconsideredessential

ifabaglimitofthreeorlessistobecontemplated.Introductionofadditional

diversionopportunities,suchascurbsidecollectionofkitchenorganics,further

enhancesbaglimitimpacts.

Baglimitscangenerallybeadministeredwithoutcapitalexpensetothewaste

authority,andthusaregenerallyregardedasalow-costinitiative.

Provision of blue boxesentailstheprovisiontohouseholdsoffreeblueboxesin

ordertoensureamplehouseholdrecyclingcapacity.Thisisusuallydonewhen

programsareinitiatedandwhenmaterialsareaddedand/ortheprogramisre-

promoted.Additionalblueboxesrequireaninitialcapitaloutlay,however,theadded

capacitymaynotonlyincreasecaptureandpotentiallylowerunitoperatingcosts,but

theminimizationofhome-madecurbsidecontainersmayyieldlonger-term

ergonomicbenefitstocollectioncrews.

Disposal bans canbeimplementedbythedisposalauthority,whichdetermines

whatmaterialsitwillacceptfordisposal.Thisforcesthecollectionauthorityto

redirectbannedmaterialsfromthewastestreamtoappropriatereceivers.Thispolicy

isoftenappliedtobroadermaterialtypesandindustrialwastes,andnotspecificallya

blueboxstrategy.

Curb side material bansentailsbanningofmaterialfromgarbagecollection,forcing

thehouseholdtodisposeofthematerialthroughtheproperprogramchannels,such

asrecycling,sourceseparatedorganics,householdspecialwastedepot,oranyother

appropriatecollectionordepotsystem.Thisisenforcedatthecurb,anddisposal

servicecanbewithdrawnifusersrefusetodivertbannedmaterialstotheproper

streams.

Mandatory recyclingisinstitutionofaby-lawthatdirectshouseholdstousethe

recyclingprogramforrecyclablematerial.Thiscanbeenforcedatthecurb,and

disposalservicecanbewithdrawnwhenuserscontinuallyplacerecyclablesinthe

garbage.Thisapproachisalsocommonlyusedtodirectmanagersandproperty

ownersofmulti-familyresidencestopromoterecycling,andisenforcedbymaking

publicgarbagecollectionprogramsavailableonconditionthatthecomplexprovides

arecyclingprogram.

Reduction in garbage collection frequencyisastrategymadepossiblewhen

diversionprogramsareabletodivertlargeamountsofmaterial,suchasrecycling

andsourceseparatedorganicsprograms.Withsignificantdiversion,aminorportion

ofmaterialleftforthegarbagestreammakesweeklycollectionobsolete,andthe

conversiontolessfrequentgarbagecollection,inturn,makesdiversionprograms





moreattractiveeventoprogramhold-outs.Reductioningarbagecollection

frequencyhastheaddedbenefitofreducinggarbagecollectioncosts.

Drop-off Depots foroverflowmaterials makerecyclingavailableatlocationsand

facilitieswherepublictrafficispresent.Recyclingreceptaclesareanopportunityto

collectmaterialwithoutcurbsidecollectioncosts,addingmaterialtotherevenue

streamwithoutthesamelevelofcostforcollection.

Carefulprogramplanningisessentialtothesuccessofeconomicandnon-monetary

policies.Anumberofcriticalconsiderationsarecitedwithinthebodyofliterature,

studiesandexperienceassociatedwiththesepractices.

Implementation of Best Practice

Economic Incentives

Implementationofeconomicincentivesrequiresthoroughanalysisandplanning.

Userpayincentivesworkbest

• inconjunctionwithclear,well-consideredgoals

• whenthereisastrongsenseofwhatbarrierstorecyclingarebeingtargeted

throughtheincentives

• wherethereisadequateinfrastructuretoobtainthedesiredresults,including

strongprogramelements,suchasaccessiblerecyclingprograms,a

commitmenttoeducational/promotionalsupport,activeenforcement(itshould

benotedthatinsomeliterature,finesareconsideredtobeaformofeconomic

incentive),andprovisionofadequaterecyclingcapacity

• wherethereiscarefuldeterminationastowhattypeofprogramissuitableforthe

community(bagtag,variablepricing,weightorvolumebased)

• aspartofawastemanagementstrategy

Throughproperplanning,minorconcernscanbeanticipatedandmitigated.With

respecttolitterandillegaldumping,experienceshowsthatimplementationissues

mayarise.Diminishedqualityofrecyclables,forexample,mayresultfromplacement

ofover-the-limitgarbageinrecyclingbinsbyresidentsinordertoavoidgarbagecost.

Roadsidegarbagedumpingmaytakeplaceinisolatedcases.However,theseissues

canbeaddressedbysteppingupenforcementintheearlypost-implementation

stagesanddevelopingtargetededucationalcampaigns.

Administrationandcapitalrequirementswilldependonthetypeofprogramselected.

Weight-basedsystemsrequireacapitaloutlaywithincreasedoperational

expenditures,and,therefore,maybemoreexpensivetooperate.Bag-tagsystems

areconsideredtobelessexpensivetooperate,withsomeprogramslookingtoretail

outletstomanagedistributionofbags,tagsorstickers.

Someprogramsoffervariablerateplansbasedoneitherweightorvolume,allowing

subscriberstoselectcontainersorbinsthatmatchtheirwasteproductionneedsand

encouragea“downsizing”ofhouseholdwastegeneration.Thisprovidesadditional






incentivetoreducewasteandincreaserecyclingbyplacingavalueonthebehaviour

throughadditionalsavings.Considerationofsuchapproachesaresystemicinnature,

accompaniedbyassessmentofweightorvolume-basedsubscriptionplans,

automatedcollectionsystemsforcartsorbins,andimpactsonsystemcost.

Non-monetary Incentives

Aspreviouslynoted,benefitsattributedtoanyofthesestrategiesaredependenton

theamountofassociatedpubliceducation,promotion,andenforcementsupport.

Inthecaseofthosestrategiesthat“direct”wastetotherecyclingstream,care

mustbetakentoavoidnegativeimpactstothequalityofthecollectedmaterial.

Wheninstitutingbans,baglimits,orgarbagecollectionfrequencyreduction,

recyclingcollectorsneedtobediligentwithrespecttoqualitycontrol.Itispossible

thatnon-recyclableswillbeplacedintheblueboxasareactiontoreducedgarbage

serviceorcapacity.

Reductioningarbagecollectionfrequencyisoneofthefinalimplementationstepsin

asuccessfulintegratedwastemanagementdiversionprogram,andisacompanion

strategytotheeffectivediversionofhouseholdorganicsandblueboxrecycling.The

needforweeklygarbagecollectioniseffectivelyeliminated.Thisparticularstrategy

requiresarevisionofcollectionlogisticsthatmayresultinco-collectionscenariosfor

waste,recyclingandorganics,inamannerthatcanleadtoefficientuseofcollection

vehicles.

Theimplementationofabaglimitprogram(featuringthreebagsorless)requiresa

plannedphase-intoaddresscommunicationwithresidents(citizensneedtoknow

whythemunicipalityisdoingthis)andtheinfrastructurerequiredtosupportit.The

followingissuggestedaseffectivebaglimitlevelsforvariousBlueBoxrecycling

programs:

Recycling

system

Collection

Frequency

Garbage Suggested

Bag Limit

Add Kitchen

Organics

Suggested

Bag Limit

Multisort weekly weekly 3 weekly 2

bi-weekly weekly 4 weekly 3

Twostream weekly weekly 3 weekly 2


alternatingweeks weekly 3 weekly 2

Singlestream weekly weekly 3 weekly 2


Inmostcommunities,wherearecyclingcurbsideprogramisinplace,theaverage

householdersetsoutthreebagsorlessofgarbageperweekandonlyhasexcess

garbageafewtimesayear,typicallyaftertheholidayseasonandspringcleanup.

Thesespecialtimescanbeeffectivelyaccommodatedwithamnestydays.





Sources and Links

AMRC “User Pay Implementation Guide” E&E Fund Project 126 (2005)“,

http://www.stewardshipontario.ca/eefund/projects/innovative.htm#126

AMRC“AnalysisofUserPaySystemCosts” E&E Fund Project 191 (2006),

http://www.stewardshipontario.ca/eefund/projects/innovative.htm#191

UserPaylearningmodulesontheKnowledgeNetwork–accessiblevia

www.vubiz.com/stewardship

ImplementationofaWasteManagementUtilityinOntarioMunicipalities(PN160),

http://www.stewardshipontario.ca/eefund/projects/innovative.htm#160(project

reportstobeavailableatthisweblinkinmid-May)

AMRCBestPracticeConsultationSessions:“User Pay and combined user pay

systems (bag tags)” www.amrc.ca

“The Waste Diversion Impacts of Bag Limits and PAYT Systems in North America”

April2001,ENVIROSRISfortheCityofToronto,www.ris.ltd.com

USEPAPAYT:http://www.epa.gov/epaoswer/non-hw/payt/index.htm.

“Nationwide Diversion Rate Study: Quantitative Effects of Program Choices on

Recycling and Green Waste Diversion, Beyond Case Studies.”Skumatz&

Associates(SERA),Seattle,USA,1996.

USEPA,MSWManagementjournalarticle“The Rise and...the rise of Pay-As-You-

Throw”citingmorethan6,000communitiesinUS.

“Measuring Source Reduction: Pay as you Throw/Variable Rates as an Example.”

SkumatzEconomicResearchAssociates(SERA),Seattle,WAUSA,2000.

UKDefra(DeptforEnvironment,FoodandRuralAffairs)“Evaluation of the

Household Waste Incentives Pilot Scheme.”www.defra.gov.uk






BestPracticeSpotlights

InadditiontoformulatingFundamentalandConditionalBestPractices,theProject

TeamfocusedonidentifyingBestPracticesinspecificprogramareas.Theseareas

include:

• CurbsideCollectionofMaterials

• ProcessingofMaterials

• MarketingofMaterials

• Multi-FamilyRecycling

• DepotCollectionofMaterials

• RecyclingofChallengingPlasticMaterials

BestPracticesineachoftheseprogramareasaredescribedindetailbelowinaBest

PracticeSpotlight





Best Practices in Curbside Collection

Overview

InatypicalBlueBoxrecyclingprogram,thecurbsidecollectionfunctionisthemost

expensiveprogramcomponent.Itis,therefore,essentialtounderstandandproperly

managecostdriversandoperationalintricaciesassociatedwithcollectingrecyclables

atthecurb.Thissectionprovidesguidanceformunicipalprogramoperatorsonthe

availabilityofchoicesandresultingcostandrecoveryimplicationsofadoptingor

changingcurbsidecollectionmethodsandparameters.


Byeffectivelystructuringandoptimizingtheircollectionfunctions,BlueBox

programscanobtainthefollowingeffectivenessbenefits:

• Increasedrecoveryofmaterialsanddiversionfromlandfill

• ImprovedseparationofmaterialsinvehiclesandMRFs

• Increasedparticipationinrecycling

• Enhancedaestheticappealofcontainersatthecurb

• Improvedoperatorsafetyandergonomics

• Improvedcustomersatisfactionlevels

Programscanbecomemoreefficientduetothefollowingfactors:

• Lowercollectionandprocessingcosts

• Increasedrevenuesfromsaleofrecyclablescaptured

• Improvedutilizationofcapital(trucksandprocessingequipment)


Relationship to Processing

Theappropriatenessofanyspecificcurbsidecollectionpracticeisdirectlyrelatedto

theprocessingcapabilitiesoftheMRFthatwillbereceivingthecollectedmaterial.

Somecollectionmethodslistedmaynotbeappropriateforallmunicipalitiesforthis

reason,aswellasothers.Allcollectionmethodsshouldbereviewedwith

considerationofprocessingcapabilitiesandfurtherfeasibilityanalysismaybe

required.

Set Out Containers

Itisgoodpracticeformunicipalprogramstocompletesetoutstudies,wasteaudits,

andcapacitystudiestoevaluatethecurrentprogram’srecoveryeffectiveness,

remainingrecoverypotential,andsetoutcontainercapacityneeds.Ifsufficient

BestPracticeSpotlight






containercapacityisnotprovidedtomatchthesetoutvolumeandfrequencyof

collection,thenthereisthepotentialthatadditionalrecyclablesmightbeplacedinto

thegarbage.Often,additionalcollectioncanhelpsolvethebincapacityissue.

Asaprogramcontinuestogrow,additionalorlargercontainersmaybecome

increasinglyadvantageous.Someprogramsallowresidentstoaddblueboxesor

allowresidentstoincludetheadditionalmaterialsinclearplasticorclearbluebags.

Singlestreamcollectionprogramsusingcartsdonotusuallyhavecontainercapacity

problems,providedthatresidentsfollowinstructionsonhowtopreparematerial

(e.g.,flatteningcardboardsothatitwillfitintothecart,etc.).Thesizeandnumber

ofrecyclingbinsorcartsshouldbeselectedtomatchthecollectionfrequencyand

theprojectedvolumeofrecyclables.Containeroptionstypicallyinclude:

• Recycling box:maybesuitableformostsmallprogramscollectingonlythe

“mandatory”recyclablesweekly(18-68litre)

• Multiple boxes: asprogramsgrowinthenumberofdesignatedrecyclables

collectedandintherecoveryofthosematerials,theyusuallymovetoproviding

multipleboxestoresidents,oftenoneforfibresandoneforloosecontainers

• Roll-out cart:usedbyprogramswithawiderangeofmaterialswithreduced

collectionfrequency(bi-weeklyormonthly)toenabletheuseofsemi-and/or

fully-automatedcollectionvehicles(120–360litre).

• Translucent bags:provideflexiblecapacity,similartocarts,butincreasesorting

problemsattheMRF.Allowidentificationofgrosscontamination,butnotthe

opportunitytoprovidecurbsidecontaminationsort

Degree of Sorting

Programsgeneratinglessthan10,000tonnesperyearcanbenefitfromcurbsidesort

collectionswhennotwo-streamorsingle-streamMRFislocatedwithinareasonable

drivingdistance.Smallerprogramstypicallydonotrecoversufficienttonnageto

justifyestablishingtheirownMRF:however,suchprogramsmayfinditcost

effectivetoimplementalow-techbulkingfacilitywheredensificationofcurbside

sortedmaterialstakesplace.Oftenmaterialsrecoveredthroughcurbsidesort

systemshaveverylowcontamination,thusresultinginaveryhighqualityproduct.

Asprogramsgrowinsizeandtonnage,thereismorepressuretoconsideradditional

comminglingofrecyclables.Typically,programspreviouslyprovidingamulti-sort

curbsideschemeevolveintoprovidingadualsortcollectionsystem,i.e.,separation

offibreandcontainersintwovehiclecompartments.Anothervariationofthedual

sortsystemisseparationofglassintoathirdcompartment.

Two-streamcollection(fibresandcontainers)isgenerallythepreferredcollection

methodforprogramsthatprocessbetweenabout10Kto40ktonnesofmaterialper

year,again,dependingontheprocessingcapabilitiesattheMRF.Thistonnage

throughputcansupporttwo-streamprocessing;butifasingle-streamMRFislocated

withinanhour’sdrivingdistance,singlestreamcollectionshouldbeconsideredasa

potentialcollectionoption.Two-streamcollectionscapitalizeontheinitiallabour

providedfromtheresidentsatthecurb.Often,programswithhighparticipationcan





benefitfromthistypeofcollectionasmaterialsarecollectedfairlyeasilyby

collectionstaff.Inaddition,ifboxesareusedtosetoutrecyclables(asopposedto

bagsorcarts),collectionstaffhaveanopportunitytoperformadegreeof

contaminationscreeningatthecurbtoimprovethequalityoftheproductdelivered

totheMRF.

Asprogramtonnagesapproachandexceed40,000tonnesperyear,singlestream

collectionandprocessingmaybecomemorefeasible.Singlestreamrecyclingoffers

thepotentialforincreasedcollectionsavingsandincreasedrecoveryofrecyclables,

butalsoresultsinincreasedprocessingcostsand,dependingonthecontainertype

used,increasedcontamination.Insimpleterms,thelargertheprogramtonnage,the

greaterthepotentialforcollectioncostsavingsand,hence,thegreaterthepotential

tooffsettheadditionalcostofsinglestreamprocessing.Inaddition,theuseoffully

orsemi-automatedcollectionvehiclestotipcartsintoavehicleresultsinfewer

injury-relatedstrains,therebyincreasingworkersafetyandloweringoperatingcosts

associatedwithinjuries.

Itshouldbenotedthatifatwoboxsetoutismaintainedinasinglestreamprogram,

mostofthepotentialsavingsinurbanareaswillbelost,sincetherewillbelittle

reductioninstoptimes.Amore-detaileddiscussionofsinglestreamrecyclingis

providedinthe“Processing”section.

Collection Frequency

Municipalitiesneedtoassesstheirprogramperformancetoidentifythetypeof

collectionthatisbestsuitedtotheirowncircumstances.Selectionofcollection

frequencyneedstobemadewithconsiderationtothevarietyandvolumeof

recyclablesrecovered,thetype,number,andvolumeofhouseholdcontainers

suppliedtotheresident,thetypeofcollectionequipmentavailableforuse,andhow

recyclablescollectionisintegratedwithothersolidwastecollectionservices(e.g.,

householdorganics,garbage,etc.).Team’sanalysisindicatesthatprogramsthat

collectrecyclablesatleastasfrequentlyasgarbageexhibithigherrecoveryrates.

Thispracticesendsanimportantmessagetoresidentsthatrecyclingisequallyas

importantandasconvenientassettingoutgarbage,therebyboostingthetonnageof

materialsdiverted.

Themosteffectiveprogramsintheprovincewithrespecttotonnagediversion

provideweeklycollectionofrecyclablesandhouseholdorganics,withbi-weekly

collectionofgarbage(andaneffectiverefusebaglimit).However,bi-weekly

collectionofrecyclablesonitsowncanbemorecost-effectivethanweekly

collection,providedthereisnoappreciablelossoftonnage,andprovidedthat

householdersaregivensufficientcontainercapacitytomeetorexceedtheirtwo-

weekmaterialstoragerequirements.Anotheroption,usedprimarilybyprograms

thatdonothavespecializedcollectionvehiclesorareco-collectingrecyclableswith

otherwastematerials(withrecyclablestakentoatwo-streamMRF),isthecollection

offibresandcontainersonalternatingweeks.Whilenotabestpractice,incertain

situations,whereefficiencymustbeweighedagainstdiversionbenefits,such

programsmaybejustifiable.






Collectionfrequencyforrecyclablesshouldbereassessedwhenplanningfor

collectionofkitchenorganics.Co-collectionopportunitiesshouldbeevaluatedand

utilized,whenfeasible.Thisentailsusingthesamevehiclefortwoormoredifferent

wastestreamsorfittingavehiclewithappropriateequipment(inlow-density,rural

areas),sothatasinglepasscanbemadetocollectmultipletypesofmaterials.Co-

collectionistypicallyonlyappropriatewhenmaterialscanbeunloadedatthesame

oradjacentfacilities.

Regardlessofthecollectionfrequency,butparticularlyinprogramswithwastebag

limitsorlowerfrequencyofcollection,itisbeneficialtoprovideconvenientand

consistentoptionsforcapturingoverflowmaterials.Somecommunitieshavedepots

forthispurpose,whileothersprovideclearplasticbagsforthecollectionofoverflow

materials.

Routing

Regardlessofthetypeofcollectionprocedureused,itisaBestPracticethat

collectionmethodsaredesignedtoensurethattheroutesareshortestindistance

andreachalltheresidentiallocations.Routedesignshouldalsomaximizecollection

vehicletimespentonrouteandminimizecollectionvehicletimespentoffroute.

Onemeansofdoingthisistouselarge-capacitycollectionvehicles.Anotherbest

practiceistousecompactionequipment,particularlyforplasticcontainers,withan

optimalcompactionratiomatchedtotheprocessingcapabilityintheMRF.Setout

instructionscanalsobepreparedtoincreasecollectionefficiency.Forexample,

whenstreetlayoutspermitandsafetyisnotanissue(andparticularlyinlow-density

areas),householdscanbedirectedtosetoutmaterialononesideofthestreetonly.

Anotheroptionistoencourage“twinning”ofrecyclingcontainersatthecurbside

(residentsplacetheirbinsbesidetheirneighbour’sbins)tomaximizesetoutsper

stop.Thiscanbeparticularlybeneficialwhenstreetsideparkingcaninterferein

servicingsetouts,orwhenhousesareonlargelots.Thistechniqueismore

commonlyusedforsolidwastecollectionprogramsusingroll-outcarts,butthe

sametechniqueworksforrecyclablescollectionaswell.

Forlargerprogramsinparticular,andforprivatecollectionserviceproviders,theuse

ofrouteoptimizationtoolsandmethodstobalanceroutesandpayloads,canbevery

effectiveinreducingtimeperstop,timebetweenstops,off-routetime,andmiles

driven.Optimizedroutesprovideefficientservicetoresidents,reducingcollection

time,whichcantranslateintolowercollectioncosts.Somemunicipalstaffhave

producedin-houserouteoptimizationmethodsandthereareanumberofroute

optimizationsoftwareapplicationsavailableformunicipalstafftopurchase.Whether

apurchasedprogramoraninhousemethodologyisused,optimizingroutesona

regularbasiswillresultinsomebeneficialchange.

Transfer

Transferisanoptionthatshouldbeconsideredforprogramswithtonnagesof

recyclablesconsideredtoosmalltosupporttheirownMRF,orforlargerprograms

withouttheirownMRFwithdirecthaultimetoaMRFofgreaterthanaboutone





hour.HowrecyclableswillbetransferredwilldependonthedestinationMRF.The

degreeofcommingling,receivinghours,andpossiblythetypeoftransfervehicle

thatcanbeusedaretypicallyitemsthattheMRFwilldictate.Transferofsingle

streamrecyclablesusinglightcompactionwilllikelybesimplerandmoreeconomical

thantransferoftwostreamrecyclables.

Thedesignofatransferstationcanvaryfromaverysimplesplit-elevation,direct

unloadoperationintoanopentoptransfertrailer(forsmalltonnages)tomore

sophisticatedenclosedstructureswithseveralloadingbays.ArecentWDOreport

providesmoredetailedinformationabouttransfersystems.Thecostofprovidinga

transferoptionmustbeweighedagainstthatofdirecthaul.Toassistinthis,anExcel

modelhasbeendevelopedtoassessdifferenttransferoptionsonasitespecific

basis(checkwithWDOonhowtoaccessmodel).

Sources and Links

E&EFundProjectNumber207.York Collection and Processing Optimization Study,

2006


EfficientRecyclingCollectionRoutinginPictouCounty,2001

http://www.cogs.ns.ca/planning/projects/plt20014/images/research.pdf

USEnvironmentalProtectionAgency.Getting More for Less: Improving Collection

Efficiency,1999

www.epa.gov/garbage/coll-eff/r99038.pdf

Single Stream Best Practices Manual and Implementation Guide,SusanKinsella,

Conservatree,2007


“Assessment of Ontario Transfer Capabilities of Residential Blue Box Materials and

Opportunities for Cost Savings”;JacquesWhitfordforWDO;December,2006

WasteDiversionOntario

www.wdo.ca






Best Practices in Processing of Recyclable Materials

Overview

ProcessingofBlueBoxrecyclablesataMRFisanintermediatestepbetweenthe

collectionoftherecyclablesandthemarketingofthosematerialstoselected

materialmarkets.TheroleofaMRFistoreceive,sortandpreparetherecyclablesto

meetmaterialspecificationsdictatedbytheselectedmarkets.Discussedhereinare

selecteddesignandoperationalBestPracticesandassociatedconsiderations.

PleaserefertotheFundamentalBestPracticeonOperationOptimization,aswellas

thedescriptionofCurbsideRecyclingBestPracticesforadditionalrelevant

information.


Byimprovingandoptimizingprocessingfunctions,municipalitiescanobtainthe

followingeffectivenessbenefits:

• Increasedrecoveryofmaterialsanddiversionfromlandfill

• Improvedseparationofmaterials

• Lowerresiduelevels

• Consistentmaterialquality

• Improvedrelationshipswithend-markets


• Reducedneedforstaff,reduceddowntime,reducedmaintenance


• Improvedemployeesafetyandergonomics

• Improvedutilizationofcapital


ThedesignofaMRFisdependentonthematerialsdelivered,thecompositionof

thosematerials,thedegreeofcommingling,theannualtonnagesdelivered,andthe

proposedgradesandspecificationsofmaterialstobeproducedandmarketed.

SmallerMRFsthatrelyheavilyonmanualsortingtoseparaterecyclablesandremove

contaminantsprimarilyservesmallercollectionprogramsthatrelyheavilyon

curbsidesortingofBlueBoxrecyclables.Largerprogramswithhighertonnagesand

anexpandeddegreeofcomminglingofrecyclablesareabletosupportmore

sophisticatedmechanicalsortingattheMRF.

Theschematicbelowillustrateshowcollectionandprocessingsystemschangewith

increasedtonnagerecovered.






RegardlessofthetypeofMRF,thereareanumberofconditionalBestPracticesthat

shouldbeconsideredbyanyprogramlookingtoimproveprocessingeffectiveness,

efficiencyandcosts.Theseinclude:

• Provideatleast2day’sstoragecapacityforincomingrecyclables.Thispermitsa

secondshiftoperationandprovidesastoragebufferduringunscheduled

equipmentdowntime.Considerplanningforasecondshift,tomaximizethe

useofprocessingequipmentandtoallowforprocessingofadditionalmaterials

• Buildinasmuchflexibilityaspossibleintothedesignandoperationalapproach;

thisallowsrespondingtochangingneedsandcircumstances(e.g.,changesin

materialmix,additionalmaterials,improvedtechnology,opticalsorting,changes

inmarketspecifications,seasonalsurgesintonnage,etc.)

• Balancetheuseofmechanizationandlabour.Evaluatethebenefitsandcostof

labourandcapitalineachprocessingsteptoidentifytheoptimumbalance

• Useappropriatetechnology–therighttoolforthejob.Thesemayincludeuseof

balerssizedanddesignedtomatchthenatureofmaterialtobeprocessed,

ergonomicallydesignedsortinglines,appropriately-sizedanddesignedloaders

tohandleincomingmaterials,etc

• Provideadequatepre-sortcapability.Thispracticeprovidestheabilitytoremove

oversizeandproblemmaterialssuchaslargecardboard,wire,plasticfilm,etc.

beforereachingmechanicalsortingequipment,wheretheymayinterfereor

causedamageorinterferewithsubsequentprocessing.Removalofthese

materialsimprovestheefficiencyofsubsequentsortingoperations.Pre-sort

Collection Annual Tonnes MRF

Multi-sort curbside and depot

programs well suited Less than 10,000

Dedicated MRF may not be

economically feasible

Dual stream curbside collection

(with possible separation of glass) 10,000 to 40,000 Dual stream MRFs most suitable

Investigate feasibility of single

stream curbside collection More than 40,000

Investigate feasibility of single

stream processing and market

impacts

Investigate feasibility of plastics

optical sort






capacityalsooffersanopportunityforsortingfutureadd-onmaterials,suchas

baggedfilmplastic,textilesoroversizedplasticbottles.Lengthofpre-sort

conveyorrequiredisdependentonthequantityandtypeofcontamination

presentandthewidthofstoragebunkersorcagesrequiredbelowthesorting

conveyor

• Usefluffers(atthebalerin-feed)orperforatorswithsinglerambalers,asplastic

containersareparticularlydifficulttobale(especiallywiththelidsstillon).While

singlerambalersaresuitableforsmallerMRFs,theytypicallydonothavethe

abilityoflarger2-rambalerstoproducedenseplasticbales.Theuseoffluffers

orperforatorsresultsinimprovedbaledensityofupto20%.

• InvestigatethefeasibilityofopticalsortingofplasticsifMRFthroughputtonnage

is>40,000tonnes,oralternatively,if3ormoresortersarerequiredforsorting

plasticcontainers.(Theseautomatedsystemsareprimarilydesignedforbottles

sortingandtheadditionoftubs/lids,clamshells,andpolystyrenegenerallylimits

theapplicabilityofthistechnologyinCanada,giventhenatureofthecontainers

inthewastestreaminthiscountry,comparedtootherregions,suchasthe

UnitedStates.)Ifpossible,leavespaceforopticalsortinginanewMRFdesign,

intheeventthatthiswillbeaddedlater

• Makeanappropriatelevelofcapitalinvestmenttomaximizebenefitsoverthe

longtermatareasonablepaybacklevel(adetailedfeasibilityanalysisisrequired).

• Pursuethe“lowhangingfruit”first–meaningthoseoptionsthatprovidethe

greatestreturnoninvestmentwithrespecttomeetingspecifiedoperational

performanceandefficiencytargets

• Buildintocontractsaclearunderstandingofpreventivemaintenanceand

equipmentreplacementrequirementstomaximizeequipmentlifeandensure

goodequipmentperformance

Inadditiontotheabove,thefollowingisalistof“toolbox”itemsthatmightbe

consideredinMRFdesignandoperation.ManyofthesewereobservedduringMRF

sitevisitsinthisproject:

• MunicipalownershipofMRFs–increasinglymoremunicipalitiesareelectingto

owntheirownMRFandcontracttheoperation.Thisgivesthemmorecontrolof

theirprocessingoperations(e.g.,abilitytotestandaddmaterials,abilityto

retrofitasnecessarytoaccommodatenewtechnologiesandprocessing

systems,etc.).Whileprivatesector-ownedMRFseasethecapitalfinancing

requirementsofmunicipalities,theymayofferlessflexibilitytothemunicipality

(e.g.,inwhatmaterialstheycanprocess,operatinghours,numberofstreams

processed,willingnesstoinvestinadditionalequipmentorequipment

maintenancetofurtherreduceoperatingcosts,etc.).Contractsforoperationof

publicly-ownedMRFsbyprivatecontractorsshouldnotexceedtenyearsin

length.

• Providefrequenttrainingofsorterstoidentifyrecyclables,improvesorting

efficiency,reduceturnover





• Usevariablespeedconveyorswhereverpossibletoadjustformaterialchanges

andstaffsortingvariability

• IncorporateergonomicconsiderationsindesignwithadherencetotheANSI

Z245.41-2004FacilitiesfortheProcessingofCommingledRecyclableMaterials

–SafetyRequirements

• Incorporatemethodstoencourageauniformflowofmaterialthroughtheprocess

(evenflowatreducedburdendepth)(e.g.,levellingdrums,variablespeed

conveyors,provide2to3-footdropatfibreconveyortransitions,etc.)

• Totheextentpossible,removelargeandbulkymaterial(suchasOCCanditems

thatcanbemechanicallysorted)firstonsortlinestogetthesematerialsoutof

thesorters’way

• Usenegativesortingwhereverpossibletosortcommoditiestominimizehandling,

especiallywhenmarketsforsuchacommodityaremoreforgiving.Duetoits

diversenatureandparticlesize,residueshouldberemovedfromthecommodity

bynegativesorttominimizelabourrequirements

• Usetechnology(screens,airclassifier,magnets,etc.)earlyintheprocessto

reducethevolumetobesortedandleaveanopportunityforsupplementary

recovery(i.e.,qualitycontrol)afterthetechnologyhasbeenappliedtomaximize

therecoveryofvaluablecommodities

• Totheextentpossible,usegravityandfreefalltomovematerialsfromprocessing

tostorageandfurtherprocessingtosimplifytheoperation,reducemaintenance,

reducefloorspace,requirements,andreduceoperatingcosts.Oneexampleof

thisistouseverticalstoragehoppersthatreleasesortedmaterialswhenthey

arescheduledtobefedintothebaler

• Optimizetrafficflowcontroltoreduceunloadingtimeandcongestion;and

minimizedoublehandlingwherepossibleforexamplebyusingconveyorsto

movematerialsasopposedtorepeatedloadingandunloading

• Provideworkerswithenvironmentallycomfortableandsafeworkingconditionsin

accordancetoANSIZ245.41-2004Standard(heat/cool,ventilation,lighting,

safetyandprotectiveequipment,etc.)Ensureknowledgeofhealthandsafety

requirements,includingPre-StartHealthandSafetyReview,theprovisionof

safetytraininginaccordancetoANSIZ245.41-2004,minimizationofnoiseand

aircontamination,andthesafeuseofequipment,personalprotection

equipment(PPE).

• Provideaqualitycontrolstationatthebalerpre-feed,inplaceofseveralquality

controlstationsforindividualmaterials

• Considercompacting,orpossiblybalingresidue,tominimizeshippingcoststo

landfill

• Monitorresidueratesandworktoimprovebothincomingandoutgoingproduct

quality

• Conductperiodicefficiency/optimizationstudiesandprovidestructured

opportunitiesforemployeeinputtoprovideforcontinuousimprovement






Single Stream Recycling

WhilethediscussionaboverelatestoallMRFs,thereexistsparticularinterestinthe

developmentofsinglestreamrecycling.Theterm“SingleStreamRecycling”refers

toaprocessinwhichBlueBoxrecyclables,containerandfibrematerials,are

collectedfromresidencesand/orbusinessesinasingle,fullycommingledformand

subsequentlyseparatedandprocessedintomarketablesecondarymaterialsata

materialsrecoveryfacility.Thefollowingdiscussionreviewsanumberofkeyissues

relatedtosinglestreamrecycling,withparticularemphasisonsinglestreamMRFs.

ThereaderisalsodirectedtotheBestPracticeSpotlightonCurbsideCollection

discussionformoredetailonrelatedsinglestreamcollectionissues.

Asthedefinitionimplies,therearetwopartsofasinglestreamrecyclingsystemthat

aregenerallyimplementedintandem:

• Single stream CollectionofRecyclables–Tofacilitateefficientcollection

residentsaretoldthatthereisnoneedtosegregaterecyclablesintoseparate

streams(e.g.,fibre,containers).Therecyclablescanthenbecollectedusing

standardsinglecompartmentcollectionvehicles,insomeinstances,withsemi-

automatedorautomatedloadingcapabilities.Theuseoflargercapacity

containers(carts,bags)encouragesconsiderationofareductionincollection

frequency(fromweeklytoeveryotherweek)withresultingcostsavings.The

useofalargecontainerallowsforthecollectionofadditionalrecyclable

materials(suchasafullrangeoffibresandrigidplasticcontainers),aswellas

thereductionincollectionfrequencyduetotheadditionalstoragecapacity

providedbythecontainer.Italsoprovidesconvenienceandeaseofusetothe

residentand/orbusiness.Insomeprograms,residentsuseplasticbags,rather

thanrigidcontainers,tosetoutthecommingledrecyclables

• Single stream Processing of Recyclables –Theimplementationofasingle

streamrecyclingsystemalsorequirestheavailabilityofamaterialsrecovery

facility(MRF)thatisabletoacceptandprocessrecyclablesthatarecollectedin

asinglestreamform.

Therehasbeenatremendousgrowthintheimplementationofthesinglestream

recyclingapproachinthelastdecade.In1995,therewerefivesinglestreamMRFs

intheUnitedStates.In2000,therewere64singlestreamMRFs.Thesefacilities

representedmorethan20%oftheMRFprocessingcapacityintheU.S.intheyear

2000.AccordingtoGovernmentalAdvisoryAssociates,aWestport,Conn.,

consultingfirmthatmaintainsadatabaseonMRFs,therearepresentlyabout100

municipalandregionalsinglestreamprogramslocatedin22statesservingabout27

millionresidents.

Whilesinglestreamrecyclingmaynotbeappropriateforeverycommunity,thereisa

definitetrendregardingtheimplementationofthisapproachforresidentialrecycling

systems.ItisnoteworthythatanumberofthemostaggressiveanddedicatedU.S.

recyclingcommunitieshaveconvertedtosinglestreamrecyclablescollection

programs.Amongtheconvertsare:





• Seattle,Washington

• Portland,Oregon

• SanJose,California

• LosAngeles,California

• Denver,Colorado

• Plano,Texas.

TheCanadianexperienceissimilar,especiallyinOntario.In2004,approximately

20%ofBlueBoxtonnagewasprocessedthroughsinglestreamMRFs.In2006,this

hadincreasedtoapproximately40%.ProgramssuchastheCityofToronto,York

Region,PeelRegion,andSudburyhaveintroducedsinglestreamrecyclingoverthe

pasttwoyears.

Thefollowingfactorshavecontributedtotherapidgrowthofsinglestreamsystems

inthelasttenyears:

• Desire to Increase Number and Quantity of Recyclables –Theadoptionof

higherrecyclinggoalshascausedcommunitiestotargetmorematerialsfor

collection,exacerbatingtheproblemsassociatedwithcurb-sortcollection

systems(e.g.,limitednumberandsizeofcompartments,limitedbincapacity,

etc.)

• Householder Desire for Convenience and Ease of Use – Theincreaseinthe

numberofmaterialstargetedforrecyclingincreasedthedifficultyofthe

resident’sparticipationinsource-separatedrecyclablescollectionsystems,

leadingfirsttothedevelopmentofthedual-streamconceptandlatertothe

singlestreamapproach.Singlestreamrecyclinghasshowntobesuccessfulin

increasingbothparticipationandcaptureratesevenincommunitiesthat

previouslyhadgoodtwo-streamrecoveryrates

• Improvements in MRF Processing Technologies –Theheavyrelianceofearly

MRFsonmanuallabourledtothedevelopmentand/orrefinementofmaterials

handlingtechnologiestothepointwherescreeningsystemscannowreliably

andeffectivelysortoutcontainersandfibrousmaterials.Inthelasttenyearsor

so,improvementshavebeenmadeinMRFprocessingequipment-specifically,

discscreensandopticalsortingequipment(forlargerfacilities)-thathave

enabledMRFstocosteffectivelyprocesssinglestreamrecyclables

• Improvements in Automated Collection Technologies –Inthelast20years,

therehasbeensignificantgrowthintheutilizationofautomatedrefuse

collectionvehiclesforbothrefuseandrecyclablescollection,particularlyinthe

U.S.ThistrendhasnotoccurredinOntario,althoughitmaybecomemore

prevalentinfutureyearswhereweatherpermits.Thegrowthofthismarkethas

resultedindesignimprovementsthathaveincreasedthereliabilityandreduced

themaintenancecostsofautomatedcollectionequipment,aswellaslowered

equipmentprices

• Pressure to Reduce Overall System Costs and Minimize Cost Increases

Resulting from Addition of New Materials –InmanypartsofCanadaand






theU.S.,differentgovernmentsareresponsibleforthecollectionand

processingelementsofcurbsiderecyclingsystems(i.e.,citiesandtowns

assumedorweregivenresponsibilityforrecyclablescollection,whilecounties

orstatesimplementedMRFs).Forthisreason,therewaslittleopportunityor

incentivetolookatsystem-wideefficiencies.Ittooklargemunicipalandprivate

sectororganizationswithmajorresponsibilitiesforbothrecyclablescollection

andprocessingservice,suchasthePeelRegion,theCityofToronto,Cityof

Phoenix,WasteManagement,Inc.,etc.,torecognizethepotentialsystem

efficienciesassociatedwiththesinglestreamapproach.Theseefficienciesare

primarilyassociatedwiththecurbsidecollectionofrecyclablesinasinglestream

form.Veryoften,singlestreamrecyclinghasbeenimplementedto

accommodateotherwastemanagementpractices(e.g.,co-collection,addition

ofhouseholdorganicscollection,etc.)

• Consolidation in the Waste and Recycling Industries –Withfewercompanies

handlinggreaterquantitiesofmaterialsfromlargergeographicareas,larger,

moreautomatedregionalMRFshavebecomeincreasinglyfeasible.Capital

investmentinprocessingsystemshasincreased,andwithittheuseofsingle

streamsystems

Accordingtoitspromoters,singlestreamrecyclingisreportedtohavethefollowing

benefits:

• Easierandmoreconvenientforresidents

• Increasedrecyclablecaptureratesduetotheabilitytocollectmoretypesand

volumesofmaterials

• Reductioninscavenging(materialsareusuallysetoutinonelargercontainer)

• Lesswindscatterandlitter

• Protectionofpaperfromrainifcartsorbagsareused

• Abilitytousehighcapacitycollectionvehicles,includingautomatedcollection

vehiclesinsomeareas

• Improvedcollectionefficiencies(reducedsecondsperstop,morematerialsper

stop)

• Reducedfatigueandriskstoworkers,especiallywhenthesystemisfullyorsemi-

automated

Reporteddisadvantagesincludethefollowing:

• Lessqualitycontrolatcurb

• Lowrecoveryofglassbycolourduetomoreglassbreakage

• Recoveredmaterialscontamination,especiallypaperwithglassshardsandplastic

film

• Lossofcollectedmaterialsduetocrossovercontamination(e.g.,plasticbottles

endingupinpaperbales)

• Potentiallylowervalueofrecoveredmaterials





• Contaminationoffibrecausedbyfoodandliquidsoriginatingfromthecontainers;

• IncreaseinMRFresiduals

• HigherMRFcapitalandprocessingcosts

• Highervehiclemaintenancecosts(forautomatedvehicles)

• Increasedmarketingofminimallysortedpaperasmixedpaper–muchofit

shippedoverseas–ratherthansortingpaperintogradesusedbydomesticmills,

therebycreatingsupplyconcerns.(Alsoresultsinlowgrading,asopposedto

highestandbestuse,andultimatedeteriorationofmaterialquality)

Singlestreamrecyclingisacomplexissuethatimpactsvirtuallyallofthemajor

componentsofasolidwastemanagementsystem.Specifically,singlestream

recyclingprogramcomponentsarelistedbelow.

Collection –Althoughcollectionefficienciescanbeachievedwithsinglestream

recycling,thisisnotacertainty.Municipalitiesconsideringsinglestreamrecycling

needtotakeasystem-wideapproachbecausecollectionsavingswillonlybe

achievedundercertaincircumstances.Iffullyautomatedwastecollectionis

franchisedorcontractedfortheentiremunicipality,thereisastrongincentiveto

investigatesinglestreamrecyclingbecauseexistingtruckscanbeusedtocollect

bothwasteandrecyclablesonseparateroutes.However,ifmostwastecollectionis

performedviarear-loadmanualtrucks,singlestreamrecyclingwillrequireanentirely

newcollectionfleet,andwillimposeacart-basedsystemonresidentswhomaybe

accustomedtosettingoutbags,bins,orbundlesorrecyclables.Similarly,ifa

municipalitydecidestomaintainatwoboxcollectionsystem,potentialsavingsin

stoptimesatthecurbwillnotbefullyrealized.

Single-streamcollectionsystemstypicallyusecollectionequipmentwithonboard

compactionthatisalsousedforwastecollectionforsimplicityofoperationsand

maintenance.Althoughwastebenefitsfrommaximumcompaction,singlestream

recyclingcollectioncanonlyacceptsomecompactionbeforeitsimpactwillseriously

affecttheperformanceoftheprocessingsystem.Theprocessingsystemisbased

ontheseparationof“flatsandrounds”ortwo-dimensionalobjectsfromthree-

dimensionalobjects.Excessivecompactionduringcollectioncancompromisethis

propertydifferential.

Reductionofthecollectionfrequencyfromweeklytoevery-other-weekcollection

canleadtosignificantcostsavingsinsinglestreamsystems.Whilethisoptionhas

beenidentifiedbyasapromisingstrategytoensurethelong-termeconomicviability

ofresidentialcurbsiderecyclingsystems,thereappearstobenodocumentationin

theliteratureofitscombinedeconomicimpacts.

Public Education –Forthepasttwodecades,mostresidentialcustomerswholive

inareaswithcurbsiderecyclinghavebeenaskedtocarefullyprepareandoften

separatefibrefromcontainers.Singlestreamrecyclingisasignificantchangein

behaviourforresidents–theyarenowtoldthatthereisnoneedtosegregate

recyclablesintoseparatecontainersandadistinctiverecyclingtruckisreplacedbya






“garbagetruck”.Thiscancreatesignificantscepticismamongthemaboutwhether

thematerialsareactuallyrecycled.

Processing – Thereisnoquestionthatprocessingsinglestreammaterialismore

costly,requiresmorecapitalinvestment,andrequiresasignificantthroughputto

assurefinancialsuccess.Additionally,residualsareknowntobesignificantlyhigher

forsinglestreamMRFs.Thesehighresidueratespartiallyoffsetthehighercapture

ratesofthesinglestreamprogram,soanyevaluationofsinglestreamshouldtake

intoaccountbothimpacts.

Somematerialsarenotcompatiblewithsinglestreamsystemsbecauseoftheir

physicalproperties.Forinstance,plasticfilmandtelephonedirectoriesaffectthe

discscreenperformance.Polystyrenepiecesandshreddedpapertendtoflow

throughthescreensandcontaminatemixedbrokenglass.Largerplasticcontainers

(over8litres)havethepotentialtobemechanicallyseparatedintothecardboard

stream,ifthepresortisinadequateandapostscreenqualitycontroloncardboardis

notimplemented.

Marketing – Priortoconvertingtoasinglestreamprogram,itwillbeextremely

importanttounderstandtheavailabilityofmarketsforsinglestreammaterial,andto

evaluatethepotentialtoachievetargetspecificationsforsortedmaterials.The

acceptabilityofmaterialscollectedthroughsinglestreamsystemsdependsonthe

specificproductstobemade.Thefactthatsomepapermillsareabletoaccept

singlestreammaterialsdoesnotmeanthatallwillbeabletodoso.Manymills

requiringhighqualityrecoveredpaperfeedstockhavegrowingconcernsaboutthe

ongoingavailabilityofsuitablesupply.

Althoughsinglestreamequipmentmanufacturersinsistthattheirconfigurationscan

produce#8ONPifneeded,therehasbeenmixedfeedbackfrompapermills.Some

indicatethatsinglestreammaterialishighlycontaminatedandincreasespotentialto

damagemillequipment,whileotherspointtoexamplesofsinglestreamfeedstock

thatisfarbetterqualitythanthatofdualstreamcustomers.Clearly,blanket

statementsregardingthequalityoffibrecomingfromsinglestreamMRFsshouldbe

avoided.TheMRFoperatorplaysakeyroleinproductquality.Therehavebeen

exceptionallycleanloadsproducedfromsinglestreamMRFsandverydirtyloads

fromdualstreamMRFs.

Whiletheissueoffibrecontaminationisamarketconcernforsinglestreamsystems,

othermarketconcernsalsoexist.Theissueofglassbreakageinthecollectionand

processingstepsandtheresultingreductioninglassrecoveryisanissuefacedin

bothdual-stream,aswellassinglestreamsystems,butisagreaterissueincertain

singlestreamsystems–particularlyincommunitieswithoutaccesstoglass

beneficiationfacilitieswithopticalsortingtechnology.

Cost – Despitetherecentgrowthinsinglestreamsystems,itwouldbeamistaketo

assumethatthesinglestreamrecyclingapproachrepresentsthemosteconomical

alternativeforallcommunities.Insomecases,otherapproaches,suchasthedual-

stream,two-binrecyclingapproach,mayprovetobemoreeconomical.This





conclusionunderscorestheimportanceofusinglocaleconomicandmarketdatain

assessingtheeconomicfeasibilityofsinglestreamrecyclingforalocalcommunity.

Sources and Links

Berenyi,EileenB.;“Single stream Ahead;”ResourceRecycling,August2002.pp

31-33.

EntecConsultingLtd.;“Report on Ontario Blue Box Material Recovery Facilities”;for

WDO;March2007

TimGoodman&Associates;“Single-Stream and Dual Stream Recycling:

Comparative Impacts of Commingled Recyclables Processing”;forMinnesota

pollutioncontrolAgency;January,2006

StewardshipOntarioKnowledgeNetwork

E&EFundProjectNumber207.YorkCollectionandProcessingOptimizationStudy,

2006


SingleStreamBestPracticesManualandImplementationGuide,SusanKinsella,

Conservatree,2007







Successful Marketing Strategy for Processed Recyclables

Overview

Marketingofprocessedrecyclablematerialsisthelaststepinthevaluechainof

municipalBlueBoxrecycling.Asaresult,theeffectiveexecutionofthisprocessis

largelyinfluencednotonlybytheend-marketdemandsandrelationships,butalsoby

virtuallyallothervaluechainelementsthatprecedeit.Thissectiondescribesa

rangeoffactorsthatleadtoimprovedmaterialqualityandhigherrevenuesand

providesguidanceonhowtostructureasuccessfulmarketingstrategy


Asuccessfulmarketingstrategy,whenproperlydesignedandexecuted,hasthe

abilitytoimproveprogrameffectivenessby:

• Ensuringhighqualityservicetospecifiedrequirements

• Improvingend-marketrelationships

• Improvingcontractorrelationships

• Allowingforflexibilityandinnovationtoaddresschangingconditions

• Positivelyaffectingsystem-wideprogramstrategies

• Allowingprocessortoproperlymanageinventory

• Aidingmarketdevelopment

• Raisingmunicipalprofile

• Engagingstaff

• Maintainingfocusoncontinuousimprovement

Itcanimproveprogramefficiencyby:

• Positivelyaffectingthenetcostoftheoverallrecyclingprogram

• Resultinginhigher,morepredictablerevenue

• Potentiallyoptimizingfunding

• Potentialmitigatingmunicipalrisk,ifdesired

• Improvingriskmanagementbywayofduediligence

• Identifyingpotentialrevenueenhancementsthroughmodifiedprocessing

Description of Marketing Practices

Themarketingofrecoveredmaterialsisoneofthemostcriticalfactorsinthe

successofanymunicipalrecyclingprogram,astherevenuerealizedfromthesaleof

materialsdirectlyaffectsthenetcostoftheoverallrecyclingprogram.Municipal

marketingstrategiesarewidelydiverseandvaried(asaconsequence,analysisof

BestPractice

Spotlight






WDOdatadidnotconclusivelyidentifyaleadingpracticeinthisrealm).Therangeof

strategiesincludes:

• Marketingdonebymunicipalitywhoretainsrevenue

• Marketingdonebycontractorwhoretainsrevenue

• Marketingdonebycontractorwhorebatesmostoftherevenuetomunicipality

• Marketingdonebycontractorwhosharesrevenuewithmunicipality(e.g.,50/50)

• Marketingdonebymunicipalitywhosharesrevenuewithcontractor

• Municipalitysellscommoditiestocontractorbasedonaformula(contractorthen

marketsandattemptstoreceiveapremium)

• Theuseofserviceagreementsorspotmarkets(oracombination)

• Theuseoftendersorotherbiddingsystemofvaryingterms

• PricingbasedonestablishedindexessuchastheOfficialBoardMarkets(OBM),

YellowSheetPrice

• Theexclusiveuseofbrokersorendmarkets(orcombination)

• Collectioncontractthatdoesnotincludecontrolofmaterialoncecollected

(collectioncontractorresponsibleforprocessingandmarketing)

• Cooperativemarketing(marketingrecyclablesfromdifferent,usuallysmaller,

programs)

• Othercombinationsoftheabovestrategies

Manyofthecontractor-controlledmarketingstrategieslistedabovearedesignedto

mitigatemunicipalrisk.Arecentreport,titled“Blue Box Residential Recycling Best

Practices – A Private Sector Perspective”,jointlypreparedbyStewardshipOntario

andtheOntarioWasteManagementAssociation(OWMA),suggeststhatmarket

risksshouldnotbeassignedtothecontractor withoutfullyconsideringtheoptions

andpotentialimplications.Ifcontractorsacceptriskstheycannotcontrol,theywill

makeappropriateprovisionsinpricing,forcingmunicipalitiestopayapremium.By

doingthis,contractorsprotectthebottomlinewhenmarketrevenuesdecline,and

makeexcessiveprofitsifrevenuesmeetorexceedexpectations.Because

contractor-controlledmarketingstrategiesareoftentiedtovariedcontractualterms

andpricing(e.g.,processingorcollectionfees),itisconsideredbestpractice,in

caseswhereapotentialdecisionmaybetoassignallrevenuestothecontractor,to

structureatenderthatpermitsthemunicipalitytoassesswhatexactlyisbeing

chargedbythecontractortoassumemarketrisks.Thiscanbedone,forinstance,by

requestingpricingoptionsthatincluderevenuesharingscenarios.

TheOWMAreportsuggeststhattheprivatesectorpreferredpracticeisforthe

contractortoretainresponsibilityformarketingthematerialsinexchangeforasmall

percentageofrevenue(5-10%).Theserevenuesharingarrangementsusuallyserve

tobenefitbothparties,astheobjectivesofrevenuemaximizationandappropriate

riskmanagementarealigned.Itshouldbenotedthatinthesecontractormarketing

scenarios,municipalitiesneedtoemployknowledgeablestafftomanagethe

contract,asthereislittleincentivetothecontactortorealizethebestrevenues.






Marketingbymunicipalstaff,whosemunicipalitiesretaintherevenue,canalsobea

successfulstrategy.Thisstrategycanbeemployedinmunicipally-operatedMaterial

RecoveryFacilities(MRFs),aswellasthosethatareoperatedonbehalfof

municipalitiesbycontractors.

Successfulmarketingisinherentlytiedtoallaspectsofarecyclingprogram.For

example,materialsareoftentargetedforrecyclingbymunicipalitiesforavarietyof

reasonsnotrelatedtotheirmarketability(e.g.,wasteauditinformation,regulations,

politicalmandate).Ifmaterialsincludedintheprogramdonothaveestablished

marketswithconsistentrevenue,orcannotbeusedtodisplaceanothermaterial

(e.g.,glassasanaggregatesubstitute),netrevenuepertonneisnegativelyaffected.

IfPromotionandEducation(P&E)isnoteffectiveandcollectioncrewsdonotdeliver

qualityfeedstocktotheMRF,thenthereispressureontheMRFtomeetrecyclable

materialrecoveryandqualitytargets.Becauseofthis,themarketerneedsto

communicatewiththoseresponsibleforProgramPlanning,P&EandCollections.

Themarketer’srelationshiptootherprogramelementsisparticularlyrelevantwhen

itcomestoprocessing.Inordertosuccessfullymarketprocessedcommoditiesat

thehighestpossiblerevenue,amarketerrequiresaconsistentsupplyofquality

material(i.e.,meetsmarketspecificationsandpayloadminimums).Asmarketsfor

recyclablecommoditiesaregenerallywellestablished,fluctuationinrevenueis

primarilytheresultofindividualproductqualityandcurrentmarketconditions.Even

ifstaffresponsibleformarketingisnotthesameasforprocessing(ormanagingthe

processingcontract),itisimportantthatthemarketerhasakeenunderstandingof

MRFoperations,contracts,andopportunities(e.g.,alternativeplasticsorts,

densificationoptions,etc.)thatdeterminethequalityandcompositionofthematerial

thatisbeingsold.Conductingroutineauditshelpstoensurethatopportunitiesthat

improverevenuethroughtonnageincreaseormitigationofqualityconcernsarefully

actedupon.Equally,themarketerneedstounderstandandestablishrelationships

withmarkets(allend-users),andmutualunderstandingofthecompositionofthe

marketedmaterialisimportanttothisrelationship.Themarkets,towhichrecyclable

materialsaresoldforrevenue,arecriticallyimportanttounderstand,astheyspecify

types,quantities,andqualityofmaterialsthatwillbepurchased.Theserequirements

fundamentallyinfluenceprocessing,collectionandotheraspectsofarecycling

program’soperation.

Implementation of a Good Marketing Strategy

Thereareanumberofleadingpractices,basedonthemarketingexperienceof

developedprograms,thatcanbeemployedbymunicipalprogramoperators.These

include:

• anunderstandingofbasicmarketrequirements

• theperformanceofmarketing-relatedaudits

• theprovisionofqualityfeedstocktoendmarkets

• asystematicapproachtofindingandselectingendmarketoptions

Thesepracticesandtheirbenefitsaredescribedbelowingreaterdetail.





Planning and Operating According to General Principles that Promote Service,

Integrity and Sound Decision-making

Whereasawastemanagerisaserviceprovider,witharesponsibilitytocollectwaste

andkeepcitizenssatisfiedwithservice,arecyclingmanagermustalsoprovide

qualityfeedstocktoanindustrialprocess,ensuringclean,consistentvolumesof

useablematerial.

Someindustryexpertsindicatethatthereiscurrentlyagapinquality,consistency,

andreliabilitybetweenmaterialsproducedbythemunicipalrecyclingprocessand

theexpectationsofbuyersofthesematerials.Higherdegreeofcommunications

andinteractionsbetweenproducers(recyclers)andbuyers(end-markets)maybe

neededtoclosethisgap.Progressinthisareamayshifttherelationshipfroma

punitiveonethatcauseslossofrevenues(reductioninpricespaid,downgrades,

etc.)toacollaborativeonethatresultsinhigherrevenuesfrombuyerexpectations

beingmet(customizedmaterialcompositions,specialbailingmethods,convenient

deliveryschedule,etc.).

Generalprinciplestoapplytorecyclablematerialsmarkets:

• Marketsshouldbeassecureaspossible,eitherbyhavingmultipleoutletsorby

establishingpurchaseagreements

• Marketrequirementsandlocationinfluenceprogramcollectionandprocessing.

Materialwithlowmarketvaluegenerallybenefitwithnearbyoutlets,whereas

productswithhighvaluemaybeeconomicallytransportedintruckloadorrailcar

quantitiestomoredistantmarkets

• Marketsmayneedvaryingquality,consistencyandquantity.Materialsneedtobe

processedtomeetthespecificmarketspecificationsofthebuyingentity.,

• Marketfluctuationsmustbeconsideredinprogramplanning.Thiscanbegauged

byreviewinghistoricalpricingtrendsavailablethroughtradeassociationsand

publications,monitoringofthetradepress,personalcommunicationwithend

markets,brokersandmunicipalmarketers,andbytrackingkeymarketindicators

(refertotheSourcesandLinkssectionbelow)

• Theremustbeoneormoremarketsformaterialsmadefromrecycledproducts

Traditionalrevenuegeneratingmarketsrequirethefollowing:

• Highandpredictablequalityfeedstock(i.e.,uncontaminatedrecyclables)

• Sufficientvolumestobecosteffective

• Aconsistentsupply

Thesemarketrequirementsdictatetheappropriaterecoverytechnique,equipment

andrecyclablematerialrevenues.

Programmanagersneedtorecognizethatavarietyofmicroandmacroeconomic

factorsinfluencetherevenuesreceivedfrommarketingprocessedrecyclable

materials.Someoftheseinclude:






• Businesscycle-theperiodicupanddownmovementsineconomicactivity(i.e.,

expansion,contraction,recessionetc.)

• Energyprices

• Transportationcosts

• Exportandimports

• Currencyexchange

• Sizeandproximitytomarket

• Supplyanddemandofaparticularmaterial

• Competition

• Labourissues

• Adevelopment/changeinenduse

• Supplyanddemandofvirginmaterials

• Innovationsinrawmaterialsupply

• Regulations,institutional,andgovernmentissues(domesticandinternational)

• Quality/quantityandconsistencyofsupplyofmaterial

• Landfillcosts(indirectly)

Conducting Marketing-Related Audits

Materialauditsareinstrumentalinidentifyingissues,deducingcausesofproblems,

andmakingprogramchanges.Theyallowprogrammanagerstoreinforceand

leveragepositiveelementsoftheprogramandreduceoreliminateproblemareas.

Inboundauditsserveto:

• IdentifyqualityoffeedstocktotheMRF

• Identifychangesincomposition

• Drawattentiontonewpackaging

• Aidinplanningprocesschanges

• AssistintargetingP&E

• Monitorcollectioncrewdiligence

• Aidineffectivelymanagingcollectionsandprocessingcontracts

Residueauditsserveto:

• Determinetheamountofrecyclablematerialthatislosttoresidue

• FurtheranalyzeeffectivenessofP&E

• Furtherdeterminecollectionconsistencyasitrelatestoacceptedmaterial

• Identifypotentialsortingopportunities(e.g.,TubsandLidsvs.3-7)

• Identifypotentialmechanical(ormanual)deficienciesinthesystem

• Determinemarketingoptionsforresidue(alternateprocessing)





• Aidsineffectivelymanagingcollectionandprocessingcontracts

Commodityaudits(baleaudit)serveto:

• Determineifprocessingismeetingmarketspecifications

• Communicatedatatoendmarkets

• Defendagainstdowngrades

• Determineifrevenueisbeinglost(e.g.,aluminiuminFibre)

• Identifysortingopportunities(e.g.,naturalvs.pigmentedHDPE)

• Identifypotentialmechanical(ormanual)deficienciesinthesystem

• Trainsorters

• Aidineffectivelymanagingprocessingcontracts

Finding and Selecting Markets

Municipalmarketersneedtocontinuouslyevaluateend-marketoptionsfor

transportationandmaterialhandling.Deliveryoptionsofprocessedmaterialstoend

marketsareasfollows:

• Haulrecyclablematerialdirectlytomaterialconsumer(themill)whereitis

processedandusedinanindustrialprocess

• Haultoanintermediary(abrokerordealer)whoprocessesittospecificationand

haulsittothemill

• Haveanintermediarypickuprecyclablematerial

• Adoptaregionalapproachwithsmallerfeederprogramsdecontaminatingand

storingmaterialstofeedintolargerregionalprocessingcentresthatprocess

materialsandhaultomarket.Moreinformationoncooperativemarketing

experienceisavailablefromAMRCandCooperativeMarketingprojectreport

(E&EFundProject#86)

Factorstoconsiderinchoosingarecyclablematerialsmarket:

• Distance to market:thegreaterthedistance,thehigherthehaulagecostsand

thegreatertheneedtomaximizepayload

• Required specifications for material preparation: ingeneral,selectthemarket

withtheminimumspecificationsandthehighestprice.Forastablesituation,it

isimportanttobalancethetwoelements,andlookatpatternsandhistory(such

asdowngrades)

• Tonnages:programswithlargertonnagescanoftenselldirectlytoamarket,

ensuringahigherprice.Smallerprogramsmayrequireabroker/merchantor

cooperativeagreementtoobtainfavourablepricing

• Revenue/cost ratio:maximumrevenueimpliesahigherprocessingcost,

thereforethereisaneedtoselecttheoptimumrevenue/costratio.Itis

importanttofindabalancebetweenthetwo






Determiningthebestmarketforamaterialrequiresfoursteps:identifying,

contacting,selectingandnegotiatingand/orcontractingwithbuyers.Tobeexecuted

properly,thisprocessusuallyrequiresdedicatedtimeandresources.Evensmall

programsshoulddedicateresourcestothistask,evenifitistemporary/periodicfor

thepurposeofsettingupandmonitoringalonger-termstrategy.Itshouldbenoted

thatitmaybeadvisabletousemorethanonebuyer,ifpossible,andtosellmaterial

usingacombinationofagreementsandspotmarkets.

• Step 1 - Identify potential buyers:Contactinformationcanoftenbefoundfrom

talkingtootherrecyclingprogramoperators,orbycontactingnationaland

provincialrecyclingand/orindustryorganizations.Numeroustradepublications

andwebsitesalsoexist.Marketersalsooftenreceiveunsolicitedcallsfrom

potentialbuyers.

• Step 2 – Contact potential buyers:Thisstepinvolvesrequestinginformation

regardingthemarket.Somequestionsmightinclude:

• Pricepaidformaterial

• Materialspecifications(degreeofcontaminationacceptable,densification

required)

• Transportationoptionsandcosts

• Minimum/maximumloads

• References

• Paymentterms

• Step 3 – Select a buyer:Thisstepmayinvolveinterviewingpotentialbuyersand

assessingthembasedonasetofcriteria.

• Step 4 – Contract with a buyer:Awrittenagreementprotectsarelationshipwith

abuyerascompetitionformarketsescalates.Contractscanbeusefulwhen

marketstakeadownturnbecausebuyersmayonlyservicecustomerswith

writtenagreements.Writtenagreementsmayincludelettersofintentto

purchasematerialaswellasformalcontracts.Provisionsinawrittenagreement

mayincludetonnageandvolumerequirements,materialqualityspecifications,

andprovisionsfordeliveryorpickup,terminationprovisions,lengthof

commitment,andthepricingbasisthatmayincludearelevantindex.

Knowledgeablemarketerscontinuallyresearchpricingtrendstoensuretheyreceive

fairvalueformaterial.Marketersshouldmonitorperformancebyanalyzingrelevant

industrypublications(e.g.,CSRPriceSheet)andcommunicatingwithother

municipalmarketers,markets,brokersandorganizations(e.g.,Associationof

MunicipalRecyclingCoordinators,MarketsandOperationsCommittee).





Sources and Links

OntarioWasteManagementAssociation:“Blue Box Residential Recycling Best

practices – A Private Sector Perspective”. GuilfordandAssociates(February2007)

http://www.owma.org/home.asp

FederationofCanadianMunicipalities:“Solid Waste as a resource – Guide for

Sustainable Communities”(March2004)

http://www.fcm.ca/

MinnesotaOfficeofEnvironmentalAssistance:“Single-Stream and Dual-Stream

Recycling – Comparative impacts of Commingled Recyclables Processing”(January

2006)

http://www.pca.state.mn.us/oea/lc/commingled.cfm

OfficialBoardMarketsYellowSheetPricing(OBM):

http://www.packaging-online.com/paperboardpackaging/

CSRPriceSheet:

http://csr.org/pricesheet/pricesheet.htm

AssociationofMunicipalRecyclingCoordinators(AMRC):

http://www.amrc.ca/

StewardshipOntarioE&EFundApprovedProjects:

“ #86, Pre-Feasibility Study of Co-operative Marketing Programs for Blue Box

Materials in Ontario”(April2006)

“#164, Markets Help Desk Report“ (January2007)

http://www.stewardshipontario.ca/eefund/projects.htm






Best Practices in Multi-Family Recycling

Overview

StatisticsCanada2001Censusreportedthatapproximately26%ofOntario’s

residentscurrentlyliveinmulti-familybuildingsandthenumberiscontinuingtogrow.

Sincethecollectionofrecyclablematerialsfrommulti-familyhouseholdshas

historicallybeenachallengingprocess,anewapproachthatincorporatesBest

Practicesisneeded.Thissectionisdesignedtoprovideguidancetomunicipalities

thatseektoenhanceparticipationlevels,recoverylevels,andmaterialqualitylevels,

whileyieldingoperationalefficienciesinmulti-familycollection.


ByemployingBestPracticesinmulti-familyrecycling,municipalitiescanobtainthe

followingeffectivenessbenefits:

• Increaseddiversionfromlandfill

• Decreasedcontaminationofmaterials

• Increasedcapturerates

• Increasedparticipationinrecycling


• Collectionoffront-loadbinsorside-loadcartsatasinglecollectionpointaremore

cost-effectivemethodswhencomparedtoindividualstopsateachhousehold

fortheequivalentnumberofunits

• Front-loadbinsaremorecostefficientthancarts,cartsmoreefficientthanboxes


• Optimizationofcollectionandprocessingsystemsduetoincreasedtonnage


OntarioRegulation103/94requirestheownerofabuildingthatcontainssixormore

dwellingunitsandislocatedwithinamunicipalitythathasapopulationofatleast

5,000toimplementasourceseparationprogramforthewastegeneratedatthe

building.

Municipalitiesarerequiredtocollectrecyclablematerialsfrommulti-familybuildings

onlyifthepropertiesarereceivinggarbagecollectionservicesfromthemunicipality.

However,ifgarbageserviceisnotprovidedbythemunicipality,allqualifyingmulti-

familybuildingsarestillrequiredtorecyclealuminiumfoodorbeveragecans,glass

bottlesandjarsforfoodorbeverages,newsprint,polyethyleneterephthalate(PET)

bottlesforfoodorbeverages,steelfoodorbeveragecans,andanyothercategories

ofwastethatarecollectedoracceptedintheblueboxprogramofthemunicipality

BestPractice

Spotlight






wherethebuildingislocated.Despitethislawbeinginplaceforoveradecade,a

recentE&E-fundedFocusGroup(seeSourcesandLinkssection)studyrevealedthat

mostpropertymanagerswerenotawareofthisOntariogovernmentregulation.

Municipalitiesoftenregardmulti-familybuildingsasbeingpartofthecommercial

sector.Therefore,financialandoperationinformationmaynotbereportedunderthe

WDODatacallforthemunicipalBlueBoxprogram.Municipalitieswhodonotservice

thecommercialsectormaybeunawareofthepotentialtoincludethemulti-family

sectorintheirresidentialBlueBoxprogramasapossiblecost-effectivemethodof

capturinglargeamountsofrecyclables.Assumingthechallengesassociatedwith

multi-familyrecyclingareunderstoodandaddressed,thebenefitsofaddingthis

sectortothemunicipalBlueBoxprogramincludeincreaseddiversionofmaterials

fromlandfill,increasedrecyclingtonnage,optimizationofcollectionandprocessing

systems,andincreasedrevenuesfromthesaleoftheadditionalrecyclingmaterials

captured.

Itisrecommendedthatmunicipalitiesidentifyallexistingservicedandun-serviced

multi-familybuildingswithintheirboundaries.Forthosecurrentlynotserviced,

investigatethepossibilityofincorporatingthissectorwiththoseresidentsserved

throughthemunicipalBlueBoxprogram.Factorstoconsiderincludewhethersome

orallofthemulti-familybuildingscouldbeabsorbedintotheexistingcurbside

programorifadefinedmulti-familyprogramwouldbewarranted.Therationalewill

beaffectedbysuchthingsasthenumber,size,andlocationofthebuildings,aswell

astheimpactontheoverallsystemtocollect,process,andmarkettheexpected

increasedtonnage.Forcomplexesthatarecurrentlybeingservicedunderthe

municipalBlueBoxprogram,itisimportantthattheperformancebemeasuredand

monitored.

Waste Composition Audits

Itisrecommendedthatperiodicwastecompositionauditsbeconductedtoassist

withprogramplanning,todeterminegenerationratesandcapturerates,andto

obtainbenchmarkdatausedtocompareperformanceovertime.Stewardship

Ontariohasdevelopedmultifamilywasteauditworksheets,tipsand,guidelinesfor

wastesorting.

Generation and Capture Rates

Eachmulti-familyhouseholdinalargeurbanareageneratesapproximately264kgof

recyclablesperyear(approximately92kglessthansinglefamilyhouseholds),but

lessthan32%ofthisiscaptured.Incomparison,approximately60%ofthe

availablerecyclablesgeneratedbysingle-familyhouseholdsarecaptured.

Acontributingfactortothelowergenerationrateforbothgarbageandrecyclable

materialsisthatthereareusuallyfeweroccupantsineachhousehold.Onaverage,

thereare2peopleperapartmentunit,asopposedto2.9inasinglefamilyhome.






Factorsthatadverselyaffectrecyclingatmulti-familybuildingsinclude:

• Recyclingisalmostalwayslessconvenientthangarbagedisposal

• Insufficientrecyclingbincapacity

• Residents’senseofdisconnectfromrecyclingprogram,leadingtosenseofdirect

responsibility

• Anonymitylimitsrepercussionsfornotrecyclingproperlyoratall

• Transienceissues-apartmentsmaybeconsideredtemporaryaccommodation

• Multi-culturalandsocio-economicfactorsmayaffectrecyclingbehaviour

• Multi-lingualissuesmayhinderunderstandingoftherecyclingprogram

• Opinionthatmaintenancefeescoverwastemanagementservices

• Insufficientpromotionandeducationoftheprogram

Multi-familybuildingsexistinavarietyofsizes,heights,anddesigns.Sincethe

majorityofmulti-familyrecyclingprogramshavebeenaddedtoexistingapartment

developmentsthatwerenotdesignedforrecyclingprograms,thereareoften

challengeswithinsufficientspace,location,orcollectionsystemforrecyclingbins.

Inaddition,multi-familybuildingsgenerallysharecommonbinsandhavetheir

garbageandrecyclingcollectedatacentralcollectionpoint.Unlessclosely

monitored,sharingcommonbinscancontributetothepotentialformisuse,causing

contaminationandprematuretoppingout.However,giventhehighconcentrationof

residentsusingcommonbins,thereisapotentialtocost-effectivelycapturelarge

amountsofrecyclables.

Design Requirements for New Developments and Re-Developments

Althoughsomeexistingbuildingsmayhavelessthanoptimallayoutsforrecycling

programs,thereisanopportunitytoensurethatanynewdevelopmentsare

designedtomeettheindividualmunicipality’srecyclingsystemrequirementspriorto

approval.Itisrecommendedthatmunicipalitiesdevelopmandatoryrequirements

forneworre-developedmulti-familybuildingstobedesignedtoallowforintegrated

wastemanagementpractices.

Thestandardsforthesedevelopmentsshouldworkinharmonywitheach

municipality’sWasteManagementMasterPlan,andsuitthecollectionsystemand

processingoperationsaccordingly.Thedesignplanssubmittedbythedeveloper

shouldbereviewedbycompetentstaffwiththeSolidWasteknowledgetoassess

thedrawingstodetermineifthedesignrequirementsforgarbageandrecycling

collectionhavebeenmet.

Ifdevelopersproposeachangeincollectionpoints,methodofcollection,changeof

use,oranexistingbuildingbeingexpandedbymorethan1/3itsoriginalsize,the

plansshouldalsobereviewedbySolidWastestaff.Eachsiteandbuildingshouldbe

inspectedpriortoapprovaltoensurethatthedevelopmenthascompliedwithall

requirementsforsolidwasteandrecyclingprograms.





Inorderformulti-familybuildingstoqualifyforthemunicipalgarbageandrecyclables

collectionservices,itisrecommendedthatmunicipalitiesonlyapprovethosenew

developmentsorredevelopmentsthatadheretotheappropriatedesign

requirements.Requirementsmaystipulateanappropriatetype,quantity,and

locationofthegarbageandrecyclingbinstoaccommodatethevolumeofmaterial

expectedtobegeneratedbythenumberofresidentialunitsatthecomplex,

assumingfullparticipationinthemunicipalrecyclingprogram.

Theapplicationsubmittedtothemunicipalityshouldincludedetailsregardingthe

numberofdwellingunitsinthedevelopment,thetotalgroundfloorarea,thenumber

ofstories,accessroutes,loadingfacilities,garbagerooms,recyclingrooms,sizeand

quantityofgarbageandrecyclingcontainerstobeused,and,ifdesignedforachute

disposalsystem,thetypeandquantityofchutesforgarbageandrecycling.

The new or re-development should be designed to ensure that the recycling

system is as convenient a system for the residents to use as the garbage

system.Forexample,achutesystemoneachfloorwouldhavetoreceiveboth

garbageandrecyclables,eitherasonechutewithmechanicalbafflesforresidentsto

controlthedirectionoftheappropriatestream,orwithindividualchutesforgarbage

andeachsteamofrecyclables.Ifnochuteisprovided,thenthereshouldbeacentral

garbageandrecyclingfacilityonthegroundfloor.

Set a maximum allowable limit on un-compacted and compacted garbage. In

themajorityofmunicipalities,residentsofmulti-familybuildingshavenolimitson

theamountofgarbagetheyareallowedtogenerate.Inmostcases,therecycling

systemwasan“addon”toexistinginfrastructure,andthereforethedisposalof

garbageisalmostalwaysmuchmoreconvenientthanrecycling.Inaddition,unlikeat

curbsideset-out,thereisanonymitywithmulti-familywastedisposal.Thislimitsthe

opportunityforpeerpressureregardingtheamountofgarbagedisposedorfornot

participatingintherecyclingprogram.

Itisimportanttoinformthemanagementandresidentsofthemaximumgarbage

limit.Itisalsoimportantthatcollectors,whethermunicipalforcesorcontracted,

understandandfollowthegarbagelimitallowedforeachlocation.

Set a minimum recovery threshold for recycling. Itisrecommendedthatsites

fullyparticipateinthemunicipalrecyclingprograminordertobeeligibletoreceive

municipalgarbagecollection.Itwillbenecessarytodeterminewhatquantityof

recyclablesshouldbeusedasabenchmarkinordertobeconsideredfully

participatingintherecyclingprogram.Thiswilldependlargelyonthefrequencyof

collection,theamountofmaterialsacceptedintheprogram,andthecollection

systeminwhichtobasethemeasurement.Forexample,theCityofTorontohas

usedthefollowingbenchmark:forevery100unitsatacomplex,avolumeof6cubic

yards(or1212USgallons)ofrecyclablesshouldbecapturedperweekasaminimum.

Themanagementandresidentsareinformedofthisminimumrequirement.Inmany

cases,onceappropriatepromotionandeducationactivitiesareexecuted,thecapture

rateexceedstheminimumrequirements.






Manyprogramsrequiremulti-familybuildingstopurchasetherecyclingbinsatfullor

subsidizedcost.Arecentfocusgroupstudyrevealedthatalthoughsuperintendents

identifiedtheneedandrepeatedlyrequestedthattheirpropertymanagementsupply

morerecyclingbins,thisminimalinvestmentrequestwasrefused.Unlessthe

buildingwasgoingtoincuradditionalgarbagechargesforexcessquantities,theydid

notseethefinancialbenefittotheirbusiness.Ifthereweremaximumgarbagelimits

andminimumrecyclinglimits,theywouldbemorelikelytocomplywithobtaining

theappropriatenumberofbins.

Thefeedbackfromthecollectoriscrucialregardingcomplianceatthemulti-family

buildings.Buildingsthatarenotmeetingtheirminimumshouldbenotifiedregarding

theirperformanceandofferedguidancetowardachievingabettercaptureratein

ordertobeeligibletoreceivemunicipalgarbagecollection.

Thereshouldnotbeamaximumlimitplacedonrecycling.Insomeprograms,alimit

hasbeenplacedonthequantityofcardboardsetoutintherecyclingcarts.The

operationalproblemscreatedbybigquantitiesofcardboardcanberesolvedby

changingcollectionmethod,bintype,orincreasingfrequencyratherthanlimitingthe

quantityacceptedasrecycling.Onthefirstofthemonth,buildingsarelikelytohave

anincreaseintheamountofcardboardduetonewresidentsunpacking.Thisshould

betakenintoconsiderationwhenassessingthecollectionsystemandbintypes.

Settingalimitonrecyclableswillonlyresultinthedisposalofthematerialas

garbage.Ifthequantityofrecyclablesisunmanageablewithinthecurrentsystem,it

maybenecessarytoreassessthebinsizeandtypeusedatthesite,and/orconsider

increasingthecollectionfrequencytomeettheneed.

Type of Collection Bin

Thetypeofcollectionbinsisdependentoncurrentoperationalpracticesforeach

municipalprogram,aswellasthelocationanddesignofthemulti-familybuilding.

Themethodofgarbagecollectionmaydeterminethemethodofrecyclingcollection.

Forexample,multi-familybuildingsreceivingfront-endbulkgarbagewouldbean

appropriatecandidatetoconsiderbulkrecycling,asthelayoutisalreadyconduciveto

thistypeofbinsandcollectionvehicles.

Verysmallcomplexesthathavelessthan6units,maydistributeindividualblue

boxesfortheirresidentstosetatthecurbforcollectionwiththesinglefamily

homes.However,dependingoneachprogram’srecyclingsortstreams,andthe

extentofrecyclingmaterialsacceptedbytheprogram,combinedwiththecollection

frequencyofferedthroughthemunicipalprograms,eachunitmayrequiremorethan

oneboxtosufficientlycontaintherecyclablesbetweencollections.Thiscancreate

storageissueswithintheunits,potentialproblemsatthesetoutpoint,andan

inefficientcollectionmethodatthecomplex.

Multi-familybuildingsorinfilltownhousecomplexesthathaveacommoncollection

pointforupto30unitsshouldconsiderusing90or95gallon(340-360litre)roll-out

cartsthatarecompatiblewiththecollectionvehicles.Eachrecyclingcartoffersthe

equivalentvolumeof6to8curbsiderecyclingboxes.Theresidentswillnothavethe





negativeaspectsassociatedwithstoringthematerialintheirownunitsbetween

collections,andthecartcanbemechanicallyliftedandemptiedmoreefficiently.The

cartsshouldbestoredinalocationthatisconvenientfortheresidentstouse(inside

orshelteredfromrainandsnow),and,ifdifferentthanthecollectionpoint,moved

outforthedayofcollectiononly.

Forcomplexesbetween30and100unitseithercartsorfront-endbulkbinscanbe

effective,dependingonthenumberofrecyclingstreamsintheprogramandthe

designofthecomplex.Programsofferingsinglestreamrecyclingmayseeabenefit

byusingfrontloadrecyclingbinsinthismid-sizemulti-familybuildingcategory,as

severalcartscanbereplacedbyonebulkbin,therebyreducingthenumberofcarts

andliftsrequired.Forexample,one4-cubicyard(3-cubicm)bincouldreplace9carts

containingthesamematerials.However,iftheexistingdesignisasprawlinginfill

townhousecomplex,itmaybemoreappropriatetohaveseveralrecyclingstationsto

enhanceconvenience,andhavethecartsbroughttooneormorecentrallocation

pointsoncollectionday.

Forcomplexeswith100unitsorgreater,front-loadbulkbinsshouldbeconsidered

thepreferredchoicetomaximizebothefficiencyandeffectiveness.Ifthebinsareto

beaccesseddirectlybyresidents,itisrecommendedthatthebinsbemodifiedto

limittheopeningtocontainonlythedesiredmaterialsandtherebyminimize

opportunityforcontamination.Thetoplidshouldbekeptpadlockedbetween

collections,withonlythebuilding’smaintenancestaffresponsibletoopenitdailyto

removeanycontaminatingitems.Oncollectionday,thetoplidshouldbeunlocked,

contaminatingitemsshouldhavebeenremoved,andthebinplacedinpositionfor

collection.

Determine Suitable Recycling Bin Capacity

Bincapacityshouldbeconsideredinrelationtothenumberofresidentialunits

sharingtherecyclingcontainers,thenumberofsortstreamsrequiredunderthe

municipalprogram,andthedegreeofautomationbythecollectionsystem.

Asaguideline,theCityofTorontohasusedthebincapacityformulaofaminimum

of6cubicyards(4.6cum)recyclingcapacityforevery100unitscollectedweekly.

Thissamevolumeconvertsto1211.84USgallons(4587litres).Multi-family

buildingsusing90or95USgallonrecyclingcartswould,therefore,requirea

minimumof13cartsforevery100units.

Capacityconsiderationsforindividualcommunities,however,willbehighlyaffected

bytherecyclingprograminplace.Forexample,somesemi-automatedprograms

requirethecardboardtobeflattenedandtiedinbundlesofspecifieddimensions

besidetherecyclingcarts.Inthiscase,thecollectorcouldmanuallysetthebundled

cardboardinthehopperashe/shemustgetoutofthetruckanywaytoconnectthe

cartstobemechanicallylifted.Thismethodmayreducethenumberofcarts

required.

Automatedsystemsaredesignedforallrecyclingmaterialstobecontainedinthe

carts,asthedrivercontrolstheliftingofthecartsfrominsideofthevehicle.






Althoughthisisaconvenientmethodofcollection,considerablymorecartsmaybe

required.Thisisparticularlythecasewithexcesscardboardgeneratedbynew

residentsunpacking.

Frequency of Collection

Recyclablesfrommulti-familybuildingswith6ormoreunits,andthathavea

commoncollectionpoint,shouldbecollectedweekly.Incasesofexistingstructures

thatcandemonstratethereisinsufficientstoragespacetoproviderecyclingbin

capacityforweeklycollection,morefrequentcollectionofrecyclablesmaybe

requiredtoensuremaximumcaptureofrecyclingmaterials.

Storage and collection area

Recyclingbinsshouldbestoredinside,wherepossible,providedthatallbuildingand

firecodesarefollowed.Thisensuresbettercontrolovertheproperuseofthebins

andminimizesopportunityforpubliccontamination.Therecyclingroomshouldbe

largeenoughtocontainalltherecyclingbinstobeused,besafeandcleanfor

residentstoaccess,permiteasymovementofthebins,andallowforadditional

spaceforfutureprogramexpansion.

In-unit storage and/or transfer containers

AminiBlueBox,basketorareusableBlueBagmaycontributetoahigherrecovery

rate,particularlywhentheboxorbaghasprintedgraphicstoreinforcetheitemsthat

areacceptedintherecyclingprogram.However,researchhasshowninconclusive

resultsastothelong-termeffectsofthesetools,partlyduetotheongoingturnover

ofnewresidents.

Dependingonanindividual’srecyclinghabits,suchtoolscanbeseenasa

convenienceorasanuisance.Surveyshaveshownthatoftenresidentstaketheir

recyclingtothebinsontheirwayouttowork,shopping,etc.Theydonotwantto

taketheemptycontainerwiththemnorhavetocomebacktotheirunitwithit.

However,eveniftheminiBlueBoxorBlueBagisusedonlyasstoragewithinthe

unit,andnotfortransferringpurposes,itcanserveasaneffectivereminderthata

programexistsforthecomplex,andthatcertainitemsshouldbeseparatedfromthe

garbage.

Someprogramsrecommendthatresidentstransporttherecyclablesfromtheirunits

tothebinsinplasticbagsanddepositthemateriallooseintotheappropriatebin.

Althoughthiscanbepromotedasthesecond“R”(Reuse),thismethodcanposea

contaminationproblemintherecyclingbinifresidentsdonotunderstandthe

importanceofdepositingthemateriallooseintotheappropriatecategory.Ifplastic

bagsarenotincludedinthemunicipalrecyclingprogram,itisimperativethatthere

beasmallclearlylabelledwastereceptaclebesidetherecyclingbininstructing

residentstodeposittheiremptyplasticbagsthere.






Owners, Property Managers, and Superintendents:Accordingtoarecentfocus

groupstudy,“superintendentsinmostofthestudyareasreportedthattheyare

workingmainlyinisolationandwithoutthehelpofthemunicipalwastemanagement

experts”.(E&EFundProject#199,pg7)

Buildingstaffneedtobefullytrainedwithregardstotheresponsibilitiesand

requirementsoftherecyclingprogram.Severalprogramshavedevelopeda

“HandbookforOwners,PropertyManagersandSuperintendents”toeducatethem

regardingtheresponsibilitiesandtotrouble-shootproblemswithsuggestionsofhow

toresolvetheissues.Inaddition,italsomaybebeneficialtoofferalinktoawebsite

thatallowsownersandpropertymanagerstodownloadliteratureregardingthe

program,aswellasgraphicsortranslatededucationalmaterialforpostingand

distributiontotheresidents.Alistofresources,includingcontactnamesand

numbers,shouldbemadeavailabletothemulti-familybuildingstoassistwith

concernsthatmayarise.

Writtenliterature,however,cannoteliminatetheneedforface-to-facecontactwith

thesitestaff.Sitevisitswillberequiredtocheckonthebincontents,replace

missingoroutdatededucationalmaterialsandfadedbinlabels,andofferguidance

andsupporttothesitestaff.Dependingonthespecificbuilding,therecanbe

considerablerotationofsitesuperintendentsandpropertymanagers.Staffchanges

areusuallynotreportedtothemunicipalityandthenewstaffmaynotunderstand

theprogramrequirementsthatwereexplainedtothepreviousstaff.

Residents:Asreportedinfocusgroupsandinterviews“Residentsareoperatingon

thebasisofhabit,imitationandpartialinformation”.(E&EFundProject#199,pg3)

Appropriateliteratureisrequiredinordertoconveyprograminformationtoresidents.

Themostcriticalinformationthatneedstobeunderstoodbyresidentsis:

• Whatitemsaretobeincludedintherecyclingbins

• Howtheitemsaretobesortedorprepared(flattencardboard,rinseoutbottles)

• Wheretherecyclingbinsarelocatedtodeposittheitems(ifrequiredtotakethe

materialtoadesignatedlocation)

Itisrecommendedthatnewresidentsbegivenarecyclingpackage,shownthe

recyclinglocation,andhavetherecyclingprogramexplainedaspartoftheirleaseor

agreementtoliveinthecomplex.Havingaclauseintheleaseoragreementthat

statesthatrecyclingismandatorycanhelptostimulateresidents’participationin

recycling.

Itisimportanttoknowthedemographicswithinthebuildingtoensurethe

promotionandeducationmaterialsandmethodsareappliedappropriately.

Multi-lingual,multi-cultural,andsocio-economicfactorscanaffectthesuccessofthe

recyclingprogramifchallengesarenotacknowledgedandaddressed.Ifadditional

languagesarerequired,itisrecommendedthatrecyclingliteraturebetranslatedas






appropriate.Thesecanbepostedonawebsiteforsitestafftodownloadandpostor

distributeasnecessary.

Inadditiontodistributingliteraturetoeachunit,itisrecommendedthatrecycling

literaturebepostedinacommonarea(s)ofthebuildinginEnglish,aswellasinthe

otherappropriatelanguagesidentifiedforthebuilding.Fordurability,thepostings

canbecontainedinaprotectivecase,orcoveredwithplexi-glassorlaminated.

Commonareasthatmaybesuitableforthepostingboardincludethelobby,mailbox

room,laundryroom,chuterooms,andrecyclingrooms.Havingtherecycling

literaturepostedensuresthatnewresidentshaveanopportunitytoseethe

information,andoffersrepeatedpromotionandreinforcementoftheprogrameach

timeresidents(orvisitors)areexposedtotheinformation.Theuseofpicturesand

othergraphicstoillustratewhatcanandcannotberecycledisrecommended,

particularlywhenresidentsspeakmultiplelanguages.

Collectors:Itisimportantthatthecollectors,whethermunicipalforcesorcontracted,

areadequatelytrainedandfullyunderstandtheirroleinthemulti-familyrecycling

program.Thisincludesunderstandingtheacceptablerecyclingitems,what

constitutescontamination,theminimumamountofrecyclingmaterialrequiredat

eachsite,andproperdocumentation.

Itisrecommendedthatcollectorshavea“problemsheet”foreachcollectiondayon

whichtorecordanyissueswiththesitethatwouldrequirefollowuppriortothe

nextcollectionday.Theseissuesmayincludeconcernssuchascontamination,bins

notintheproperpositionforcollection,binsnotout,notmeetingtheminimum

quantitytobeconsideredfullyparticipating,binneedingrepair,etc.Itshouldalso

statewhethertherecyclingbinwasemptiedbythecollectorornot.Thecompleted

problemsheetshouldbesubmittedtoSolidWastestaffforfollowupattheendof

eachcollectionday.

Feedback

Sitestaffandresidentsneedtohearhowtheyaredoingtostaymotivated.Periodic

communicationwiththesiteisrecommendedtoupdatecontactinformation,

replenishresourcematerials,andofferguidanceandsupport.

Training

Tomovebeyondthefeelingofdisconnectandlackofresponsibilityfortherecycling

programsatmulti-familybuildings,itisimperativethatkeyplayersthataredirectly

involvedwiththerecyclingprogram(PropertyManagers,Superintendents,residents,

andcollectors)beadequatelytrainedinallaspectsoftheprogram.

Inthepast,theCityofBarrieofferedan8-hourMasterRecyclercoursetargetedat

PropertyManagers,Superintendentsandapartmentresidentswhowerecommitted

toactasrecyclingchampionswithintheirbuildings.TheMasterRecyclercoursewas

organizedintofoursessions:

• DayOne:IntroductiontoRecycling





• DayTwo:TheMRFandMarkets

• DayThree:Communications

• DayFour:PreparingtobeMasterRecyclers

TheMasterRecyclercourseparticipantswereprovidedwithinformationaboutthe

municipalrecyclingprogramasawhole,andhowtocommunicatewithmulti-family

residentstopromoteeffectivewastediversionthroughrecycling.Uponsuccessful

completionofthe4classesandatest,theparticipantswereissuedaMaster

RecyclerCertificate.Theybecametheon-siterecyclingcontacts,educatingnewand

existingresidents,whilepromotingtheprogramwithintheirbuildings.Subsequently,

thereweresubstantialimprovementsinthequalityandquantityofthematerials

captured,andlong-termbenefitsstemmingfromtheMasterRecyclercoursehave

beenseenseveralyearslater.Itisrecommendedthatmunicipalitiesconsider

offeringsimilarcomprehensivetrainingforkeyparticipantsinthemulti-family

recyclingprogram.

Sources and Links

“Multi-Residential Recycling System Improvements, Residents, Superintendents &

Property Managers Focus Groups & Interviews”,E&EFundProject#199,January

2007

http://www.stewardshipontario.ca/eefund/projects/mfamily.htm#199

“City of Toronto Requirements for Garbage and Recycling Collection from New

Developments and Redevelopments”,CityofToronto,lastRevisedNovember2006.

http://www.toronto.ca/garbage/pdf/requirements_all.pdf

“Ontario Annual Generation of Blue Box Materials by Demographic Type (Based on

Waste Composition Study Results)”, Stewardship Ontario, 2006

“Best Practice Guidelines for Curbside Recycling at Multi-Occupancy Residential

Developments, Draft Guidelines”,SustainabilityVictoria,June2006.

“Enhanced Waste Diversion in Multi-Unit Residential Dwellings in the City of Toronto,

Ontario”, Katherine Whitfield. August 2005.

“Best Practices in Multifamily (Apartment) Recycling”, Eureka Recycling. June 2004.

“Excerpts from Presentation to Toronto Waste Expo Featuring Master Recycler”.

Margot Beverley, To The Point Communications. December 2, 2004.

StewardshipOntariomultifamilywasteauditworksheets,tips,andguidelinesfor

wastesorting.

http://www.stewardshipontario.ca/eefund/projects/audits/waste_audit_own.htm

“Report on Master Recycler: Phase II”,CityofBarrie,inconjunctionwith

CorporationsSupportingRecycling,April2001

“Multifamily Recycling: A National Study”, UnitedStatesEnvironmentalProtection

Agency.November2001.






“Multi-Residential Multilingual Pilot Project”, WDOOPT-R3-06,TheRegional

MunicipalityofPeelinPartnershipwithWDO,October2001.

“Multi-Family Recycling Initiative”,WDOProjectOPT-R2-12,CityofGreaterSudbury,

April2001.

“Waste Diversion Concept Testing: Qualitative & Quantitative Findings”, Northstar

ResearchPartnersPreparedforTheCityofToronto,February2001

“Toronto Apartment Blue Bag Recycling Pilot”,EnvirosRISMcConnellWeaver,

March2001.

“City of Barrie Multi-Family Fibre Bag Project”,CityofBarrie,March2001.

“Report on Master Recycler: A Multi-family Recycling Initiative”, City of Barrie, in

conjuction with Corporations Supporting Recycling, July 2000

“Assessment of Multi-Unit Recycling in Ontario”,RecyclingCouncilofOntario,

August 2000.

“Focus on Residential Multi-Unit Housing: Structural Building Factors and Recycling

Success”, NYC Residential Waste Characterization Study. Prepared for New York

City Department of Sanitation’s Bureau of Waste Prevention, Reuse and Recycling

by R.W. Beck, Inc. , November, 2006.

“Private Households by Structural Type of Dwelling, by Province and Territory (2001

Census”),StatisticsCanada,CensusofPopulation.

http://www40.statcan.ca/l01/cst01/famil55b.htm

“EnhancedDiversionFromApartmentsPilotProject”,MetroWorks,October1997.

EnvironmentalProtectionAct.OntarioRegulation103/94

http://www.e-laws.gov.on.ca/DBLaws/Regs/English/940103_e.htm

“SectorComplianceBranch:InspectionsIndustrial,Commercial&Institutional–

RecyclinginMulti-unitResidentialBuildings”,GovernmentofOntarioMinistryofthe

Environment

http://www.ene.gov.on.ca/envision/scb/work/recycling.htm#results

“Recycling Handbook for Owners, Property Managers and Superintendents”,Cityof

Toronto.

http://www.toronto.ca/garbage/multi/pdf/recycling_handbook.pdf

“Toronto Recycles, Apartment Version”,CityofToronto

http://www.toronto.ca/garbage/multi/pdf/461apartment.pdf

Markhamwebsiteapartmentrecycling

http://www.markham.ca/Markham/Channels/wastemgmt/aptrecycle/recycle_tools.ht

m





Best Practices in the Use of Recycling Depots

Overview

Recyclingdepotsofferacost-effectivealternativetocurbsidecollectioninsmall

municipalitiesandserveasasupplementalchannelformaterialoverflowinlarger

communities.Whilethiscollectionmethodissimplertomanageandoperatethan

curbsidecollection,thereareanumberofchallengesandbarriersthatprevent

programsfromachievingoptimalperformance.Thissectionprovidesguidanceon

BestPracticesthatneedtobeemployedacrossdepotsystemsifperformance

improvementsaretobeachieved.


ByemployingBestPracticesindepotcollectionprograms,municipalitiescanobtain

thefollowingeffectivenessbenefits:

• Improveddiversionratesforcommunitiesthatdonotcollectrecyclablescurbside,

orsmallerruralprogramswithlowervolumes

• Increasedtonnageofrecyclablesduetoanavailableoverflowchannelfor

residentsthathavelimitedstoragecapacity

• Increasedtonnageofrecyclablematerialsnotacceptedatthecurb,suchas

expandedpolystyrenepackingmaterialsandfilm


• Collectioncostsavings-communitiesthatarelargeinareabutsparselypopulated

canachievecostsavingsbyutilizingdepotsasanalternativetocurbside

collection

• Transportationcostsavings-depositedmaterialcanbetransferredwithlargeroll

offorotherbulkcarriervehiclesfromfewerlocationsthanifcollectedfrom

everyhouseholdinamunicipality


RecyclingDepots(depots)constituteaneffectivechannelformunicipalitiestooffer

residentsalocationtobringtheirrecyclablesandhelpcapturerecyclablematerials

thatwouldotherwiseendupinthelandfill.Theyareprimarilyusedinsmallrural

municipalities,wherenocurbsidecollectionprogramexists.

Depotsarealsousedincommunitieswithhighparticipationratesasanalternate

optionforresidents.Inthesecommunities,therationaleforhavingadepotisto

providecapacityforoverflowmaterialsbetweenorinadditiontocurbsidecollections.

Furthermore,depotsareeffectiveinmunicipalitieswithahighseasonalhousehold

percentageandinareaswithsmallprivateroadswherecollectionisdifficultand

costly.Depotsinhighparticipationmunicipalitiescanalsoprovideforcollectionof

BestPractice

Spotlight

BestPractice

Spotlight







itemsnotacceptedatthecurb,suchasexpandedpolystyrenepackingmaterialsand

film.Somematerialsthataretoolightorbulkymakecurbsidecollectiondifficult,as

theyareeasilywindblownortaketoomuchroominrecyclingcontainers.

Designateddropoffbinsinrecyclingdepotsgiveresidentsanoptiontorecycle

theseitems.Largebulkyorlightmaterialsseparatedattherecyclingdepotmay

sometimesbesentdirectlytoendmarketswithoutanyprocessing,providedquality

controlenforcementisavailableatthedepot;however,transportationcostsmaybe

prohibitiveifun-baledshippingweightsarelow.

Depotsareacommontoolforruralcommunitiesthatarelargeinareabutsparsely

populated.Theyofferresidentsaplacetobringrecyclableswherecollectionservices

wouldbeveryexpensivecomparedtotheamountofmaterialscollectedandwhere

potentialrevenuesgeneratedfrommarketingrecyclingmaterialsarelow.

Depotsaregenerallyinexpensivetoinitiate,relativetocurbsidecollection.The

primarycostsarethecontainersandtransfercosts.Oftenmunicipalitiescontractout

therentalofcontainers,completewiththedeliveryservicetoemptythecontainers

ataprocessingfacilityorendmarkets.Theothermajorcostsarethelabourto

maintainthesite,assistparticipatingresidents,andofferrecyclingprogram

information.Tocontaincosts,oftenmunicipalitiesuseanexistingmunicipally-

ownedlocation,suchasaTransportationWorksfacilityorarecyclingdepotsetupat

themunicipally-ownedlandfill.Municipalitiessometimeschoosetoopenadepot

withoutstaff,however,thispracticeisnotpreferredassitemaintenanceand

contaminationcontrolaremademoredifficult.

Keyattributesofeffectiveandefficientdepotsystemsare:

• Situatedinasafeandaccessiblelocation

• Convenienttouse,ensuringsmoothtrafficflow

• Designedtolimitthepotentialforcontaminationandillegaldumpingby

• employingtrainedandknowledgeablepersonnel

• transferring/removingmaterialswithadequatefrequency

• Attractiveandwell-maintained

• Appropriatesignagewithclearinstructionstoresidents

• Adequatepromotionandeducationtoenhanceawarenessofresidents

• Robustrecordkeepingprocesses

• Optimizedcontainerdesignandtransportationsystem

Situated in a safe and accessible location

Properplanningiscrucialinselectingadepotlocation.Depotssituatedon

municipally-ownedpropertyconstituteagoodpractice,assucharrangements

facilitateproperoversight,regularmaintenance,andimprovedriskmanagementwith

respecttoliabilitiesandhazardousmaterials.Accessibilitytodepotsishighin

locationsvisitedfrequentlyandregularlybyarearesidents.Thesemayinclude

municipalcommunitycentres,sportsarenas,orlandfills.





Municipalitiesshoulddeterminethelistofitemsthatwillbeincludedintherecycling

programbyreferringtoOntarioRegulation101andbymarketavailability.Materials

beyondtheregulatedlistshouldhavesufficientandstablemarkets.Otherwise,

excessitemsoftenbecomeresidue,therebyloweringtheefficiencyoftheprogram.

Convenient to use, ensuring smooth traffic flow

Inthosemunicipalitieswherenocurbsidegarbagecollectionisprovided(residents

bringhouseholdgarbagetoamunicipallandfill),depotssetupatlandfillsmakeit

moreconvenientforresidentstoparticipateintherecyclingprogram.(Those

municipalitiesthatdohaveacurbsidegarbageandrecyclingprogramsshouldalso

considerprovidingdrop-offdepotsatthelandfillorotherstrategiclocationsinthe

communitytoensuresufficientcapacityforoverflowmaterials.)Depotslocatedat

landfillsalsohelppromoterecyclingofmaterialsthatcouldhaveendedupinthe

landfill.Mostmunicipally-ownedlandfillsarestaffed;consequently,theadditionofa

recyclingdepotmaybemanageableutilizingtheexistinglandfillstaff.Thestaffare

necessarytohelpencouragerecyclingandtoreducethepotentialforillegaldumping

andcontamination.Depotsarebestlocatedwherestaffareavailabletooverseethe

siteandreportwhenbinsarefull.

Depotsshouldbesetupwithanadequatenumberofcontainers,orientedinsucha

wayastominimizetheeffortassociatedwithtransferringmaterialsfromthecarto

thebin.Thismaybeachievedbyusingaramporahigherplatformforvehicular

traffic.Thenumberandcapacityofcontainerswilldependontheamountof

materialscollectedatthedepotsandobserved/desiredresidentparticipationrates

(anestimatecanbeobtainedthroughwasteaudits,whichshouldbedoneatvarious

timesoftheyeartocaptureseasonalfluctuations).Depotsshouldenableresidents

todropoffrecyclablesquicklyandenhancetheirwillingnesstorepeattheprocessin

thefuture.

Thesiteshouldbedesignedforsafeoperationsbyresidentsandemployees.It

shouldbeofadequatesize,allowingforgoodtrafficflow.Effectiveflowofvehicular

trafficisimportant,asconvenienceisdiminishedifresidentsneedtowaitinqueue

inordertoreachthebins.Vehiclesshouldgenerallydriveinonedirection,

minimizingtheneedtobackup.Rampareasshouldhaverailingorothersafety

precautionsasrequired.

Designed to limit the potential for contamination and illegal dumping

Depotsthathavebeendesignedtolimitthepotentialforcontaminationandillegal

dumpingcontributetothesuccessoftheprogram.Binsequippedwithsize-

restrictedopeningshelpdetercontamination.Anexampleisanopeningthatallows

flattenedcardboardmaterialsonly.Flatteningcardboardincreasesbincapacityand

helpsensureboxesareemptiedoutpriortothetransfer.Illegaldumpingsigns

shouldbepostedinthedepotareacitingmunicipalby-laws.

Illegaldumpingiscommonatdepots,butisofteneliminatedwhendepotsare

staffedandservicedwithtrainedpersonnel.Employeescanassistresidentsin

placingrecyclablesintopropercontainersandprovidegeneralinformationaboutthe






recyclingprogram.Furthermore,employeededicationandprogrambuy-iniscritical

toreducingcontaminationandillegaldumpingissues.Asaconsequence,staff

workingatthedepotshouldbefullytrainedandknowledgeableaboutthedetailsof

theentiremunicipalwastemanagementprogram.

Depotswithoutstafftendtohavehighercontaminationandmoreillegaldumpingof

materialsatgates,infrontof,oraroundrecyclingbins.Insomecommunities,un-

staffeddepotsbecamesoexpensiveandtime-consumingtooperateandmaintain,

thatprogrammanagerschosetoclosethedepotandstartacurbsidecollection

service.Thus,programswithun-staffeddepotsshoulddevelopamaintenanceplan

forthesitestoensureaestheticandfunctionalappeal.Theassistanceof

enforcementstaffmayhelpeducateanddeteroffenders.

Binsneedtobeemptiedbeforeoverflowing.Overflowingbinscreateanimpression

thatthemunicipalitydoesnotcaretoproperlymaintaintherecyclingprogram,which

cannegativelyaffecttheattitudeoftheresidentsandtheirwillingnesstoparticipate.

Front-loaderbinscanbeemptiedonanappropriateschedule,drivenbytherequired

capacity.Cartsandrolloffbinsareusuallyusedwhenthedepotisclosetoa

processingfacilityandpickupscanbedonemorefrequently.Appropriatefrontend

containers,rolloffbinswithcompactionorevenhighwaytransferareusedwhenthe

hauldistancesaresubstantial.

Attractive and well maintained

Adepotthatappearscleanandorderlygivesapositiveperceptiontoresidentsthat

theprogramisoperatingsuccessfully.Pavedareasthatcanbemaintainedduring

wintermonthshelpensurethatthesitecanbeaccessedbyresidentsallyear.Ifa

depotisnotpaved,itshouldbegradedtoensurewaterdoesnotpondinthearea

anddeterparticipation.Depotareasshouldbeclearedofsnowandsandedand/or

salted,asrequired,inwintermonths;thispracticealsohelpstominimizepotential

liabilities.

Anydebrisornon-recyclablesshouldberemovedpromptlytokeepthesite

appearanceneatandtidy.Ifdepotsarenotcleanedregularlytheydevelopapoor

reputationandresidentsmaystopusingthefacility,oftenresultinginincreased

illegaldumping.

Appropriate signage with clear instructions to residents

Provisionsshouldbemadetodisplayinformationinamannerthatisunderstandable

andheavilybiasedtowarduniversallyunderstoodgraphics,photosordisplaysof

acceptableandunacceptableitems.Depotsignageshouldhavelargeletteringthatis

clearandvisiblefromareasonabledistance.Thecoloursshouldbebrightand

complementthedepotappearance.Standardgraphicsandsymbolsthatare

informativeandeasytointerpretshouldbeused.Thegraphicsandsymbolsshould

beconsistentwiththerecyclingprogramlogosandfontstyles.Eachbinshouldbe

clearlylabelledtodefinethetypeofmaterialsitcanreceive.





Largesignsmountednearthedepotentranceshouldindicateacceptableand

unacceptablematerials.Illegaldumpingsignsshouldalsobepostedatdepotsat

variouslocationsasrequired.Forcentresthatarenotvisiblefrommainroads,

directionalsignsshouldbeusedtoaidusersinfindingthedepot.

TheKnowledgeNetworkcontainsanumberofdepotgraphicsandsignageexamples

fordownload.

Provide adequate promotion and education to enhance awareness of residents

Residentsneedtobecomeawareofthedepotlocationandreceivefrequent

remindersabouttherecyclingprogram.Aweather-proofinformationareaatthesite,

withpamphletsavailableforresidentstotakeaway,canhelpinthepromotionofthe

program.

Communitieswithhighpercentageofseasonalresidentsneedtotimetheir

educationalandpromotionalcampaignswiththearrivaloftheseseasonalresidents.

Someprogramsmaychoosetogiveafreeblueboxtoresidentsforstoringmaterials

betweendepotdrop-offtrips.

Robust record keeping processes

Itisimportanttoaccuratelymeasureandrecordweightsofmaterialscollectedatthe

depot.Regardlessofthehaulsystemused,materialsshouldbeweighedpriorto

tippingattheprocessingfacility.ThesevolumetricsallowforaccurateDatacall

submissionandprovidemeanstomanage,evaluate,andfine-tunetheprogram.

Differentmaterialsshouldbeweighedseparatelyifmaterialsaresortedinto

separatebinsatthedepot.

Optimized container design and transportation system

Municipalrecyclingprogramcoordinatorsneedtoselectaneffectivesystemof

transportingrecyclablestoprocessingfacilitiesorend-markets.Oftenwasteaudits

and/orparticipationstudiesareneededtodetermineapproximatematerialvolumes

onweekly,monthly,andseasonalbasis.Onceanexpectedmaterialamounthas

beendetermined,containerandtransportationselectionsneedtobeconsidered.

Containerscanrangefrom95-galloncarts,four-orsix-yardclosedbinsthatare

materialspecificandrequirespecializedhaultrucks,four-orsix-yardfrontloaderbins,

orroll-offcontainersranginginsizefrom12yardto40yards.Cautionshouldbe

usedbeforecommittingtotheuseofspecializedhaultrucksfornon-standardbins,

astherearelimitedoptionsavailableincaseoftruckbreakdownorotherequipment

failure.Specializedtrucksarealsolikelytobeunusableforothermunicipal

operations,whichwilltendtoincreaseoverallwastemanagementandrecycling

costs.Forsomemunicipalities,contractingthetransportationofcontainerscanhelp

offsetthecapitalinvestmentstart-upcostsforpurchasingtherequiredvehicles.

Containerselectionwilldependlargelyonprocessingcapabilities(whethermaterials

canbeco-mingledfortwo-streamprocessingorsinglestreamprocessing,or

materialsmustbecompletelysorted).Itwillalsodependoncapitalinvestment






fundsavailable.Smallprogramsmayconsiderrentingcontainersorcontracting

transportationservicesthatincludetheprovisionofcontainers.Contractor

availabilityanddistancetoprocessingfacilitieswillalsodictatethetypeofcontainers

used.Ifaprocessingfacilityisnearby,smallerand/orstandardcontainers,suchas

cartsorrolloffcontainers,maybemoreeconomical.Incaseswherelongdistance

haulsareneededitiscriticaltoincorporatecompactionwithinthesystemto

minimizetransportationcosts.Thismaybeaccomplishedwiththeuseofstandard

frontendcontainerthatutilizesthetruckcompactionsystemwhereservicesarenot

availableatthedepotsite.Whenservicesareavailable,rolloffcompactorswitha

rampcanbeused.Wherelargevolumesjustifyit,transfertrailerswithorwithout

compactionmaybethebestoption.

Programmanagersshouldstrivetomaximizetheuseofcontainerstohelpensure

onlyfullloadsarepickedup.Haulingfullanddenselypackedcontainerswillreduce

transportationcostsonaperunitbasis.Depotstaffshouldtrytomovematerials

aroundinthebintohelpensureallcornersandotherspaceisutilized.Staffcanuse

loadersorhandtoolstofacilitatethisprocess.Itisnotrecommended,however,to

askresidentsoremployeestoenterthebinsortrytomovematerialsbyhanddueto

theriskofinjury

Sources and Links


http://www.vubiz.com/stewardship/Welcome.aspUseloginandpasswordtoaccess

theKnowledgeNetwork,whereanentiremoduleisdedicatedtodepots

http://www.dep.state.pa.us/dep/deputate/airwaste/wm/recycle/tech_rpts/Schuylkill.h

tm

http://www.dep.state.pa.us/dep/deputate/airwaste/wm/recycle/tech_rpts/Blairsville.h

tm

http://www.markham.ca/Markham/Channels/wastemgmt/recycledepots.htm

http://www.region.peel.on.ca/pw/waste/crc/

http://www.dep.state.pa.us/dep/deputate/airwaste/wm/recycle/tech_rpts/McKean.ht

m

http://www.dep.state.pa.us/dep/deputate/airwaste/wm/recycle/tech_rpts/Cambria.ht

m

http://www.dep.state.pa.us/dep/deputate/airwaste/wm/recycle/tech_rpts/Carbon.ht

m

http://www.uog.edu/cals/PEOPLE/Pubs/WASTE/F-888.PDF





Best Practices in Collection and Processing of Challenging Plastics

Overview

Inanefforttoincreasewastediversionratesandremovenon-biodegradable

materialsfromthelandfill,someOntariomunicipalitiesarechoosingtoinclude

auxiliaryplasticmaterialsintheirBlueBoxprograms.Chiefamongthesematerials

arePolyethylene(PE)filmbags,polystyrenefoamandcontainers,andoversized

PolyethyleneTerephthalate(PET)bottles.However,duetotheirphysicalproperties,

theseplasticspresentavarietyofchallengesincollectionandprocessing,hindering

operationalefficienciesanddrivingupthecosts.Thissectionisdesignedtoprovide

guidanceinmakingthechoicetoincludethesematerialsintotheprogramand

developingmethodstorecycletheminaneffectiveandefficientmanner.The

handlingofeachmaterialisdescribedindetailbelow.


Byincludingchallengingplasticstoarecyclingprogram,municipalitiesmay

experiencethefollowingbenefits:

• Increaseddiversionfromlandfill

• Enhancedcustomersatisfactionlevels

However,thereareanumberofdrawbacksassociatedwithcollectingand

processingtheseplastics:

• Extremelyhighcostpertonne

• Decreasedoperationalefficienciesoftrucksandprocessingfacility

• IncreasedincidenceofmaintenanceissuesattheMRF

• DecreasedstoragespaceattheMRF

• Lowmarketingrevenuesduetolimitedmarkets

Section A: Best Practices in Handling PE Film

Upto85percentofthePEfilmgeneratedbyhouseholdsisreadilymarketable,

includinggrocerybags,retailshoppingbags,newspapersleeves,drycleaningbags,

andanyotherclean,drybagmarkedwitha#2(HDPE)or#4(LDPE)resincode.In

Canada,rinsedHDPEmilkpouchesandouterbags,breadbags,sandwichbagsand

bulkfoodbags,diaperouterbags,frozenfoodbags,andover-wrapfortoilettissue

andpapertowelsaredefinedasrecyclableundermarketspecifications.Thefilms

aremostlymadeofLow-DensityPolyethylene(LDPE,#4),LinearLowDensity

Polyethylene(LLDPE,#4),andHigh-DensityPolyethylene(HDPE,#2).

OtherPEfilmpertinentfactsinclude:

• Recyclablefilmsintheresidentialwastestreamcompriseapproximately13%of

theplastics.RecyclablePEhouseholdfilmcomprises85percentofall







householdfilms,offeringanopportunityforincreasedrecoveryofhousehold

materials.

• Eveninprogramsthatdon’taskforfilmandbags,thismaterialhasbeenknownto

approachfourpercentbyweightofmaterialattheMRF.

• Theoreticalcalculationshaveshownthatonesortercanpositivelysort28kgper

hourofhouseholdPEbagsataMRF,basedon70bagsperlb(4,325bagsper

hour)

• AmaterialrecoveryfacilityinCaliforniawithanoverallcapacityof200tonnesper

dayreportsathroughputof30-40tonnespermonthoffilm,with8sorters

spendingatleastsomeoftheirtimepickingbags.

• ThevalueoftheCaliforniafacility’srecoveredfilmislow,atUS$20perton,due

tolowquality.TheCaliforniafacilityalsoreportsthatevenwithsortershandling

thematerial,atleastonehourperdayisspentremovingbagsandfilmthathave

accumulatedonthestarscreens.

• InOntario,accordingtotheCSROnlinepricesheet,PEfilmsellsat$47pertonne

inMarch,2007.Theaveragepricepertonnein2006was$137pertonneandin

2005reachedahighof$148pertonneaveragedovertheyear.

• Collectionofhouseholdbagsandfilmisachallenge,withitshighvolumeto

weightratioandpotentialtoinstantlybecomeoffensivelitterifwind-borne.

• Onestudyestimatestheincrementalgrosscostofcollectingandprocessingfilm

at$900/tonne.

Collection

TherearethreemainstreammethodsofcollectingPEfilm.Eachoftheseis

describedingreaterdetailbelow:

• Retaildrop-offcollection

• Curbsidecollection,includingsinglestream,two-stream,andbluebag

• Depotcollection

Retail drop-off collection

Retaildrop-offcollectionresidentsbringingplasticbagsbacktothepointofpurchase.

Withretailbagcollectionthecostsarebornebythestoreandnotthepublic

recyclingagency.However,frequentlylocalrecyclingcoordinatorsarenotpartnersin

establishingoroperatingtheseprograms,leadingtoalackofcommunication,gaps

inpubliceducation,andnoaccountabilityforthematerialscollected.Thefollowing

attributescanmakeadrop-offcollectionoptionasuccess:

• Therecyclingbin(s)providedmustbeaccessible,clean,attractive,andserviced

regularly

• Publiceducationmustbeapriority,withvariousmediaaswellasin-storedisplays

usedtocommunicateinstructionsonwhatandhowtorecycleatthestore





• Thematerialcollectedmustbeproperlyhandled,processedandmarketedtoa

reliableenduse,andthepublicmustbenotifiedofthisaspartofthe

educationalprogram.

ThelocalcommunitycouldprovidecollectionbinsandP&E,whilethestorecovers

thehandling,processingandtransportationcoststoaprocessingcenter,eithertheir

owndistributioncenterandfacilityorthelocalMRF.

Curbside collection: Two-stream scenario

Inthisscenario(mainlyemployedinUS),residentsdeposittheirvarioushousehold

bagsandacceptableplasticfilmsintoonelargeplasticbag,andplaceitbetweenthe

containersblueboxandthefibresblueboxorbundle.Thelightweightbagmustbe

wedgedfirmlyinplacetoavoidbeingdislodgedandwindblown.Thecollection

vehicleoperatorpicksupthislargebag,simultaneouslyregisteringthatitisfeather-

lightandsqueezingittoensurethatnorigidobjectsareenclosed.Ifcontamination

seemsevident,thebagisleft.

Thesebagsofbagsarethenplacedinyetanotherplasticbagofalargesize,

approximately60gallons(227litres),hanginginaconvenientplaceonthetruckbody.

Fullbagsaretiedoffanddepositedinthenewspaperorcardboardcompartmentof

thetruck.

Curbside collection: Single-stream scenario

Insingle-streamsystems,aggressivepubliceducationcampaignsareneededto

ensurethatresidentsagainbagalltheirsmallbagsandfilmproductsintoonelarger

bag,andplacethisbagintheirblueboxorcollectionbag.

Inprogramsthatuseanenclosedcartforsingle-streamcollection,apracticenotyet

commoninOntario,residentsshouldbeeducatednottodepositindividualbagsthat

canfallorblowoutofthecartduringthecollectiontip.Becauseofthecommingling

withallothermaterials,bagscollectedthroughsingle-streamprogramsmaybemore

costlytoretrieveandoflesserquality.

Curbside collection: Blue or clear bag scenario

Thelargercollectionbagforthesmallerbagscouldbeaseparateblueorclearbag,

oranotherbagofbagscouldbestuffedintooneblue/clearbagwiththeother

materials.Thisseparateblue/clearbagisthenpickedupandthrowninthetruckwith

therestofthebags,andpossiblycompacted.Again,thecollectionoperatorwould

checkforlightweightandthepresenceofrigidobjects.

Depot collection

Severalcontainers,suchas90-gallonrollcarts,canbesetupwithPElinersfordepot

userstodepositbagsandfilm.Largedisplaysignscanbesetupadjacenttothese

containersillustratingtheacceptableandnon-acceptablematerialsforimmediate,

on-siteinstructionandreinforcement.






Asneeded,thesiteattendantcanvisitthecollectioncontainersanduseatoolto

compactthebagsasmuchaspossibleinordertocontainthelargestnumberof

bagsbeforetyingoffandreplacingthelinerbag.Theselarge,stuffedbagsmaythen

bestoredinacovereddumpsteroracompactorforlaterremovaltotheMRF.

Processing

Thefirstpointofcaptureforbagsisthetipfloororapre-sortstation,beforethereis

anypotentialforthebagstoopenandscatterindividualbags.Sortersoneach

subsequentlineshouldbetrainedtocapture,bag,andthendepositanybagsmissed

inthepre-sortintoastoragebunker.Sortersmayalsobetrainedtode-bagany

containersandfibresfromplasticbags,buttherecoveryforrecyclingofthesebags

whichmaycontainresidualproductsisquestionable.

Themostefficientwayofmovingbagsfromboththetipfloorandthesortlinesinto

thestoragebunkermaybewithavacuumsystem.Thevacuumsystemcouldload

anoverheadstoragebintosavespace,duetothelightweightofthematerial.The

vacuumsystem,orgravity,couldalsopotentiallyloadthematerialintothebaler.

Automaticde-baggersthatmaybeusedinbluebagprocessingfacilitiescould

potentiallyalsoopenthesmallerbaginsidethatcontainstheaccumulatedhousehold

bagsandscatterthesmallerbags.Additionally,anybluebagsthatarestuffedfullof

smallerbagsonlymustbedirectedawayfromthede-baggeranddirectlytothebaler.

Bluebagsthatheldotherrecyclablesmayormaynotberecyclable,dependingon

themarketspecificationforbluefilmandthedegreeofmoistureandcontamination

inthesebags.

Balingfilmmaybemadeeasierandmorefrequentbyadoptingthe“SandwichBale

™”pioneeredbyWal-Martstores.Thisisabalewithlayersoffilmplasticalternating

withlayersofcardboard.Whenthebaleisbrokenopen,thefilmandOCClayers

naturallyandeasilyseparate.However,amarketmustbefoundthatwillacceptthis

typeofbale,andthenseparatethematerialsforfurtherprocessing(Ontariomarket

availabilityforthisproductsisunknownatthistime).


Residentsmustbeproperlytrainedaboutthecorrecttypesofbagsandfilmsto

includeforrecycling,thetypesthatareprohibited,andtheacceptablewayto

packagethebagsandfilm.Consistentandrepetitivemessagesdesignedtomotivate

changetowardspecificbehavioursandhabitsmustbeappliedrigorouslyusingany

andallappropriatemediachannels.

Themostimportantmessageisto“BagtheBags”.Additionallyresidentscanbe

educatedabout“TyingtheKnot”beforestuffingbagsintothelargerbags.

Markets

TheAmericanChemistryCouncil’srecycledplasticsmarketsdatabaselistssix

companiesinOntarioasbuyersofpost-consumerresidentialretailbagsandother

films.Additionallyfourteencompaniesarelistedasbuyersof“post-consumer,





industrial,commercial,institutional”bagsandfilm,whichmayindicatethatthey

wouldpurchasematerialcollectedinretailstoresbutnotfromMRFs.Thelargest

end-useforthismaterialiscompositeplasticlumberproducts.Largeamountsof

bluebagsmayreducethequalityandpriceofthematerial.

Ontario Communities Recycling Bags and Film

FourteencommunitiesinOntariocollectbagsandfilmintheircurbsideprograms

(someoftheseattheirdepotsaswell).Tenofthesemunicipalitiesinstructresidents

toplacetheirbagsandfilminsideonebagandtieit,thenplacethisbageitherin,or

beside,theirbluebox(orequivalent)forcontainers(onecommunityissingle-stream

butstillusesblueboxes).Twocommunitiesinstructresidentstoplacetheirbagina

second,greyboxwithfibreproducts.Onesinglestreamcommunityinstructs

residentstoplacetheirbaginsidetheircart,andonebluebagcommunityinstructs

residentstouseaseparateblueorclearbagforhouseholdbagsandfilm.

Eightcommunitiesthatcollectbagsandfilmallowthemostofthematerialsinthe

completeEPIClistofgrocerybags,retailshoppingbags,newspapersleeves,dry

cleaningbags,rinsedHDPEmilkpouchesandouterbags,breadbags,sandwich

bagsandbulkfoodbags,diaperouterbags,frozenfoodbags,andover-wrapfor

toilettissueandpapertowels.Fivecommunitiesrestrictthelisttogrocerybags

and/orshoppingbagsonly.

Implementing PE film handling Best Practices

Retaildrop-offcollectionisthedesiredapproachforfilmrecycling,becausecostsare

sharedbytheretailer.Merchantshaveabusinessinterestinprovidingrecycling

serviceson-sitefortheirstorebrandbags,aswellascompetitors’bags,and

residentswouldnothavetomakeaspecialtriptorecycletheirbags.Active

partnershipbythemunicipalrecyclingcoordinatorisnecessarytopromotethe

program,buildparticipation,andeducateusers.Thepreferredhandlingmethodis

back-haulofthematerialtoaretailer’sdistributionfacilityforbaling.IfaMRFmust

beused,thelocalrecyclingcoordinatorwouldberequiredtoworkwiththefacilityto

minimizematerialhandlingissues.

Forcommunitiesthatdeclinetouseretailcollection,orwishtosupplementitwith

anothermethod,depotcollectionisthenextpreferredmethod.Depotstake

advantageofthe“free”labourandenergyexpendedbyresidentsinbringingthis

lightweightmaterialtothelocation,asopposedtocaptureateveryindividual

household.Siteattendants,wheretheyareused,canmonitorforcontaminationand

provideadditionalpackagingandevencompactionofthebagspriortodeliverytothe

MRF.Addingbagstoanexistingdepotwouldaddverylittleincrementalcostin

termsofland,labour,andotherfactors.

Forthosecommunitiesthatprefertocollectbagsandfilmsatcurbside,thefollowing

practicesshouldbefollowed:

• Emphasizepubliceducation,specificallythe“BagYourBags”message






• Useaset-outmethodthatminimizesopportunitiesforbagstobecome

windblownlitter

• Utilizevehicleoperatorstocheckforcontaminationandleavebagsthatare

contaminatedasaneducationaltool

• Combinelargefullbagswiththefibreportionoftheloadinthetrucktofacilitate

separationandremovalattheMRFandtominimizebagbreakageand

contaminationduetocontactwithbroken,sharp-edgedorwetrecyclable

containers.

ForMRFprocessingofbags,effortshouldbemadetoremovebaggedbags

immediatelyaftertippingoratapre-sortstation,beforethebagscanencounterMRF

equipment.Handlingofbagsandcontactwithotherrecyclablesshouldbeminimized.

Inbluebagsystems,careshouldbeusedwithautomaticbagbreakers.Vacuum

equipmentmaybeaneffectivewayofmovingthematerial.

Thehighestvaluemarketsshouldbesoughtforthebagsandfilm.Toobtainthese

markets,producinghighqualitymaterialmustbeaprioritythatbeginswithpublic

educationandcontinuesthroughoutthehandlingandsortingprocess.Residents

mustbetaughtwhattoincludeandwhatisprohibited;operatorsmustleavebehind

contaminatedbags;contactwithothermaterialsattheMRFshouldbeminimized.

Marketsshouldbeconsultedabouttheimpactofrecyclingplasticbagsinwhich

otherrecyclablesweremistakenlypackagedbytheresidentsandofrecyclingblueor

clearcollectionbags(specifically,theimpactofthebluebagsshouldbeassessed).

Ontariocommunitiesarealreadyrecyclingbagsandfilmsthroughcurbsideanddrop-

offsystems.Ifsuchprogramsaretobeconsideredforwidespreadimplementation

intheprovince,moredatashouldbegatheredfromthesecommunitiesaboutthe

costsandoperationalimpactsofsuchprogramsinordertoaccuratelydocument

bestpracticesandtoencouragecontinualimprovement.Programcostsshouldbe

justifiedintheoverallrecyclingprogrambudget,takingintoconsiderationthe

community’swastereductionandrecyclinggoalsandhowbagandfilmrecycling

helpsthemmeetthosegoals.

Section B: Best Practices in Handling Polystyrene

Polystyreneresinisbotheffectiveandefficientinitsoriginaluse–aspackaging

material.Itisinexpensivetomanufacture;thereforethecostsofitsoriginal

productionandtransportationareconsideredareasonabletrade-offforitsmany

benefits.However,acost-effectiveschemeforitspost-usemanagementiselusive

because:

• Itdiffusesintosocietyinitsmanyuses,andbringingitbacktogetherinquantities

largeenoughtoprocessandmarketischallenging

• Itsmanyshapesandformsrenderitdifficulttoefficientlypackagefortransport,

post-use

• Thecostsbecomelargerastheproduct’squalityisdegraded;thesecostscanno

longerbecoveredintheprice





Whilepolystyreneaccountsforlessthanonepercentofthemunicipalwastestream,

atcertaintimesofyear,suchastheholidaysorconsumergoodssalesevents,it

becomesasignificantandchallengingcomponentofthehousehold-generatedwaste.

Inhandlingit,municipalitiesfaceanumberofobstacles.Chiefamongthemare:

• Polystyrenefoamexhibitsaveryhighvolumetoweightratio,makingeconomical

transportationachallenge

• PolystyrenefoambreakseasilywhenprocessedthroughMRFequipment,leading

tocontaminationofmarketedmaterialsandaffectingthecleanlinessofthe

facility

• Polystyrenefoamdoesnotcompressinthebalingprocess,andmaybreakinto

smallerpieces

• FoamedPSmeatandproducetrayshavehighpotentialoffoodcontamination,

possiblyleadingtosanitationissuesatMRFs

Current Collection and Processing

AccordingtotheCanadianPolystyreneRecyclingAssociation(CPRA),11Canadian

municipalitiesarecollectingpolystyreneintheircurbsideprograms,andanother

threearecollectingthroughdepotorspecialcollectioneventsonly.However,some

ofthesemunicipalitiesarelocatedinotherprovinces,andatleastsixOntario

programs,whichtheCPRAdoesnotlist,areknowntocollectpolystyrene.These

communitiesallprohibitloose-fillpolystyrenepackaging(“popcorn”or“peanuts”)in

theirprograms.

SincetheCPRAstandardsrequirebaling,itisassumedthatmostofthefoamedPS

isbaled.Somematerialfromdepotcollection,ifclosetotheCPRAplant,maybe

deliveredloose.


ThereisnomodelforP&Eforpolystyreneproductsbecauseeachmunicipality’s

programreflectstheiruniquecollectionandprocessingconstraints,asshownbythe

followingexamples:

• TheCityofKingstonallows“Plastic/Styrofoam”containersinthebluebox.Rigid

andfoamedplasticcontainersareallowed,butnotloosefillpackagingand

protectivefoammustmeasurelessthan36”x24”x8”

• TheCityofPeterboroughallowsrigidPSbakedgoodstrays“marked#6only”and

foamedPSfoodcontainers(meattrays,eggcartons)inthebluebox;however,

foamedpackingmaterialisacceptedonlyatdrop-off

• TheCountyofWellingtonpresumablyallowsrigidpolystyrenepackagesinthe

bluebox,astheirguidelinesarebroadanddonotusetheresinidentification

code.However,Styrofoamisspecificallyprohibited

• NorthumberlandCountycollectsfoamedpolystyrene“cushion”packagingat

specialcollectioneventsaftertheholidayseason.Foodpackagingisprohibited.

Thematerialisaccumulatedinroll-offcontainersatdrop-offdepots.TheCounty






alsoacceptsPSfoodcontainersinitscurbsideprogramasacomponentof

“PlasticJars,BottlesandContainers#1-7”

Markets

ApolystyrenemarketcurrentlyexistsinOntario.CPRA,an82,000square-foot

facilitylocatedinPeelRegion(Mississauga),isdesignedspecificallytorecycleand

sellpolystyrenefromtheindustrial,commercialandconsumerwastestreams.The

plantcapacityisabout5,000tonnesperyear. Polystyreneisrecycledintooffice

desktopaccessories,nurserytrays,automotiveandhardwareaccessories,audioand

videocassettecases,vacuumcleanerattachmentsandbuildingproducts.

CPRApurchasestwogradesofpolystyrenebales:TypeAcontainsbothrigidand

foamPSandTypeBcontainsonlyfoamPS.TypeAbalesallow10percent

contaminationwhileTypeBbalesallow15percentcontamination.TheCSRPrice

SheetshowsthatCPRAiscurrentlypaying75CDN$/tonneformaterialdeliveredto

theirfacility.Thispricehasnotchangedsince2001.

Implementation

Ontarioisfortunatetohaveamajorend-useprocessorforpolystyreneaccepting

bothfoamedandrigidgrades,eitherseparatedormixed.Forpolystyrene,the

constraintstorecyclingareissuesrelatedtohandlingandtransportation,notmarkets.

SomemunicipalitiesinOntarioarerecyclingpolystyrene,boththerigidandthe

foamed,atdepots,atspecialcollectionevents,andthroughcurbside.However,a

“model”programhasnotbeenidentified,andverylittleisknownaboutthehandling

issues,processingissuesandcostsofsuchprograms

Communitiesthatwishtoaddpolystyrenetotheirrecyclingprogramsshouldbegin

withspecialcollectioneventslimitedtofoamedPS,tiedtotheholidaysorperiodic

salesonconsumergoodssuchasappliancesandelectronics.Theseeventscanbe

heldatexistingrecyclingdepots,or,ifarrangementscanbemade,inpartnership

withretailerssellingthesegoodsandpossiblyheldatmallsandshoppingcentres

(similartoonemethodforcollectingend-of-lifeelectronicsandpossiblyintandem

withsuchanevent).Thebenefitsofholdingtheseeventsare:

• Thepublicwillprovidethe“free”transportationandsortinglabour

• Acontainerisnotdedicatedfull-timeatadepotwhileasufficientquantityto

processandshipisaccumulated,withassociatedweather,storagespaceand

contaminationissues

• Itmayofferanopportunityforincreasedpublicawarenessofthecommunity

recyclingprogram.Thisisawaytokeepcostsundercontrolyetstilloffera

servicethatmanyresidentsdeemvaluable.

Communitiesthatwishtoprovideanongoingpolystyrenecollectionprogramfor

citizensshouldlookfirsttodepotcollection.Aseparatecollectioncontainerfor

foamedpolystyrenewouldaddonlyincrementalcoststothedepotoperation;

however,itwouldmostlikelyneedtobeacoveredcontainer.Ongoingstorage





spacewouldalsobeneeded.Therigidpolystyrenecontainerscouldbeaddedtoa

“non-bottlerigid”plasticcollectionstream.Severalmarketingoptionsexistforthis

material,includingbalingwiththeotherrigidcontainersforexport,orsortingto

separatetheHDPE,PETandPPthenbalingwiththefoamedPS.Theadvantageof

collectingnon-bottlerigidPSatdepotsisthatthepubliccouldbetrainedtosort

thesefromtheplasticbottlesbyplacingtheminseparatecontainers.

Thenextlevelofcollection,ifacommunitystronglydesiredtoprovidethisserviceor

ifthecollectionatspecialeventsanddepotsprovedimpractical,wouldbecurbside

collectionofpolystyrene.Again,collectingthePSrigidcontainersmixedwithother

plasticswouldnotbedifficultatthecurb,butmarketresearchwouldneedtobe

conductedtodeterminethedegreeofMRFsortingneeded.Thefoamedpolystyrene

wouldposechallengesintheareasofpotentialblowinglitter,spaceinthecollection

truck,andthenMRFstorageandbaling.Foamedloose-fillpackaging,called

“peanuts”or“popcorn”shouldbeexcludedduetoseriouslitterconcerns.

Regardlessofthecollectionmethodchosen,communitiesneedtocalculatethe

transportationcoststotheCPRAanddetermineifapolystyrenerecyclingprogram

canfitintotheiroverallbudget,giventheimpactpolystyrenehasontheirrecovery

ratesandwastereductiongoals.

Transportationandmaterialstoragewillbethemostcostlyelementsofa

polystyrenecollectionprogram.Foodcontaminationcouldbecostlyintermsof

downgradingmarketedloads,andpubliceducationmaterialsshouldstressthatfood

containersmustberinsedbeforerecycling.

Additionalresearchisneededintothepracticesofcommunitiescurrentlycollecting

andprocessingpolystyrene,todeterminemorespecificdetailsonoperationalissues,

costs,andopportunitiesforimprovement.

Section C: Best Practices in Handling Oversized PET Bottles

LargesizePETwaterbottles,from8to15litres,arebeingmarketedinCanadabyat

leasttwobottledwatercompanies.Thesebottles,designedforhomedispensing

units,aredisplacingthe15to18litrepolycarbonate,multi-usewaterbottles

capturedbyadeposit-returnsystem.Theyareincreasinglybeingfoundintheblue

boxprogramasresidentscorrectlyinterpretthemasbeingrecyclable.Thesebottles

aremandatedtoberecycledbyPart1ofSchedule1ofOntarioRegulation101/94by

virtueofthenon-sizespecificdefinitionofthePETbeveragebottle.

RecyclingoversizedPETbottlesisfacilitatedby:

• Theirlargersize.PETwaterbottlesweighupto50grams,capturinga

significantamountofmaterialineachhandlingstep

• Packagingcontents.Sincetheyonlypackagewater,bottlesarenotcontaminated

bycontents

However,thesematerialspresentsomeissuesforprogramoperators.These

include:






• Thelargesizeofthebottlesmakesthemachallengetocollectintraditionalblue

boxes,astheytakeupmorespaceintheboxandonthecollectiontruck

• MRFsmustremovethesebottlesearlyinthesortingprocessinthesamestepas

removalofbucketsandlargecontaminants

• SomeMRFsmaynothavestoragespacefortheadditionalbottlestream

Collection

TheselargesizePETbottlestakeupone-thirdofthevolumeofatypicalbluebox,

andacorrespondinglylargeratioofspaceinasingle-streamorbluebagprogram.

Theyalsotakeupmorespaceinthecollectiontrucks.Whilescenariosabouttrucks

makingextratripstoMRFssolelybecausethelargePETbottleshavefilledthe

compartmentshavebeenimagined,noevidenceexiststhatthisisariskwiththe

currentmarketpenetration.Theimpactofbottlesizeislesssignificantatdepots,

wherecontainersarelarger.Forcommunitiesdesiringtorecoverthesebottles,an

additionalbindedicatedtotheselargersizecontainerscouldbeprovided.

Distinguishingofthesebottlesbythepublicshouldberelativelyeasy.

Processing

ThefirstpointofcaptureforthelargePETbottlesisthetipfloor,wheretheyare

pulledfromtheincomingcontainerstream,muchasbucketsandlargecontaminants

areremoved.VirtuallyallofthePETbottlesseparatedonthetipflooratOntario

MRFsarecurrentlybeingdiscarded.

Ifthebottlesareallowedtocontinueupthein-feedconveyor,inMRFsthathave

shakerscreensforseparatingcontainersfromfibre,thesePETbottlesendupinthe

fibrestreamduetotheirsize,weightandshape,andtheyarediscardedthere.In

MRFswithoutscreens,thebottlesstillmaybetoolargetofitinthesortingchutes

forthesmallerPETbottles.Furthermore,mostbalersarecapableofcompressing

thesebottles,eitherinamixedPETbaleorasaspecialtybale.

Installingadedicated,PETbottle-onlygrinderatthepointoffirstremovalmaybethe

mostefficientprocessingmethodforthesebottles.Thisalternativewouldrequire

capitalinvestment,operatortraining,Gaylordboxesformaterialstorage,anda

willingmarket.


ItisunknownhowmanycommunitiesinOntarioareprohibitingthesebottlesand

clearlystatingtheprohibitionintheirpromotion/educationmaterial.Motivating

residentstorecyclethesebottles,ifsuchactionisdesirable,wouldmostlikelybe

relativelyeasy,asthebottlesareuniqueandeasilyidentified.

Markets

PETre-claimersmayrefusetoacceptanylargePETwaterbottlesmixedwiththe

otherPETbecausetheirsizemakesthemproblematic.Theyaresimplytoobigfor

theclearancebetweenthehigh-speedconveyorsandtheautomatedbottlesorting





unitsthatmostre-claimersutilize.Thebottleshaveenough“memory”tospring

backintoalargershapewhende-baled.Evenafewofthesebottlescancausepile-

upsonthesortinglines,whichcanhappenveryquicklyandrequirelineshut-downto

clear.

Ifmarketsarewillingtoacceptthesebottles,mostwouldpreferthesebottlestobe

baledseparately,butmayacceptthesebalesonthesametruckwiththeotherPET

bales.Marketsforgroundmaterialexist,butwouldhavetoagreetopurchase

materialgroundinaMRF.

Ifthebottlesaremadefromastandardbottleresinwithanintrinsicviscosity(I.V.)in

the8.4range,andaremadeinatwo-stage,injection-stretchblowmouldedprocess,

theyarefullycompatiblewithexistingPETmarkets.Somebottlesmaybemade

fromahigher-I.V.materialinaone-stageprocess.Thereisconcernthatthese

bottlesarenotcompatibleinexistingPETbottlemarkets.

Implementation

VirtuallyallcommunitiesinOntariothatreceivethesebottlesforrecyclingare

currentlydiscardingthem.Giventheuncertainties,andthecurrentlysmallmarket

penetrationofthisproduct,theimpactofdisposalbytheMRFsonthesolidwaste

streamisnotyetsignificant.

Currentlymuchisunknownaboutthemarketpenetration,recyclingmarketdemand,

orresincompositionofthese8to15-litrePETwaterbottles.PETmarketshave

indicatedpubliclyadesireformorerecoveredpost-consumerPETofthecurrent,

typicalcomposition;itisnotknowntowhatextenttheywouldacceptthelarger

bottlesduetoequipmentconstraints.

Communitieswishingtorecoverthesebottles,eitherthroughdepotorcurbside

collection,shouldfirstfindoutwhetherthebottlessoldintheirregionwereallofthe

sameresincomposition.Iftheywere,andthelikelihoodofthischangingwassmall,

thecommunitywouldthenseekmarketsforthematerial,eitherbaledseparatelyor

ground.Ifmarketswerefound,asystemofhandlingthematerialtofacilitate

recoveryattheappropriatepointwouldbeneeded.

Aretailstoretake-backprogramcouldbeexploredforthesebottles,withthe

recoveredbottlesdeliveredtotheMRFinlargeloadsandhandled,baledand

marketedseparately.Forcommunitiesthatchoosetorecyclethesebottlescurbside,

asecondblueboxcouldbeprovidedforresidents.






Sources and Links

PE film

RecycledProductsandMarketsDatabases,AmericanChemistryCouncil:

http://www.plasticsresource.com/s_plasticsresource/sec.asp?TRACKID=&CID=86&

DID=127

TheOnlineResourceforFilmRecoveryinCalifornia:

http://www.plasticbagrecycling.info/coord.php

CanadianPlasticsIndustryAssociation(CPIA),EnvironmentandPlasticsIndustry

Council(EPIC):“Best Practices Guide for the Collection and Handling of Polyethylene

Plastic Bags and Film in Municipal Curbside Recycling Programs”.

CSROnline:“ThePriceSheet”,http://www.csr.org/pricesheet/pricesheet.htm

“It’s in the Bag: The Direction of Residential Film Recycling”,PattyMoore,Moore

RecyclingAssociatesandKimHolmes,PlasticsRecyclingUpdate;Plastics Recycling

2007,February13-14,Dallas,Texas.

“Blue Box Residential Recycling Best Practices – A Private Sector Perspective”,

GuilfordandAssociatesforStewardshipOntarioandtheOntarioWaste

ManagementAssociation,February1,2007.

“County of Santa Cruz – Film Plastic Recycling”,DanDeGrassi,SantaCruzCounty;

Plastics Recycling 2007,February13-14,Dallas,Texas.

Polystyrene

EPICPolystyreneFactSheet:

http://www.cpia.ca/files/files/files_Fact_Sheet_on_Polystyrene.doc

CSROnline:ThePriceSheet:http://www.csr.org/pdf/pricesheet/2007/03_2007ps.pdf

FactSheet:“Polystyrene and the Environment”,AmericanChemistryCouncil’s

PlasticsFoodservicePackagingGroup:

http://www.polystyrene.org/environment/environment.html

Oversized PET Bottles

“Improving the Efficiency of the Blue Box Program”, anAMO/AMRCPositionPaper,

July2006:http://www.amrc.ca/policy/Improving

Documents

Regional Municipality of Niagara...Niagara Region Public Works staff met with the project team on December 11, 2006 to discuss the regional Blue Box recycling program. The site visit