2 USE OF KRAFT BAGS FOR COLLECTION OF YARD WASTE MUNICIPAL RESPONSES

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1 2 USE OF KRAFT BAGS FOR COLLECTION OF YARD WASTE MUNICIPAL RESPONSES The Transportation and Works Committee recommends: 1. The communication dated October 5, 2004 from Regional Councillor Jack Heath be received; 2. The recommendations contained in the following report, September 24, 2004, from the Commissioner of Transportation and Works be adopted; and 3. Staff be requested to provide a report to the next Solid Waste Management Committee meeting regarding the Region of York providing composted material to local municipalities free of charge for parks operations use and community special events. 1. RECOMMENDATIONS It is recommended that: 1. The Region advise the local municipalities that yard waste will no longer be received at Regionally owned and/or contracted facilities in plastic bags, as of January 1, The Regional promotion and education campaign for kraft paper bags, as detailed in this report, be approved by Committee and Council. 3. Local municipal staff be consulted with and have the opportunity to provide input into the development of the Regional promotion and education campaign. 2. PURPOSE The purpose of this report is to summarize the nine local municipal responses to Regional Council s request in January, 2004 (Clause 5 of Report No. 2 of the Solid Waste Management Committee) for: the nine local municipalities to commit by May, 2004 to eliminate the collection of yard waste in plastic bags upon renewal and/or extension of their associated collection contracts for implementation January 1, This report also summarizes the issues associated with the use of kraft paper bags, and outlines the Region s related promotion and education campaign.

2 2 3. BACKGROUND On January 22, 2004, Regional Council adopted Clause 1 of Report No. 2 of the Solid Waste Management Committee, the proposal of Halton Recycling Ltd. (HRL) to: receive and process approximately 20,000 tonnes/yr. of yard waste starting April 1 st, 2004 at their Newmarket facility for a term of two years plus three one year extensions at the discretion of the Region. In the HRL proposal, a 10% reduction in processing costs was offered to the Region if kraft paper bags were used for collection instead of plastic bags. This is due to the fact that finished compost contaminated with plastic has significantly less retail value. This reduction in cost represents a savings of over $200,000/year to the Region. Council subsequently requested that the nine local municipalities commit by May, 2004 to eliminate the collection of yard waste in plastic bags upon renewal and/or extension of their associated collection contracts. 4. ANALYSIS AND OPTIONS The use of disposable plastic bags is, from an environmental perspective, an unsustainable practice. Plastic bags made from non-renewal petroleum based resources, currently cannot be recycled, and therefore must be landfilled. By comparison, kraft paper bags are made from recycled paper and decompose with the compost. The use of kraft bags for leaf and yard waste collection has been implemented successfully in numerous other Ontario municipalities including, but not limited to: Durham Region Halton Region Peel Region Waterloo Region City of Barrie City of Guelph City of Hamilton City of Ottawa City of Peterborough Cit of Sault Ste Marie City of Toronto City of Windsor

3 Within the GTA, York Region is the only area still permitting its residents to dispose of yard waste in plastic bags. Many of these municipalities have over a decade of successful experience collecting yard waste in kraft bags. Nevertheless, with the introduction of a new program, there will always be concerns with the change including issues such as: cost to residents, municipal collection impacts, and product functionality. 4.1 Issues with Plastic Plastic bags are not biodegradable and are almost impossible to remove completely from compost. As a result, by permitting the collection of yard waste in plastic bags the Region is contributing to the long-term accumulation of plastic in local soils. The value of the finished compost is also reduced significantly by the presence of plastic contamination which results in increased contract management costs. As a consequence, York Region pays more than other municipalities to manage its yard waste. It has been suggested by some of the local municipalities that the Region should investigate purchasing debagging equipment for yard waste. It was reported by the City of Hamilton in their Committee of the Whole report No. TOE01035 that the purchase of debagging equipment would represent a capital expenditure in excess of $300,000 and would further increase processing costs. The use of plastic bags also significantly impairs the Region s diversion efforts. Up to 20% of yard waste collected in plastic bags is landfilled because some of the yard waste remains left in and/or attached to the plastic film bags. In 2003, the Region processed 19,900 tonnes of yard waste. This means that as much as 4,000 tonnes of the yard waste collected in the Region last year was lost as residue due to collection in plastic bags. To put this into perspective, expansion of the blue box to include plastics No. 3-7 will increase our diversion rate by an estimated 800 tonnes (i.e., equivalent to an increase in our current diversion rate of about 1%). 4.2 Durability There is a common misconception that kraft bags will not stand up to inclement weather. The City of Toronto has tested kraft bags in inclement weather throughout the year and collection crews reported they were still able to pick up the bags intact. This is due to the fact that the kraft bags are protected with a wet-strength coating which resists water absorption. Waterloo Region has over fifteen years experience with using kraft bags and reports minimal problems. Hamilton and Halton also reported positive experiences with their usage. 4.3 Cost of Change Concern was also raised over the cost to residents. Studies done by the Cities of Hamilton and Toronto confirm that kraft paper bags hold as much as, and in some cases more, yard waste than plastic bags. Therefore, it would not be necessary for residents to

4 4 purchase more kraft paper bags as previously suggested by proponents of plastic bags. Table 1 indicates the average number of kraft yard waste bags that would need to be purchased by each household to manage their annual yard waste volumes. Experience in the Regions of Halton and Waterloo indicate that residents prefer to use reusable containers for yard waste collection over kraft bags. Assuming a reusable container (such as cardboard boxes) is used for regular yard waste collection throughout the year, and kraft bags are only used for overflow material (i.e., fall leaf collection), the average York Region resident will only require three kraft yard waste bags. Based on this fact, Table 1 indicates that the annual net cost to each household for kraft bags will be approximately $0.90 after taking into to account the average householder s current expenditures on plastic bags. This will not, however, be true for residents with larger properties. Table 1 Cost Implications to Regional Residents in 2003 Yard waste collected in York Region 2003 Estimated number of kraft bags required 1 York Region households, excluding apartments Average number of bags required for yard waste 2 Average number of bags required for fall overflow material 3 Average cost difference for paper vs. plastic bags 4 19,990 tonnes 1,427,857 bags 228,935 households 6.24 bags 3.12 bags $0.29/bag Annual cost for kraft bags per household 5 $0.90 Notes: 1) Each bag holds 14kg of yard waste, 19,990 tonnes 14 kg = 1,427,857 bags 2) 1,427, ,935 = 6.24 bags 3) Assuming residents use reusable containers for 50% of their yard waste: 1,427,857 2 = 713, ,935 = 3.12bags 4) PC Kraft Bag $0.56 each PC Plastic Yard Waste Bag $0.27 = $0.29/bag 5) 713, ,935 x 0.29 = $0.90 When the change from plastic to kraft bags was implemented by other jurisdictions, complaints from the public were received. Mechanisms were, however, put into place to manage them, and eventually the public accepted the program change. The Region recognizes that cost may be an issue with residents who own large lots, and therefore require large amounts of bags to handle their yard waste. It is anticipated that this is where the majority of complaints will stem from.

5 5 The Town of Markham recently published a calendar which contains information regarding the change from plastic to paper. Since the distribution of the calendar, staff as well as Councillors, have been receiving complaints regarding this issue. Call Centre staff at Markham have estimated that as many as four out of every ten calls related to the new food waste diversion program have been related to concerns over the switch to kraft paper bags. Much of the controversy appears to be over misinformation amongst residents about the price of paper bags. Many residents are under the mistaken impression that bags cost $2 each. Surveys completed by Regional staff as recent as last month in fact show that the average price ranges from a low of $0.28/bag to a high of $0.90/bag. Prices are also expected to drop as market demand increases. Residents with large properties are also concerned about the total cost impact on their household. Regional staff are currently addressing these issues and are investigating the possibility of offering discounts to residents who require large amounts of kraft bags in addition to a variety of other promotional activities. The City of Hamilton offered its residents a 10% discount card to be used at Home Hardware, Rona and Home Depot for the purchase of kraft bags during 2003 and Halton Region offered its residents free bags a year after implementation of the program and found interest was limited as most residents preferred to use a reusable container. 4.4 Promotion and Education Campaign As with any change in service, a minority of residents will be resistant to the new program which will inevitably lead to complaints. A promotion and education campaign has, therefore, been developed by Regional staff in an effort to ensure that residents are aware of the change and justification for it, and complaints are directed to Regional staff thereby minimizing the impact on local municipal staff. The proposed promotion and education campaign would begin in the fall of 2004 to get residents geared up for the change in In 2005, a Region-wide campaign would be officially launched to adequately educate and inform the public of the program change effective January 1, Details of the promotion and education campaign are provided in Table 2.

6 6 Table 2 Promotion and Education Campaign Program Component Action Timeline Community Outreach Estimated Cost: $150,000 Business Outreach Estimated Cost: $15,000 Advertising Estimated Cost: $45,000 Establish a Regional hotline for questions/concerns Design and produce flyers, brochures, information kits, banners, posters, display boards, discount cards, stickers for reusable containers, and noncompliant stickers Purchase kraft paper bags for promotion give-aways Provide community outreach material to municipalities Update Regional web page and provide municipalities with information to update municipal web pages Attend community events/festivals Organize plastic amnesty days Contact retail outlets in York Region who sell plastic bags for yard waste and inform them of the change Work in conjunction with retailers to offer residents a discount for the purchase of kraft paper bags Design and produce banners/displays to be erected in retail outlets informing residents of the change Design and publish ads in local newspapers, community newsletters Write article for York Works and provide information to municipalities for council publications Q Q As they arise Q Q Q Q1-2005

7 7 4.5 Collection Frequency Concern has also been raised that the switch to paper bags will force local municipalities to increase the frequency of their yard waste collection. However, irrespective of this proposed change, collection frequencies across York Region will need to be set at an adequate level to ensure all available yard waste material is captured. Given the current political climate in Michigan, it is quite possible the Region will be forced to ban yard waste at its transfer stations in order to comply with Michigan s new regulations. It should also be noted that many local municipalities have already banned leaf and yard waste from the garbage stream. 4.6 Local Municipal Responses The Region has received council resolutions from eight local municipalities in response to the Region s request for the elimination of plastic bags for yard waste by January 1, Table 3 presents the responses and also summarizes the additional requests some local municipalities have made of the Region as part of their decision. Municipality Table 3 Local Municipal Resolution Council Approval of the Elimination of Plastic Bags Aurora Yes Education and Promotion Funding East Gwillimbury Georgina King Markham Newmarket Richmond Hill Vaughan Whitchurch- Stouffville No Yes Yes Yes Yes deferred by Council Region requested to provide $5000 in 2004 and $32,500 in 2005 for communication and education program deferred by Council

8 8 5. FINANCIAL IMPLICATIONS York Region s yard waste processing contract with Halton Recycling Ltd. commits to a guaranteed price reduction of $10 per tonne, provided plastic bags are banned from collection. This would result in a projected savings for the Regional tax payer of over $212,250 in The Region intends to use the savings generated to fund the development and implementation of a promotion and education campaign to support the switch to kraft bags. It should also be noted that the Region has included funds in the proposed 2005 budget for the campaign. Table 4 Kraft Paper Bag Promotion and Education Budget Program Component Community Outreach Business Outreach Advertising Projected Cost $150,000 15,000 45,000 Total Projected Cost 210,000 Projected Savings 212,250 Net Projected Cost $0 6. LOCAL MUNICIPAL IMPACT To ensure that the maximum amount of yard waste is captured at the curb side, some municipalities may need to increase the frequency of yard waste collection. This in turn will represent a cost to the municipality. However, increasing the frequency of collection will address the potential Michigan border issue, as well as the concerns some municipalities have regarding the longevity of the kraft paper bags. The Region recognizes there will be an initial impact on residents with a ban on plastic bags. Residents will have to pay more to put kraft paper bagged waste at the curb if this change is approved. Based on other municipalities experiences that instituted such as ban, a learning curve of approximately two to three months ensued where residents adjusted to the program change. During this time, Regional staff anticipate a high volume of public inquires and complaints. While the promotion and education campaign is intended to direct calls to a proposed Regional hotline, inevitably calls will go through to local municipal staff. A question and answer sheet will be developed by Regional staff and distributed to local municipal Councillors and staff, in an effort to help deal with these inquiries and complaints.

9 9 The Regional promotion and education campaign has been developed to avoid duplication across the municipalities, and to try and ensure that a clear and consistent message is delivered to residents. Developing a Region-wide campaign is also more cost effective. Instead of the Region funding each municipal promotion and education campaign, the Region will work with the local municipalities to try and ensure the campaign meets the needs of each of the local municipalities. This in turn will also save the local municipalities time as they will not have to develop their own campaign. 7. CONCLUSION Making the change from plastic bags to kraft paper bags for the collection of yard waste will represent a savings of over $200,000 to the Region in processing costs. While kraft paper bags are more expensive than plastic bags, the cost to the average resident is minimal particularly if residents use reusable containers for the bulk of their yard waste, and kraft paper bags for the remainder. By eliminating plastic bags for the collection of yard waste, the Region will significantly reduce the amount of yard waste discarded as residue from its processing operations. The proposed promotion and education campaign has been developed by Regional staff in an effort to ensure that complaints are handled by the Region. The proposed promotion and education campaign would begin in the fall of 2004 and officially launched in the spring of The purpose of the campaign is to adequately educate and inform the public of the program change effective April 1, 2005, and to ensure residents understand the new requirements and the reasons for the change. The Senior Management Group has reviewed this report.