GREATER TORONTO AREA 3Rs ANALYSIS COST TECHNICAL APPENDIX FINAL MAY 1994 - Ontario 789 .inistry of Environment and Energy G74 APP-CT WI 0E c.1 a aa Copyright Provisions and Restrictions on Copying: This Ontario Ministry of the Environment work is protected by Crown copyright (unless otherwise indicated), which is held by the Queen's Printer for Ontario. It may be reproduced for non-commercial purposes if credit is given and Crown copyright is acknowledged. It may not be reproduced, in all or in part, for any commercial purpose except under a licence from the Queen's Printer for Ontario. For information on reproducing Government of Ontario works, please contact ServiceOntario Publications at ISBN 0-7778-2032-3 (9v.set) ISBN 0-7778-2037-4 (this v.) GREATER TORONTO AREA 3Rs ANALYSIS COST TEChNICAL APPENDIX Prepared by Resource Integrati on Systems Ltd. for Fiscal Planning and Information Management Branch Ministry of Environment and Energy FINAL 0-MA Y 1994 Ce document technique n'existe qu'en anglais. Pour obtenir des renseignements en français, veüilez composer le 1-800-661-9294. Copyright: Queen's Printer for Ontario, 1994 This publication may be reproduced for non-commercial purposes with appropriate attribution. PIBS 2750 — p-' —I '—S / I,p The report was prepared for the Ontario Ministry of Environment and Energy as part & a Mlnisfry- (USed project. Mention of trade names or commercial products does not constitute endonemern or recommendation of their use. Ministry of Environment and Energy GTA 3Rs Analysis - Cost Technical Appendix Table of Contents Cost Technical Appendix Page 1.0 Introduction 1-1 1.1 Background 1-1 1.2 Purpose of Study 1-1 1.3 Study Approach 1-2 1.4 Purpose of the Cost Assessment and Study Objectives 1-3 1.5 Outline of Report 1-3 2M Approach 2-1 2.1 Overview 2-1 2.2 Impact Assessment Criteria 2-2 2.3 Data Sources and Methods of Analysis 2-2 2.3.1 Residential System 2-2 2.3.2 IC&I System 2-4 2.3.3 Methods of Analysis 2-5 2.4 Assumptions 2-5 2.4.1 General Study Assumptions 2-5 2.4.2 Capital Costs of Residential Systems 2-6 2.4.3 Operating Costs of Residential Systems 2-9 2.5 References 2-il 3.0 Region of Durham Residential System Cost Estimates 3-1 3.1 Capital Costs 3-1 3.2 Unit Operating Costs 3-4 3.3 Residential System Costs 3-5 3.4 References 3-10 4.0 Metropolitan Toronto Residential System Cost Estimates 4-1 4.1 Capital Costs 4-1 4.2 Operating Costs 4-4 4.3 System Costs 4-4 4.4 References 4-9 5.0 Region of York Residential System Cost Estimates 5-1 5.1 Capital Costs 5-1 5.2 Unit Operating Costs 5-4 5.3 System Costs 5-4 5.4 References 5-9 6.0 Region of Peel Residential System Cost Estimates 6-1 6.1 Capital Costs 6-i 6.2 Operating Costs 6-4 6.3 System Costs 6-5 6.4 References 6-10 7.0 Region of Halton Residential System Cost Estimates 7-1 7.1 Capital Costs 7-i 7.2 Unit Operating Costs 7-i 7.3 System Costs 7-2 7.4 References 75 . May 1994 Table of Contents Page i Ministry of Environment and Energy GTA 3Rs Analysis. - Cost Technical Appendix Table of Contents (cont'd) Cost Technical Appendix Page 8.0 IC&I System Cost Estimates 8-1 . 8.1 General 8-1 8.2 IC&I Waste Management Cost and Price Considerations 8-1 8.3 Appitach to Cost Estimates 8-2 8.11 General 8-2 8.3.2 IC&I Cost Estimate Assumptions 8-2 8.3.3 Limitations of Approach 8-3 . 8.4 IC&I Waste Collection Costs 8-3 8.5 Management Costs by Waste Material Category 8-5 . 8.6 Cost Estimates for IC&I Waste Management Systems 8-9 8.7 References 8-17 9.0 Assessment and Evaluation of the 3Rs System. 9-1 9.1 Introduction 9-1 . 9.2 Approach Overview 9-1 . 9.2.1 Methodology Description 9.1 . 9.2.2 Residential System Cost Criteria 9-1 9.2.3 Residential System Criteria Ranking 9-2 9.2.4 Residential System Ranking 9-2 9.2.5 Residential System Mitigation 9-2 . 9.2.6 IC&I System Cost Criteria 9..3 . 9.2.7 IC&1 System Criteria Ranking 9..3 . 9.2.8 IC&I System Ranking Approach 9-3 9.2.9 IC&I System Mitigation 9-3 9.3 Assessment Evaluation of Residential Systems 9-5 . 9.3.1 Residential Systems Ranking for Region of Durham .9-5 9.3.2 Residential Systems Ranking for Region of Metro Toronto 9-6 9.3.3 Residential Systems Ranking for Region of York 9-9 9.3.4 Residential Systems Ranking for Region of Peel 9-9 9.4 Ranking of IC&l Systems for the GTA 9-12 . 10.0 Summary of Findings 10-1 10.1 Summary of Net Effects 10-1 10.2 IC&I Systems 10-1 Schedules Schedule A Residential and IC&I System Components — Schedule B — Residential Net Effects Tables Schedule C — IC&I Net Effects Tables May 1994 Table of Contents Page ii Ministry of Environment and Energy GTA 3Rs Analysis - Cost Technical Appendix List of Tables Cost Technical Appendix Page 2.1 System Evaluation Criteria for Cost Residential and IC&I Systems 2-3 3.1 Region of Durham Capital Costs for Residential Systems (Diversion Plus Disposal) 3-2 3.2 Region of Durham Unit Costs and Cost Estimates (Diversion Plus Disposal) (Disposal S5{Ytonne) 3-6 3.3 Region of Durham Unit Costs and Cost Estimates (Diversion Plus Disposal) (Disposal at SlOWtonne) 3-7 3.4 Region of Durham Summary of Residential System Costs (Diversion Plus Disposal) (Disposal $50/tonne) 3-8 3.5 Region of Durham Summary of Residential System Costs (Diversion Plus Disposal) (Disposal at SlOUkonne) 3-9 3.6 Region of Durham Summary of Residential System Costs (Diversion Plus Disposal) 3-10 4.1 Metropolitan Toronto Capital Costs for Residential Systems (Diversion Plus Disposal) 4-2 4.2 Metropolitan Toronto Unit Costs and Cost Estimates (Diversion Plus Disposal) (Disposal $S0ftonne) 4-5 4.3 Metropolitan Toronto Unit Costs and Cost Estimates (Diversion Plus Disposal) (Disposal SlOOftonne) 4-6 4.4 Metropolitan Toronto Summary of Residential System Costs (Diversion Plus Disposal) (Disposal at $50/tonne) 4-7 4.5 Metropolitan Toronto Summary of Residential System Costs (Diversion Plus Disposal) (Disposal at $lOO/tonne) 4-8 4.6 Metropolitan Toronto Summary of Residential System Costs (Diversion Plus Disposal) 4-9 5.1 Region of York Capital Costs for Residential Systems (Diversion Plus Disposal) 5-2 5.2 Region of York Unit Costs and Cost Estimates (Diversion Plus Disposal) (Disposal $5G'tonne) 5.3 Region of York Unit Costs and Cost Estimates (Diversion Plus Disposal) (Disposal $lO(Wtonne) 5-6 5.4 Region of York Summary of Residential System Costs (Diversion Plus Disposal) (Disposal at $50/tonne) 5-7 5.5 Region of York Summary of Residential System Casts (Diversion Plus Disposal) (Disposal at $lOQ'tonne) 5-8 5.6 Region of York Summary of Residential System Costs (Diversion Plus Disposal) 5-9 6.1 Region of Peel Capital Costs for Residential Systems (Diversion Plus Disposal)— 6-2 6.2 Region of Peel Unit Costs and Cost Estimates (Diversion Plus Disposal) (Disposal $50/tonne) 6-6 6.3 Region of Peel Unit Costs and Cost Estimates (Diversion Plus Disposal) (Disposal $100/tonne) 6-7 May1994 List of Tables Page lii Ministry of Enviromnent and Energy GTA 3Rs Analysis - Cost TechnicalAypenda List of Tables Cost Technical Appendix Follows Page 6.4 Region of Peel Summary of Residential System Costs (Diversion Plus Disposal) (Disposal at $50/tonne) 6-8 6.5 Regionof Peel Summary. of Residential System Costs (Diversion Plus Disposal) (Disposal at $l0&tonne) 6-9 6.6 Region of Peel Summary of Residential System Costs (Diversion Plus Disposal) 6-10 7. Region of Halton Unit Costs and Cost Estimates (Diversion Plus Disposal) 1 (Disposal $150/tonne) 7-3 7.2 Region of Halton Summary of Residential System Costs (Diversion Plus Disposal) (Disposal at $1 50/tonne) 7-4 8. Front-End Loader Collection Costs 8-4 1 8.2 Roil-Off Container Collection Costs 8-5 8.3 OTA Summary of Estimated Costs for IC&l Existing System 8-10 8.4 GTA Summary of Estimated Costs for IC&I Existing/Committed System 8-11 8.5 GTA Summary of Estimated Costs for IC&I Extended 3Rs System 8-12 8.6 GTA Summary of Estimated Costs for IC&I Expanded 3Rs System 8-13 8.7 GTA Summary of Estimated Costs for IC&I Expanded 3Rs Plus Organics GTA System 8-14 8.8 GTA Summary of Estimated Costs for IC&I No Unprocessed Waste to Landfill System 8-15 8.9 OTA Summary of Estimated Costs of IC&1 Systems 8-16 9.1 Greater Toronto Area IC&I Systems Cost Criteria Ranking 9-4 9.2 Region of Durham - Comparative Evaluation of Residential Systems for Cost 9-7 9.3 Metro Toronto - Comparative Evaluation of Residential Systems for Cost 9-8 9.4 Region of York - Comparative Evaluation of Residential Systems for Cost 9-10 9.5 Region of Peel - Comparative Evaluation of Residential Systems for Cost 9-11 9.6 Greater Toronto Area - Comparative Evaluation of IC&l Systems for Cost 9-13 10.1 Summary of Residential 3Rs System Rankings by Region Cost 10-2 May 1994 List of Tables Page iv Ministry of Environnns and Esergy GTA 3Rs Analysis - Cost Te. !uuca! 1.0 INTRODUCTION 1.1 Background In 1989, the government of Ontario announced its commitment to meeting a Provincial target of at least 50% reduction of waste going to landfills and incineration by the year 2000. This target, a waste diversion target to be achieved through waste reduction, reuse and recycling (the 3Rs) was confirmed by the present government in 1990. To facilitate the achievement of the 50% target, the Province introduced the Waste Management Act, 1992. The Act broadens the government's powers to reduce waste sent to disposal through a variety of means. It also vests powers in the Interim Waste Authority (TWA), an agency created to ease the waste disposal crisis in the Greater Toronto Area (GTA). The IWA is complying with its mandate by conducting environmental assessments to locate three, long-term landfill sites in the GTA. The GTA Regional Municipalities of Peel and Durham are each defined for the TWA process as separate "primary service areas". Metropolitan Toronto and the Regional Municipality of York have been defined as a separate combined primary service area. Each of the three defined primary service areas is proposed to receive one new landfill facility identified through the [WA's process. The fifth UTA Regional Municipality, Halton, has already obtained approval for a landfill site and thus is not part of the present siting process. 1.2 Purpose of Study This study has two purposes, each of which relates directly to a requirement created by the Waste Management Act. The first requirement pertains to waste estimates. Section 14 of the Waste Management Act requires the Minister of Environment and Energy to provide a written estimate as to: a) the amount of waste that would otherwise be expected to be generated in the primary service area (i.e. each of Peel, Durham and Metro/York) during a twenty- year period that will not be generated because of waste reduction efforts; and b) the amount of waste that will be generated in the primary service area during a twenty-year period that will not need to be disposed of in the site because of the reuse or recycling of materials that are or could become waste. These waste estimates were provided to the [WA by Ministefs letter dated May 15, 1992. A copy of this letter may be found in Appendix A to the EA Input Document. The GTA 3Rs Analysis Study provides additional analysis of 3Rs activities, in support of the reasonableness of the waste diversion estimates previously provided. The second requirement pertains to analyzing the 3Rs as "alternatives to" lindfill waste disposal sites. Section 15 of the Waste Management Act requires that the IWA environmental assessments contain a description of, and statement of rationale for the 3Rs, as well as evaluate matters relating to the 3Rs as an alternative to the landfill waste disposal sites. By administrative agreement, MOEE committed to provide such a rationale and evaluation to the TWA for use in its environmental assessments. The GTA 3Rs Analysis Study fulfils this requirement. A number of parameters guided the completion of the GTA 3Rs Analysis. The study parameters are as follows: May1994 Page)-! Ministry of Enviroarnent and Energy OTA 3Rs Analysis - Cost Technical Appendix The study area for the GTA 3Rs Analysis is the area encompassing Metro Toronto and the Regional Municipalities of Durham, York, Peel and Halton. Metro Toronto/York Region. Durham Region and Peel Region are defined in the Waste Management Act as the "primary service areas" for the purpose of establishing landfill sites. The Region of Halton has been included as part of the GTA 3Rs Analysis study area as it is part of the GTA. It is not, however, one of the "primary service areas". Thus, 3Rs systems have not been developed and evaluated for Halton Region. • The MOEE is not the proponent or co-proponent of any 3Rs systems discussed in this study. The study provides additional analysis of 3Rs activities and supplemental data on waste diversion estimates for use by the IWA. • As stated in Section 15(2) of the Waste Management Act; The environment assessment is not required to contain any description of or statement of the rationale for, or any description or evaluation of any matter relating to, a) an alternative of waste reduction or reuse or recycling if that alternative would involve incineration of waste or the transportation of waste from the primary service area to any other area for disposal; or an alternative of some other single landfill waste disposal site if the capacity of the other site would appear to be inadequate in view of the estimate provided under Section 14. • The Waste Management Ac:, 1992 specified that the IWA landfills are to operate for a minimum of 20 years. 1.3 Study Approach The GTA 3Rs Analysis identifies and assesses alternative 3Rs systems, composed of combinations of 3Rs programs, technologies and practices, that could reasonably be implemented in the GTA. In this report, this range of reasonable approaches to 3Rs are termed 3Rs system alternatives. It also determines the potential for each 3Rs system to divert waste over the twenty-year minimum life expectancy of the CTA landfill sites and identifies the environmental net effects of each system. For purposes of the present analysis, an array of conceptually different 3Rs systems have been identified for addressing residential wastes, as well as for industrial, commercial, and institutional (IC&1) wastes. For each system, estimates of the amount of waste the system could potentially divert from disposal have been determined. An assessment, done on a non- site-specific, generic level and documented in this report, identifies the net effects to the environment of each potential 3Rs system, in keeping with the Environmental Assessment Act. In conducting the 3Rs work, and providing estimates of waste that will not require disposal in the IWA established sites, MOEE is acting as a reliable authority in accordance with its legislative mandate, and not as the proponent or co-proponent of any of the 3Rs systems discussed. The alternatives presented in this report are not in any way structured as detailed implementation plans for the Regions or the private sector. May1994 Pagel-2