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HomeMy WebLinkAboutCOUNCIL - AGENDA ITEM - 01/09/2018 - REGIONAL WASTESHED PLANNING PROJECT UPDATEDATE: STAFF: January 9, 2018 Honore Depew, Environmental Planner Jackie Kozak-Thiel, Chief Sustainability Officer Susie Gordon, Environmental Program Manager Lucinda Smith, Environmental Sustainability Director Jeff Mihelich, Deputy City Manager WORK SESSION ITEM City Council SUBJECT FOR DISCUSSION Regional Wasteshed Planning Project Interim Update. EXECUTIVE SUMMARY The purpose of this item is to update Council on progress in the North Front Range Wasteshed Planning Project, and to preview the next steps in the process. The project represents a unique intergovernmental collaboration that will create strategic implementation opportunities for Zero Waste goals adopted by the City Council in 2013. Because the Larimer County Landfill is forecast to reach capacity by 2025, staff and elected officials from the Cities of Fort Collins and Loveland, Larimer County, and the Town of Estes Park have formed the North Front Range Wasteshed Coalition to plan for the future of waste material handling in the region. This staff update on the work of the Coalition marks the third time Fort Collins City Councilmembers have reviewed the project since it was initiated in 2015. There were several important developments in the wasteshed planning process over the last year:  Specific goals and objectives were adopted by the Coalition  Eleven possible solid waste infrastructure options were identified and evaluated to determine their benefits and costs based on financial, environmental, and social impacts.  The objectives of the Fort Collins Community Organics Recycling Project (to explore residential and commercial collection of green waste) were merged with the wasteshed project.  A regionwide group of stakeholders was convened to provide input, and town-hall meetings were held on four occasions. In 2018, the Coalition will produce a final report detailing the pros and cons of options for solid waste infrastructure and conduct extensive public outreach, before offering recommendations for which scenarios to pursue. GENERAL DIRECTION SOUGHT AND SPECIFIC QUESTIONS TO BE ANSWERED This is an informational item in preparation for the April 10, 2018 Council Work Session. BACKGROUND / DISCUSSION History of Council Involvement Staff provided updates on this project to City Council at a regular meeting in January 2017 and a Futures Committee meeting in April 2017. In addition, Fort Collins City Council is represented on the Policy Advisory Committee of the Wasteshed Coalition by Mayor Troxell and Councilmember Cunniff. Wasteshed Coalition Background Larimer County Landfill is the only publicly-owned landfill in Northern Colorado. The facility is forecast to reach capacity and close by 2025. Staff and elected representatives from Fort Collins, Loveland, Estes Park and Larimer January 9, 2018 Page 2 County formed the North Front Range Regional Wasteshed Coalition to engage in a rigorous, multi-year planning process, with the help of a Stakeholder Advisory Group that includes members of the public and business sectors. The Wasteshed Coalition includes a Technical Advisory Committee (TAC) made up of staff and a Policy Advisory Committee (PAC) made up of elected officials:  Larimer County - Steve Johnson (Commissioner)  City of Fort Collins - Wade Troxell (Mayor) and Ross Cunniff (Councilmember)  City of Loveland - Leah Johnson (Councilmember)  Town of Estes Park - Wendy Koenig (Mayor Pro Tem) PAC Roles: TAC Roles: Setting Goals and Priorities Analyzing Options for Infrastructure and Programs Offering Policy Direction Engaging with Stakeholders and Public Evaluating Recommendations Conducting Outreach and Education Efforts Wasteshed Timeline Phase I 2015-16 Phase II 2017-18 Phase III 2018 Phase IV 2019 Phase V 2020-25 Foundation and Direction Process Development and Analysis Recommendations and Administration Funding and Logistics Infrastructure Delivery Wasteshed Coalition Formed Unified Goals & Objectives Adopted Multiple Public and Stakeholder Meetings Held Finance Mechanisms Project Siting, Design, and Permitting Phase 1 Planning Study Produced Stakeholder Advisory Group Formed Coalition Recommendations January 9, 2018 Page 3 o Over 50 stakeholders were invited to participate from key sectors including: the business community, academia, regional governments, waste haulers and recyclers, boards and commissions, state agencies, and advocacy groups.  The TAC continues to meet directly with local haulers to discuss goals and operational considerations and has presented to the Local Legislative Affairs Committee of the Chamber of Commerce.  See Public Engagement Summary. (Attachment 2) Wasteshed Coalition Goals and Objectives The Coalition adopted four over-arching goals and underlying objectives in 2017 to help guide decision-making throughout the planning process. (Attachment 1) Solid Waste Infrastructure Options Under Evaluation Eleven possible solid waste infrastructure options (see following table) have been identified as potential pieces of a long-term waste material management system, once the Larimer County Landfill is closed. Each option is being evaluated to determine its benefits and costs using a triple-bottom line modeling tool called Sustainable Return on Investment (SROI), to calculate financial, environmental, and social impacts. Recommendations for which options to advance to be put forth by the Coalition in 2018. Infrastructure Options Evaluated Central Transfer Station New County Landfill Yard Waste Composting Facility Food Waste Composting Facility Construction and Demolition (C&D) Processing Facility “Clean” Material Recovery Facility (MRF) Food Waste Pre-processing Facility for Anaerobic Digestion Direct Combustion Energy-from-waste Facility Refuse Derived Fuel (RDF) Energy-from-waste Facility “Dirty” Mixed-Waste Material Recovery Facility Status Quo (Do Nothing Upon Landfill Closure) Options in the above table are sorted in order of feasibility (starting with most feasible) using initial data produced by the consultants. The results are based on capital costs, timeframe to complete, cost-benefit ratio, and projected tipping fees. (Please note that these are preliminary data that continue to be under review by Stakeholders and the PAC.) Previous Relevant Analysis An earlier, less fine-grained Regional Wasteshed Planning Study was prepared in 2016 that established how the region handles waste materials and explored opportunities and challenges that exist for the future (www.fcgov.com/Ph1_wasteshed_report). January 9, 2018 Page 4 A “waste characterization” study of material accepted for disposal at the Larimer County Landfill was conducted in 2016. A major finding was that organics (yard trimmings and food scraps), as well as construction and demolition materials, offer a significant opportunity for waste diversion (attachment 3). During 2016/17 staff explored policy options to divert organics from landfills in support of waste reduction and climate action goals. Findings from the Community Organics Recycling Project included:  participation in composting programs is driven by the type of policy adopted  the climate impact of various composting options is similar, and all are significantly less than landfilling organics  the cost of compost collection is dependent on the distance materials are hauled to be processed  further work on developing composting options would be best combined with the efforts of the Regional Wasteshed Planning project (which led to the decision to merge the two projects) Bottom Line Fort Collins is at an important juncture in time, whereby new opportunities for managing its waste-stream will be developed in collaboration with other regional cities, Larimer County, and potential new public/private business partnerships. The Regional Wasteshed planning process is creating a clear and detailed framework for how to accomplish efficiencies of scale that are associated with larger, regional material processing facilities – the type of resource recovery infrastructure identified in the City’s 2013 Road to Zero Waste Plan. A strategically critical goal for communities involved in the Regional Wasteshed project will be to consider the feasibility of adopting supportive policies and potential ordinances that will enable Larimer County to develop new waste management facilities oriented to contemporary systems-based technology, with a focus on diverting waste from landfills and reducing greenhouse gas emissions. Due to fiscally responsible planning and management of the Larimer County landfill by the Solid Waste Department, the County is preparing to leverage a significant fund balance for the construction of a portion of the infrastructure currently under evaluation. The unprecedented cooperation between jurisdictions around solid waste, combined with viable finance options, has great potential to result in programs and infrastructure for long-term waste materials management and resource recovery in the region. Next Steps In 2018, the Coalition will produce a final report detailing the pros and cons of options for solid waste infrastructure and conduct extensive public outreach, including continued work with the Stakeholder Advisory Group, before offering recommendations on which scenarios to pursue. Staff is prepared to share recommended options at a Fort Collins City Council work session in April, if desired. ATTACHMENTS 1. Wasteshed Coalition Goals and Objectives (PDF) 2. Public Engagement Summary (PDF) 3. 2016 Waste Sort Summary (PDF) 4. Powerpoint presentation (PDF) 1 WASTESHED COALITION GOALS AND OBJECTIVES PROJECT TITLE: Regional Wasteshed Planning BACKGROUND: The following goals and objectives were developed and adopted by the North Front Range Wasteshed Coalition in 2017 to help guide decision-making throughout the planning process. GOAL #1 ESTABLISH A COMPREHENSIVE, REGIONAL SOLID WASTE MATERIALS MANAGEMENT SYSTEM BY 2025 THAT IS IMPLEMENTED IN AN ECONOMICALLY, ENVIRONMENTALLY AND SOCIALLY SUSTAINABLE MANNER. OBJECTIVES: a) Upon completion of the Phase 2 Study in 2018, the Coalition has identified and documented specific options for programs and facilities, taking into consideration the balance between economic, environmental and social costs and benefits. b) The proposed solid waste system addresses future customer service demands in the region over the next 40 years or more, and provides long-term funding to address capital and operating costs. c) Coalition members are prepared to begin implementing programs and constructing facilities by January 2020. GOAL #2 CREATE A COMPREHENSIVE SOLID WASTE MATERIALS MANAGEMENT PLAN AND IMPLEMENT PROGRAMS AND FACILITIES THAT REFLECT THE NEEDS AND DESIRES OF USERS. OBJECTIVES: a) The development of programs and facilities shall take a comprehensive, systems-based approach for materials management to conserve resources, manage costs and minimize environmental impacts. b) The next generation of materials management programs and facilities provides services at competitive rates that are in alignment with the solid waste industry in the US. c) New programs and facilities result in the increasing application of proven, innovative technologies for reuse, recycling and disposal to substantially reduce the amount of material being landfilled. d) New programs and facilities are convenient and accessible for citizens, customers, businesses and waste haulers in the Wasteshed. ATTACHMENT 1 2 GOAL #3 DEVELOP A SET OF WASTE DIVERSION/REDUCTION GOALS THAT ARE ADOPTED AND IMPLEMENTED BY ALL JURISDICTIONS IN THE WASTESHED. OBJECTIVES: a) The Coalition establishes consistent definitions and methods for measuring solid waste diversion/reduction within the Wasteshed by the year 2019 that are supported by streamlined and consistent data. b) Solid waste diversion/reduction measurements will be evaluated on a three-year recurring cycle beginning in 2020 to identify potential program adjustments. c) Jurisdictions implement policy and regulatory measures to support waste reduction, reuse and recycling efforts, by the year 2024. GOAL #4 DEVELOP A STRONG PUBLIC EDUCATION AND OUTREACH PROGRAM THAT IS CONSISTENT THROUGHOUT THE WASTESHED. OBJECTIVES: a) Public education and outreach programs convey a clear, consistent message and effectively influence the behavior of citizens regarding the reduction, reuse and recycling of materials that would otherwise be destined for disposal. b) Public education materials convey shared guidelines for recycling and other information on reuse and reduction within all jurisdictions. c) Municipal and solid waste representatives meet on a routine basis to coordinate solid waste educational programs and outreach efforts and to resolve any questions about recycling guidelines. 1 WASTESHED PLANNING PUBLIC ENGAGEMENT SUMMARY PROJECT TITLE: Regional Wasteshed Planning OVERALL PUBLIC INVOLVEMENT LEVEL: Collaborate with key stakeholders and the public to review materials and recommendations developed by the North Front Range Wasteshed Coalition and consultant. BOTTOM LINE QUESTION: What infrastructure and policy options will best meet the needs of communities within the North Front Range Wasteshed after the Larimer County Landfill closes? 2016-17 PUBLIC ENGAGEMENT: City Boards and Commissions Presentations Natural Resources Advisory Board July 20, 2016 Fort Collins Super Board Meeting October 9, 2017 Meetings with Fort Collins Haulers Wasteshed Coalition staff met with Waste Management, and Gallegos Sanitation, and Ram Waste on, December 7, 2017. • Several representatives from the local hauling industry have also participated in the Stakeholder Advisory Group Town Hall Meetings The Coalition held four public meetings in 2016, throughout Larimer County, with the assistance of CSU’s Center for Public Deliberation. Wasteshed Survey From June 24 until July 31, 2016, citizens from across Larimer County were solicited to participate in a professionally-conducted online survey posted by City and County officials, promoted through various media outlets. During this time, over 1200 responses were collected, 42% from Fort Collins. Of Fort Collins respondents, • 51% indicated that current disposal options for food scraps are inadequate • 47% indicated that current disposal options for yard trimmings are inadequate. Other outreach • Project website with updates and project documents • Email updates to 850+ subscribers • Met with Executive Director of Downtown Development Authority November 14, 2017 • Presented to the Local Legislative Affairs Committee of the Fort Collins Chamber of Commerce, December 2016 Stakeholder Advisory Group A dedicated Stakeholder Advisory Group met four times throughout 2017 to provide input and review technical and policy information produced by the TAC. Over 50 stakeholders were invited to participate from key sectors including: the business community, academia, regional governments, waste haulers and recyclers, local government boards and commissions, state agencies, and advocacy groups. Key themes in stakeholder feedback: • Desire for future solid waste programs to be within the Wasteshed • Interest in regional end-markets for “waste” material • Maintaining affordability & convenience for citizens 2 2018 PUBLIC ENGAGEMENT PLAN: Town Hall Meetings The Coalition will hold a minimum of four public meetings throughout Larimer County, in the first half of 2018, to seek feedback on recommendations for infrastructure and policy. City Boards and Commissions Presentations • Natural Resources Advisory Board, January 17, 2018 • Additional presentations as appropriate Other outreach • Virtual Town Hall meeting led by consultant • Presentation to the Local Legislative Affairs Committee of the Fort Collins Chamber of Commerce, Date TBD Stakeholder Advisory Group Stakeholder Group will meet at least once more in early 2018 and may extend its formal involvement as needed. 1 2016 WASTE SORT SUMMARY PROJECT TITLE: Regional Wasteshed Planning BOTTOM LINE In 2016 a statistically significant, two-season waste characterization study (waste sort) was conducted of material accepted for disposal at the Larimer County Landfill. Waste was randomly sampled from in-bound trucks hauling material from Fort Collins and sorted by category and weighed. The waste sort results can be found at www.fcgov.com/recyclingreports. The data revealed that the majority of what Fort Collins homes and businesses are putting in the trash could be recovered and that organic material (e.g., food scraps and yard trimmings) and building materials, in particular, offer significant opportunities for additional waste diversion WASTE BY SECTOR Of the 155,000 tons of material sent to landfills from Fort Collins in 2016, 40% came from industrial sources (including construction waste); 31% came from commercial and multi-family sources; 29% came from single- family residential sources. (See chart below.) WASTE BY TYPE The 2016 waste sort provided data on the composition of the landfill waste-stream from each sector. The full waste sort report (referenced above) includes many more material categories; for this summary, materials are consolidated into the three categories: compostable, recyclable, and not currently recoverable. (See charts on following page.) “Recyclable” includes materials such as bottles, cans, paper, and cardboard; “compostable” includes materials like food scraps, leaves, and branches; “not currently recoverable” includes a wide variety of materials such as shingles, diapers, window blinds, tarps, etc. Industrial 40% Commercial 31% Residential 29% Fort Collins Landfill Garbage by Sector, 2016 ATTACHMENT 3 2 Recyclable 31% Not Currently Recoverable 15% Compostable 54% Fort Collins Residential Landfill Garbage Composition, 2016 Recyclable 30% Not Currently Recoverable 15% Compostable 55% Fort Collins Commercial Landfill Garbage Composition, 2016 Recyclable Not Currently 52% Recoverable 21% Compostable 27% Fort Collins Industrial Landfill Garbage Composition, 2016 1 Regional Wasteshed Planning Jackie Kozak Thiel, Honoré Depew – Sustainability Services Area Ron Gilkerson – Larimer County City Council Work Session – Jan. 9, 2018 ATTACHMENT 1 Strategic Plan Goals Impacted 4.1 Achieve Climate Action Plan (CAP) goals by reducing greenhouse gases (GHGs). 4.3 Engage citizens in ways to educate and encourage behaviors toward more sustainable living practices. 4.6 Work towards long term Zero Waste goals within the community and the City organization. 2 Climate Action Goals Adopted Council-Adopted Goals 3 GHG emissions 20% below 2005 levels GHG emissions 80% below 2005 levels 90% diversion ൑ 2.8 lbs/person landfilled per day Carbon Neutral 2013 2015 2020 2025 2030 2050 Road to Zero Waste Goals Adopted 75% diversion Approaching Zero Waste Road to Zero Waste Adopted 2013 • Needed infrastructure identified for greater diversion Diversion Rates Since Adoption • Residential and commercial – stable • Industrial – variable Progress Made • Timberline Recycling Center, Community Recycling Ordinance 4 Organics Recycling • Continues to be a high priority • Extensive analysis of Fort Collins options in 2017 • Every option better than landfilling • Distance to facility dictates cost of service • Seeking collaborative solutions • Regional Wasteshed Planning 5 Larimer County Landfill projected to reach capacity in 2025 6 North Front Range Wasteshed Coalition • Policy Direction • Evaluation of TAC Recommendations Policy Advisory Committee (PAC) • Options Analysis • Stakeholder & Public Engagement Technical Advisory Committee (TAC) Larimer County Steve Johnson City of Fort Collins Wade Troxell Ross Cunniff City of Loveland Leah Johnson Town of Estes Park Wendy Koenig PAC Members Wasteshed Project Timeline 8 • Coalition formed • Initial research • Waste Sort Audit • Adopted goals • Initial stakeholder input • Options analysis • Recommendations: • Infrastructure packages • Supportive policies • Financing options • Public-private partnerships • Infrastructure design & construction 2015-16 2017 2018-19 2020-25 Public Engagement Wasteshed Coalition Goals 1. Establish regional materials management system 2. Implement programs and facilities 3. Develop waste diversion/reduction goals for all jurisdictions 4. Conduct strong, consistent public education and outreach 9 Infrastructure Option Categories 10 Composting Recycling Landfilling Construction & Demolition Energy from Waste Stakeholder Comments / FAQs • Keep solid waste programs within the Wasteshed • Need regional end-markets • Consider affordability & convenience for residents • Address competing goals of maximizing landfill revenue and waste stream diversion • Need consistent community education 11 2018 Next Steps • Infrastructure Analysis Final Report • April 10 Work Session • Develop Coalition Recommendations • Public Engagement 12 Discussion 13 • Importance of addressing the competing goals of maximizing landfill revenue and increasing waste stream diversion • Need for public education ATTACHMENT 2 For: Public-Private Partnerships Construction Waste Sort Audit Conducted Infrastructure Options Analyzed  Infrastructure “Packages” Phase 2 Planning Study Produced  Supportive Policies Larimer County Landfill Reaches Capacity (2025) In 2017, Larimer County engaged the consulting firm HDR, Inc. to execute a thorough scope of work including:  detailed reporting of regional solid waste volumes;  consideration of emerging technologies for resource recovery;  triple bottom line and market analysis of eleven options of infrastructure development. Outreach Conducted  A Stakeholder Advisory Group met four times throughout 2017 to provide input and review technical and policy information produced by the TAC.