Assessing the Impacts of Zero Waste
on Community Economic Development
A CASE STUDY: REGIONAL DISTRICT
OF NANAIMO
Committee:
Prof. Budd Hall, PhD, Supervisor Prof. Kim Speers, PhD, Second Reader
Ms. Carey McIver, M.A., Client
Sharon Horsburgh, BA, MCIP, RPP
ACKNOWLEDGEMENTS
As a Solid Waste planner, I am grateful for the opportunity with the Regional District of Nanaimo to witness first-hand the expansion of local businesses that offers green jobs through a vibrant recycling industry.
It would not have been possible to complete this Masters project without the help and support of the kind people around me, to only some of whom it is possible to give particular mention here. Above all, I would like to thank my husband Fergus for his personal support and great patience at all times, my sons Kieran, Jack, Cameron and Jimmy who can have their mum back. My mum, Brother Jeff, and Jane, my mum-in-law, who provided quiet weekend retreats and to help nurture this project.
This project would not have been possible without the help, support and patience of my supervisor, Prof. Budd Hall and the good advice, and support from my second reader Dr. Kim Speers. To my friend and mentor Carey McIver who provided me with guidance and to all those who helped along the way with constructive criticism and editing.
I would be remiss in not acknowledging my late father who first taught me about the spirit of recycling. As child growing up in Manchester, England, I watched my father make his living dismantling obsolete machinery from Lancashire’s old cotton mills. Now a by gone era, dismantling remnants from the cotton mills during the 1970’s, helped fuel the emerging
economies of Asia. Recycled non-ferrous and ferrous metals were used to make cars and other consumable products. This process illustrates how the demise of one industry can provide resources for another.
I am most grateful to the participants who participated in the study and shared their stories. Last, but by no means least, I would like to thank my friends for their support and encouragement throughout this process.
For any errors or inadequacies that may remain in this work, of course, the responsibility is entirely my own.
EXECUTIVE SUMMARY
The growing impact of solid waste on the environment is a pervasive problem and is largely the outcome of a consumption-based economic model that was introduced in the early 1950’s after World War Two. (United Nations Environmental Program, 2007).
While waste is a product of modern society, mass consumption affects local
communities, as they are required to manage solid waste. This case study examines how the Regional District of Nanaimo (RDN) - faced with a looming landfill crisis, was able to transform its solid waste management system into one of the most efficient in Canada. (FCM, 2011)
Zero Waste has been described by prominent academics as one of the most effective strategies to manage solid waste and to address climate change. (David Suzuki Foundation)
This report shows how the RDN’s Zero Waste Plan has extended the life of its landfill, and in turn, met regional greenhouse gas emissions targets. The plan has created a vibrant local recycling and composting sector that has contributed to the RDN’s impressive 70 % waste diversion success, which is one of the highest rates in Canada. (FCM, 2011)
The Regional District of Nanaimo is an example of a community that is steadily diverting more of its solid waste through recycling and composting and seeing its overall waste generation decline. This is contrary to the trends globally and nationally, where overall waste generation is increasing. This is presenting social, political and economic challenges for communities.
Worldwide, how societies choose to deal with waste management will continue to have profound effects. This study offers a view into one possible alternative for dealing with this ever-growing problem.
TABLE OF CONTENTS ACKNOWLEDGEMENTS………...………...…………..…...….i EXECUTIVE SUMMARY……….………...………..……...iii LIST OF FIGURES………..………iv LIST OF TABLES...………..…..v 1.0 INTRODUCTION….………..9
1.1 RDN Solid Waste System Analysis……….12
1.2 Project Client………..17
1.3 Problem Statement……….………19
1.4 Research Question………...……….……….21
1.5 Purpose of the Report………...22
1.6 Research Findings ……….……….25
1.7 RDN Regulatory Framework……….….25
1.8 Industrial and Commercial & Institutional(IC&I)……….……28
1.9 Composting and Organics Diversion……….…..29
1.10 Economic Drivers………..…………...……...………...29
2.0 METHODOLOGY………..…………..……….35
2.1 Research methods……….……….………..…35
2.2 Case study research………..37
2.3 Narrative analysis………..……….…38
2.4 Limitations of the Study………..39
3.0 LITERATURE REVIEW………..…………..………42
3.1 Literature review findings.………..………...…43
3.2 Review of zero waste jurisdictions……….……..………...…...……..44
3.3 Job Creation and economic multipliers………..………… ..46
3.4 Findings on economic multipliers for job creation………...48
3.5 Significance of Zero Waste………....…………...55
4.0 DISCUSSION……….61
4.2 Discussion And Relevance of Findings………...…………...66
4.3 Interview Findings………...………...81
4.4 Mandatory Recycling….……….……….……….84
5.0 LESSONS LEARNED ………..……….………...………...…...85
5.1 Key Findings - Projected Future Job Creation Opportunities…………...87
5.2 Provincial Recycling Regulations………..88
5.3 Summary of findings from interviews………...89
5.4 Next steps………...96
6.0 CONCLUSION……….…………...………...…104
REFERENCES……….……….110
APPENDIX 1 RESEARCH QUESTIONS………..………..117
APPENDIX 2 SUMMARY OF INTERVIEWS………..118
APPENDIX 3: CASE STUDY INTERVIEWS………..…...119
APPENDIX 4. WSML IMPLMENTATION………..……….……….120
APPENDIX 5. MATERIALS HANDLED BY PRIVATE WASTE FACILITIES………...122
APPENDIX 6. WASTE COMPOSITION……….123
APPENDIX 7. TYPES OF MATERIALS ACCEPTED FOR RECYCLING……….…...124
LIST OF FIGURES Figure 1. Five R’s Hierarchy………11
Figure 2. Residual Waste Projections 2003-2010 System…………...…..……….12
Figure 3. Map of Regional District of Nanaimo………...18
Figure 4. 2013 RDN Expenditure Budget………..………21
Figure 5. BC BiO- Energy Network Collaberation………...31
Figure 6. RDN Solid Waste Management System………33
Figure 7. 2010 Draft Disposal Rates……….52
Figure 8. Linear Economic Model……….………..……….57
Figure 9. Circular Economic Model………57
Figure 10. Greenhouse Gas Emissions –A Systems View………..60
Figure 12. Sustainability Framework………64
Figure 13. RDN WSML Facilities………..77
Figure 14. WSML Environmental Improvements………78
Figure 15. Problematic sites………...79
Figure 16. RDN Per Capita Disposal Rate between 2008-2012……….91
Figure 17. 2008 Disposal Rate Comparison BC………...…....92
Figure 18. Kilograms per Capita Waste Disposal By Material Category………..94
LIST OF TABLES Table 1. On-going 2004 - RDN Zero Waste Programs………..15
Table 2. Ongoing RDN Zero Waste Programs 2004……….16
Table 3. RDN Landfill Bans………...26
Table 4. Interview Sources……….36
Table 5. Zero Waste Communities in North America……….45
Table 6. Qualitative Benefits of the RDN's Zero Waste Plan………49
Table 7. RDN Tipping Fees………...51
Table 8. Job Creation from Reuse & Recycling Activities ..………75
Table 9. 2012 RDN Job Creation From Recycling & Gross Revenue………..83
Table 10. 2012 Regional Zero Waste & Recycling Expenditures ………...85
1.0
INTRODUCTION
Solid waste management is a growing problem for society, one the Regional District of Nanaimo (RDN) has been coming to terms with since the 1980’s, when the RDN was unable to site a new landfill. Without sufficient long-term disposal capacity, the RDN had to turn to waste export, which was an expensive option. New measures were needed to conserve landfill space. The RDN conducted a review of their 1988 solid waste management plan and refocused solid waste management practices on waste reduction. As a result of the review, in 1992 the RDN implemented user pay garbage collection, curbside recycling, a backyard composting program and a disposal ban on cardboard was implemented.
In 1996, a “3R’s plan was approved that contained programs and policy initiatives to reduce the RDN’s annual solid waste needs by approximately 70%. The two major elements of the 1996 plan were the development of a private composting facility for source-separated
organics and a facility to handle construction and demolition waste. Part of the plan identified the development of a residual waste management plan to address the portion of the waste stream that would not be eliminated or diverted through composting or recycling. The existing landfill was expanded and waste export was eliminated.
A SWMP was approved in 2004 that brought together the following elements:
The 3R’s Plan evolved into what is now called the Zero Waste Plan due to the RDN adopting “Zero” as their target in 2002.
A residual management plan.
The RDN’s Zero Plan was supported by the South Nanaimo community, adjacent to the landfill and affected by the operation. The Zero Waste Plan (ZWP) served to assure residents that continuation of the landfill would be driven by the following waste management policies:
A waste diversion target of “zero” was adopted. This approach helped the RDN to continuously strive to reduce solid waste. (RDN, 2004)
A Regional Landfill design and operations plan to maximize environmental
protection.
A user pay system to ensure costs of landfill are reflected in the tipping fee.
Landfill materials bans to be implemented once stable recycling alternative is
available.
An organics diversion strategy was implemented as a private composting facility was
built to handle food waste, and yard waste.
A waste stream management licensing system was introduced to ensure that private
waste management facilities operate to the same standard as regional facilities.
These policies have had a significant impact on the RDN’s per capita waste generation, the RDN generated 422 kilograms per capita in 2008, and it decreased to 350 kilograms per capita in 2012. (RDN, 2013. p.3)
Increasingly, communities with highly regulated waste systems are finding better ways to extract the value from materials in the waste stream, which creates new economic opportunities and jobs.
While the trend in the province is that British Columbians are recycling more today than we ever have before we are also throwing more into the landfill than we ever have before. It is estimated by 2025, British Columbians will generate approximately one million tonnes more landfill waste every year than we do today. That increase in garbage is expected to raise municipal waste management costs by $120 million per year. (BC Business Case, 2013). As
Regional governments are responsible for developing solid waste management plans there is provision for community stakeholders to influence future solid waste management options.
Zero Waste is being adapted to varying degrees by jurisdictions throughout Europe and North America. Zero Waste is based on two key principles extended producer responsibility and the waste hierarchy.
Extended producer responsibility (EPR) programs play an integral and increasingly significant role in the management of municipal waste in BC. EPR requires producers to take responsibility for the environmental impacts of their products and packaging. EPR is changing who pays for managing waste. Responsibility is shifting from local governments and taxpayers to producers and consumers. Producers are managing stewardship materials in accordance with the Province of BC’s 5R’s hierarchy waste hierarchy: reduce, reuse, recycling, recovery, residual management, which is depicted below.
Figure 1. 5R’s Waste Hierarchy
1.1 RDN Solid Waste Systems Analysis
The following section discusses the Regional District of Nanaimo’s Solid Waste Management system and provides an historical overview.
The goal of the ZWP was to increase diversion from 57% in 2003 to 75% by 2010. The four key zero waste programs identified in the plan are waste stream management licensing systems, expanded landfill bans, expanded single-family organics collection, and Zero Waste Education and promotion. Figure 2 below illustrates how these programs would affect diversion rates.
Figure 2: Residual Waste Projections 2003-2010
The RDN’s Solid Waste Department owns and operates the Regional Landfill, at the Church Road Transfer Station. Region wide, 52,000 single-family homes receive weekly green bin collection for food waste, while garbage and recycling is collected on alternating weeks. Yard waste such as grass clippings, leaves and tree prunings are dropped off at depot locations throughout the region.
Decomposition of organics in landfills such as yard waste and food waste produces methane, a powerful greenhouse gas, with a global warming effect 21 times greater than carbon dioxide (Province of BC, 2007) (EPA, 2009). Diverting organics helps the RDN reduce the production of methane.
To achieve waste diversion goals and to encourage private sector investment in recycling capacity, the following guiding principles were outlined in the Regional District of Nanaimo’s 2004 Solid Waste Management Plan:
1. The consumption of material and energy resources is set at a level that is ecologically
sustainable.
2. The regional solid waste stream is reduced to the greatest extent possible, in
accordance with the hierarchy of reduce, reuse, and recycle, and consistent with local
resources and the nature of the regional solid waste stream.
3. The goal of environmental policy is to not exceed the capacity of the environment to
accept waste and the strategies for achieving that goal cautiously anticipate the
environment’s capacity.
4. Individuals and firms are enabled to make environmentally sound choices about
consumption of resources and generation of waste through provision of appropriate
5. Reduction policies and strategies are developed through public consultation in a
cooperative manner between government, private enterprise and community
stakeholders. This may entail more flexibility in existing procedures and the setting of
precedents. The cost effectiveness of any strategy will be based on full accounting of
costs and benefits, both monetary and non-monetary.
6. The strategies and policies promote community development whenever possible.
7. All parties must have equal access to relevant information and the opportunity to
participate effectively throughout the process.
8. Openness and trust between stakeholders are the keys to a successful process”.
(RDN, SWMP, 2004. p.1.1)
These guiding principles have been fundamental to policy development in the RDN. The RDN is considered an early adopter of Zero Waste (RCBC, 2009) and the RDN’s experience makes an excellent case study as its programs have been in place since 2002. Gary Liss from the Zero Waste International Alliance suggests that jurisdictions considering introducing Zero Waste should allow five to ten years to in order to generate measureable results (Liss, Gary. 2013).
The Province of BC encourages regional district’s to move towards a zero waste future to help reduce waste, increase diversion, build a greener economy and a more sustainable society. The proposed changes are premised upon waste reduction and reuse, and they build upon Extended Producer Responsibility. (BC Province, 2013.)
Tables 2 and 3 provide a summary of the zero waste programs and the costs to implement the programs since 2004.
Table 1 - On going RDN Zero Waste Programs 2004 Program Budget
Compost Education Program
The Zero Waste compost education program has several components, including:
enhance, maintain and promote demonstration gardens;
Yard waste drop off depot.
conduct landscaping, natural garden and lawn care, etc. Collaborating with local garden centres that sell backyard composters and native plants will be explored.
$5,000
School Education Program
Continue contracting out design and delivery of a primary school program that focuses on the concept of zero waste.
$15,000
Zero Waste Promotion and Education
The Zero Waste Promotion and Education program includes regular newsletters and technical assistance.
$15,000
Illegal Dumping Program
The Illegal Dumping Program includes surveillance and enforcements activities as well as on-going clean-up of illegal dumping sites and free disposal (tipping fees are waived) for community clean-up events.
$58,500
Expanded Disposal Bans
International Composting Corporation (ICC) opened their private composting facility in Nanaimo in April 2004. Consequently, in accordance with RDN Board policy, organic waste from commercial generators (e.g. grocery stores, institutions, and restaurants) will be banned at the Regional Landfill and Church Road Transfer Station in the fall of 2004.
Implement financial penalties that are double the tipping fees for loads containing banned materials.
In addition, yard waste and products covered under province-wide stewardship programs will also be banned, as opportunities to divert these materials are readily available in the RDN.
$63,000
Waste Composition Study
Conduct a waste composition study to estimate the quantity of recyclable materials remaining in the waste stream and the source of those materials (residential, ICI or DLC).
$24,000
Waste Stream Management Licensing Technical Assistance
To support the implementation of the Waste Stream Management and Recycler Licensing Regulatory Bylaw (which is ultimately intended to enhance diversion in the RDN).
$25,000
Curbside Food and Yard Waste Collection Study Program Budget
This study researched collection methods and successes in other North
American jurisdictions. It was determined if only half of the RDN’s residential-based organic waste is diverted through an organics collection program, 5,600 tonnes of waste would be diverted from the landfill annually. In 2011, 52,000 were provided with organic waste collection to divert food waste, non-recyclable paper products.
Yard waste continues to be dropped off at depots throughout the region.
Table 2 Proposed Zero Waste Programs 2005-2009 Budget
Single Family Organics Collection Pilot
Design and conduct a pilot organics collection program. Conduct pre and post surveys with participants and measure actual diversion. This pilot would address the feasibility of organics collection for some or all of the residents on the curbside collection program and help to refine the final program design.
$82,000
C/D Market Study
Conduct an analysis of the local market capacity for wood waste and Construction/demolition wastes to determine the viability of a ban on all or a portion of this waste.
In the event that a private sector C/D processing facility is established, licensed and operational by 2005, the C/D market study will not be done.
$10,000
2006 Budget
User Pay Review
Before tendering next curbside contract, re-assess feasibility of going to full user pay or a subscription-based system for garbage collection. A full user pay program would provide users with a financial incentive to further reduce waste and reward those households that already have achieved significant waste reduction. If viable, a “pay-as-you-throw” request for proposal or tender would be designed for the new curbside waste collection contract (scheduled to begin in 2007).
$20,000
RDN Internal Zero Waste Policy
Using existing municipal models, develop an internal Zero Waste Policy to ensure that the environmental impact of RDN purchasing and operations of the RDN is minimized.
Environmental purchasing policies developed by other municipalities, such as the City of Richmond, will be used as a template.
$4,000
2007
BudgetRecycling at RDN Disposal Facilities
The RDN provides the opportunity for self-haul customers at the disposal facilities to recycle batteries, appliances, propane tanks, fluorescent light tubes, scrap metal, tires, gypsum (at CRTS), cardboard, paper, glass, and metal and plastic food and beverage containers.
$268,000
Residential Curbside Garbage and Recycling Collection
Continue with residential garbage and recycling collection programs including strict can limits and comprehensive range of recyclable materials including rigid plastic containers. Provide service to approximately 23,000 households.
Single Family Organics Collection Program
Based on the results of the curbside yard and food waste collection study undertaken in 2004 as well as the pilot collection project undertaken in 2005, a full single-family curbside collection program could be
implemented in 2007 based on the results of the tender process undertaken in 2006.
The costs presented for full program implementation are rough estimates of a household organic waste collection program (food waste and soiled paper). Yard waste collection is not included at this time since not all households may require this service.
Start-up costs (one-time): $97,000 On-going annual costs: $460,000 Source: RDN SWMP, (2004) 1.2 Project Client
The following section provides an overview of the Regional District of Nanaimo and an historical context of Solid Waste Management planning in the RDN.
The Regional District of Nanaimo was formed in 1967 and is located on Vancouver Island, British Columbia, Canada. It is governed by an elected Board of 17 Directors
representing all communities in the region. There are ten board members from locally elected municipal councils, and seven directors elected by Electoral Area residents.
The RDN’s boundaries stretch from Cassidy just south of the Nanaimo Airport, to Deep Bay in the North, and include Mount Arrowsmith to the East. It also includes Gabriola, Mudge and DeCourcey Islands. The RDN is British Columbia's fifth most populous Regional District and is home to more than 150,000 people (BC Stats, 2011). The RDN encompasses an area of 114,126 hectares on central Vancouver Island (RDN, 2013).
The RDN’s core services include regional and community planning, transportation and solid waste, community utilities, parks and recreation, building inspection and emergency planning. The RDN’s solid waste service is one of the region's most recognized public services and it is a significant contributor to Regional strategic priorities to address greenhouse gas emissions reductions. The RDN’s food waste collection program has helped the RDN achieve its Greenhouse Gas reductions targets (RDN, 2013).
The Regional District of Nanaimo is second in size to the Capital Region District (Victoria and area) in population and employment base on the Vancouver Island. The main economic activities in the RDN are forestry (logging, lumber mills, veneer production and pulp manufacturing), tourism, manufacturing, transportation, warehousing and services.
While the long term commitments of the Solid Waste Department is concerned with wider sustainability goals this case study will be focusing on the impacts of RDN WSML Bylaw
1386 (RDN, 2006). The commitment of licensed private sector businesses has been pivotal for
1.3 Problem Statement
During the 1990’s the RDN had several proposals to site a new landfill. However, due to public opposition, this process was unsuccessful and the RDN had to seek innovative solutions to develop sustainable landfill capacity. The RDN saw the landfill crisis as an opportunity to
reframe a waste disposal problem through the lens of sustainability. (RDN, SWMP, 2004) There are several reasons why communities tend to oppose landfills and the RDN’s experience was no different. Communities are concerned with the potential environmental and health impacts associated with landfills. Landfills generate leachate and can contaminate ground water (North et. al., 2004). In addition, landfills release greenhouse gases such as methane and carbon dioxide that contribute to climate change (BC Province, 2006). Potential health impacts from carcinogenic gases released by landfills have been shown to increase the risk of leukemia, bladder, lung, stomach and rectal cancer in those living near landfills. (North et al., 2004).
The social impacts of the potential environmental and health risks affect property values. According to a study of the impacts of Toronto’s landfills, property values are estimated to “decrease at a rate of 4.12% per mile of distance from a landfill” (Lim, 2007, p.4. Cited in Waste Solutions for Metro Vancouver, 2010). These types impacts are what makes the solid waste field “inherently political and shaped by multiple ethical and political positions” (Denzin & Lincoln, 1994, p 8).
Zero Waste helps to promote a spirit of inclusion and collaboration that helps to diffuse public opposition as it too seeks to change the relationship between residents and their waste. Zero Waste offers a new way of thinking aimed at safeguarding the health and improving the lives of those who produce, handle, work with, or are affected by local disposal practices. (ZWIA, 2012)
Zero Waste strategies are helping societies to produce and consume goods while respecting ecological limits and the rights of communities; they ensure that all discarded materials are safely and sustainably returned to nature or remanufacturing. In a zero waste approach, waste management is not left only to politicians and technical experts, but to everyone impacted from residents of wealthy neighborhoods to the private and public sector workers who handle waste (GAIA, 2012).
The RDN’s Zero Waste Plan introduced in 2002 targeted “zero” as their waste diversion target. “This goal means the RDN will continuously strive to reduce the amount of waste requiring disposal” (RDN, 2004, p.3). Zero is considered an aspirational goal as waste that cannot be eliminated or diverted through composting or recycling is referred to as residual waste and requires disposal. (RDN, 2004).
In British Columbia, Regional Districts are mandated by the Provincial Environmental
Management Act to develop Solid Waste Management Plans to manage solid wastes, including
waste diversion and disposal activities. Reducing waste that must be landfilled is an important consideration for local government as it is one of the most expensive regional services. A recent study conducted by BC Statistics estimates municipal waste management costs will increase from $377 million per year in 2010 to $450 million per year in 2025. In 2012, the RDN’s expenditures on solid waste management are approximately $17.3 million. This is 17% of the annual budget. As indicated in Figure 4, in 2013 this is the third largest expenditure in the RDN, following Public Transit and Wastewater Treatment. (RDN, 2013)
Diminishing landfill capacity and the cost of disposal is a major concern for many
communities, including the RDN. The RDN has invested $2.4 million annually (2004 dollars) in its Zero Waste Plan. This approach has not only improved the environment but has created economic benefits as community economic development opportunities have emerged in the form of green jobs.
1.4 Research Question
As the region’s Zero Waste Plan has been in effect since 2002, one area worthy of research is to assess the impact of zero waste policies on community economic development in the RDN. In the 2004, Solid Waste Management Plan (SWMP) the sixth guiding principle is to
“promote community economic development where possible” (RDN, SWMP, 2004 p.1-1). This
case study provides an assessment of the impact of zero waste on community economic development. The research will explore: How has the RDN’s Zero Waste Plan contributed to community economic development?
1.5 Purpose of the Report
The purpose of this report is to assess the RDN’s experience with Zero Waste and how it has contributed to community economic development. This research points to actual jobs created through activity in the recycling industry (RDN, 2013).
The report also serves to contribute to a new body of work pertaining to the emerging green economy, as well as to inform other jurisdictions, local businesses and entrepreneurs about potential job creation from highly regulated solid waste management systems.
There is growing interest in employment and economic impacts of recycling programs at the international level, federal and by most Canadian provinces. More emphasis is being applied to the economic benefits as industry associations assume responsibility for product stewardship and Extended Producer Responsibility (EPR) programs (Burns, Duncan.2012).Similarly, the RDN is interested in the jobs created from the RDN’s WSML system.
In a recent 2012, FCM report titled Building Canada’s Green Economy –The Municipal role. This report identifies the Solid Waste Sector as an integral part of the United Nations Environment Programme (UNEP), green economy. The UNEP goes on to define the green economy as “one where income and employment growth are driven by public and private
investments that reduce carbon emissions and pollution, enhance energy and resource efficiency, and prevent the loss of biodiversity and ecosystems” (FCM,2011. p.iv). Solid waste is one of the key priority areas that contribute to job creation. This project assesses how many new jobs have emerged since 2004 and where these new jobs have been created.
To determine job opportunities we shall look at direct effects, indirect effects, induced effects and downstream jobs. Direct effects are the direct impact on wages, Gross Domestic
Product (GDP) and Full Time Equivalents (FTE)’s of increased industry output within the solid waste industry in Nanaimo.
Indirect effects measure the value of additional economic demands that the direct
economic activity places on the supplying industries in the region. When firms produce goods or conduct business, they must make many purchases. Some of these are from suppliers in the area.
Induced effects accrue when workers in the direct and indirect industries spend their earnings on goods and services in the region. Induced effects can also be called household effects.
Downstream sectors are those that experience an economic impact due to changes in the flow of material inputs to their business. In this sense, the reuse, remanufacturing and recycling reliant industries are downstream of the collection, landfill and processing sectors. An example of a downstream company is a glass bottle manufacturer that receives recycled glass to transform into a new product.
According to Human Resources Development Canada, the Green Economy and sustainability are providing new employment opportunities. As a result, Federal, Provincial regional and municipal levels of government are implementing a Zero Waste approach as a means to increase employment opportunities. Recycling businesses have a positive impact on the environment as they provide convenient alternatives to landfilling. In addition, many jobs exist within the non-profit sector where there is a mix of paid jobs and volunteer opportunities that benefits the social economy.
This discussion begins with reflections on the results of the 2004 Solid Waste Management Plan, lessons learned, and considerations for future planning efforts. Participants in the interview process were highly engaged and their conservation ethic flowed into other areas of their business. To build on what was learned from the interviews will assist us to develop a process to evaluate the WSML bylaw that would involve stakeholder engagement and commitment.
The Zero Waste Plan has been highly successful on many levels. It owes much of its success to the size and scale of the RDN. Many of the partnerships and collaborations would not have been made possible without the face-to-face contact that a smaller population allows.
The compact nature of the RDN district lends itself to accessibility and staff is attentive to the needs of the community. For example, to discuss policies changes such as disposal bans, regional staff are able to meet with the hauling community that includes roughly 15 private hauling companies. “The FCM Application cites that “the smaller scale builds trust between the partners, assuring then that the aim of expanded disposal bans is higher diversion and not higher financial penalties” (FCM Application, 2010).
The guiding principles and waste reduction targets were met. Several factors are
responsible for success, including an organized and inclusive planning process, Regional Board of Directors and senior staff that have provided leadership and through effective education and enforcement have managed to shift attitudes towards waste reduction through were focused and communicated each change prior to implementation.
Most importantly establishing goals helped us to focus our education and communications programs that promotes the private sector recycling facilities.
1.6 Research Findings
The RDN’s small capacity has also influenced development of a private sector
infrastructure and incremental change has gradually seen the development of restrictive policies and economic instruments, which ultimately created economic opportunities to evolve for the private sector (Dale, 2001, p. 99).
Landfill disposal is not job intensive and generates a small number of jobs compared to waste recycling and waste diversion.
Recycling and the use of secondary materials create significantly higher net value added and jobs at higher income levels than waste disposal.
Recycling businesses create jobs closer to home and have a smaller environmental footprint than businesses that rely on raw material extraction and manufacture.
1.7 RDN’s Regulatory Framework
The RDN’s regulatory framework consists of a variety of policy instruments that has contributed to increased waste diversion through the implementation of high tipping fees and landfill bans. High tipping fees have created a margin that allows businesses to enter the marketplace and introduce a rate structure that allows business operators to process materials for recycling that were once destined for the landfill. Personal interview with key informant
(personal communication, April 26, 2013) at the Nanaimo Economic Development Commission (NEDC) suggests that the “RDN’s Zero Waste Plan has contributed to community economic development by helping to shape Nanaimo’s fledgling green economy, reduce waste and address climate change.”
The RDN’s landfill bans are listed in Table 3. These landfill material bans have driven demand for convenient cost effective disposal alternatives.
Table 3. RDN Landfill Bans
YEAR BANNED MATERIAL 1991 Gypsum
1992 Land clearing waste 1993 Old Corrugated Cardboard
1997 Recyclable Paper, Scrap Metal, Tires 2005 Commercial organic waste
2007 Wood Waste, Garden waste, Stewardship Materials 2009 Household Metal & Plastic Food & Beverage Containers
In June 2005, when the RDN’s commercial food waste ban was implemented 4,200 tonnes of commercial food waste was diverted from the landfill and supplied to ICC, which is the only licensed composting facility in the region. ICC has a constant flow of feedstock from commercial and residential sources. Organic food and yard waste is transformed into a
beneficial soil conditioner. The RDN’s 2004 waste composition study determined that after organics and construction and demolition (C/D) waste is the largest component of solid waste disposed of in the Regional Landfill. C/D waste is wood and mixed waste from demolition and construction activities. It can contain many different types of materials including clean, treated and painted wood waste, plastics and vinyl, carpet, brick and rubble, glass, metal, and asphalt roofing.
The Construction/Demolition Waste Strategy and the disposal ban on clean wood waste have environmental, economic and social benefits. These measures reduce greenhouse gas
emissions resulting from the decomposition of organic wood waste in the landfill and generate economic activity and employment in the region. Diverted wood waste is feedstock for licensed wood waste recycling facilities.
In 2004, 11,000 tonnes of construction/demolition waste was received at the Regional Landfill. By 2012 that had decreased to 1000 tonnes. Key initiatives included:
● A ban on disposal of clean wood waste in the Regional Landfill and roll-off containers of wood waste at RDN Solid Waste Facilities; and
● Arranging contracts with third party wood waste recycling facilities to manage wood waste received at the landfill and transfer station from small self-haulers. ● Increasing the tipping fee for clean wood waste at RDN Solid Waste Facilities
created incentives to divert this material to licensed recycling facilities; In January 2008, the RDN banned clean wood waste from disposal in the Regional Landfill and roll-off containers of wood waste at RDN Solid Waste Facilities. Implementation of the wood waste ban advanced the RDN towards its Zero Waste plan goal of diverting 75% of the region's waste from the landfill by 2010.
The emergence of a composting facility and wood recyclers supports the RDN’s Zero Waste Plan. The business sector has responded, as the RDN’s approach has offered the right balance of incentives from high tipping fees and regulation.
Based on the compilation data provided through personal communications with Wood waste processors, this is the area that has produced the greatest number of new jobs in the RDN. Key policies that influenced job creation include;
(ii) In 2009, the RDN went even further, implemented a wood waste ban, banned large roll-off containers from disposing of construction and demolition (CD) wood at all regional facilities, and redirected them to private sector wood waste recycling facilities.
The impact of these policies has created a feedstock for Waste Stream Management Licensed (WSML) facilities to process CD wood and land clearing material. This was implemented during the period of significant economic growth and therefore wood waste facilities experienced high volumes of materials. Even with the 2008-09 global economic downturn, these businesses have continued to operate and sustain themselves
1.8 Jobs in the Industrial, Commercial, and Institutional (IC&I)
In the RDN, the Industrial, commercial, and institutional (IC&I) sector carry out the collection of garbage, recycling and organics. However, the RDN enforces material bans that encourage mandatory recycling. The RDN provide education to the residential and IC&I sector regarding materials bans and this includes the organics ban that was implemented in restaurants, grocery stores and institutional facilities once a facility was able to handle food waste
The RDN was able to ban organics from landfill once a facility was able to process food waste and produce a marketable soil amendment. The role of the RDN is to ensure compliance with our landfill bans. To ensure compliance site visits are conducted by the RDN’s Zero Waste Compliance Officer. The RDN provides businesses with updated information, reviews waste management practices and ensures they are complying with regulations including the
1.9 Composting & Organics Diversion
To conserve landfill space and to reduce greenhouse gas emissions many regional
district’s now have some level of organics diversion program. In 2004, only nine out 27 regional districts had included organics diversion in their solid waste management plans. The RDN went one-step further it banned commercial food waste and budgeted for a region wide curbside collection program, which created an opportunity for private investment.
In 2004, International Composting Corporation (ICC) built its facility in RDN to respond to the legislation banning commercial organics. The RDN approved a commercial ban on food waste in 2005. ICC provided viable disposal alternatives. ICC invested approximately $4 million in Nanaimo and this is the cornerstone of the RDN’s Zero waste Plan. The in-vessel aerobic composting facility is equipped to handle up to 20,000 tonnes of organic material. ICC received a $1,500,000 loan from BC Bio Energy Network to gasify organics (from the Region’s green bin program) and to create a synthetic biodiesel. Production of synthetic biodiesel is a world first from a small-to-intermediate sized bioenergy system. (BC Bioenergy,2010).
1.10 Economic Drivers
What has made the Zero Waste Plan effective is the implementation of economic instruments such as disposal bans, high tipping fees, the waste stream management licensing scheme and provincial initiatives such as EPR programs.
The RDN has built capacity in the waste management sector, as there is local knowledge and expertise that can be leveraged as well as a variety of feedstock available for recycling such as food waste, wood waste or biomass. According to the RDN and CVRD staff, this is creating
an emerging green economy. (Personal communications N.D. 2012). This is helping the Province to become a global leader in adopting innovative technologies. (Ministry of Environment, 2006, p. 1).
The RDN capture methane gas from the landfill gas operations. Investment in this infrastructure has created jobs. Cedar LFG a private sector company has invested $2 million and received approximately $1 million in Provincial funding through the BC Bio Energy Network. (BC Bio Energy Network, 2013)
International Composting Corporation (ICC) and the Nanaimo Bioenergy Centre have played a key role in transforming the relationship between solid waste and job creation. These projects have invested almost $2 million into the Regional District.
Figure five, highlights the relationships that have been instrumental for community economic development, as funds have been given to local private sector businesses that are providing green jobs in Nanaimo.
This collaborative approach creates an opportunity for innovation that has enabled the RDN to achieve significant reductions in GHG’s through banning materials from landfill, which creates feedstock for private businesses.
Extended Producer Responsibility (EPR) is an economic instrument that has been
employed throughout Canada to drive waste diversion. EPR policies leverage millions of dollars of private and public investment, expanding infrastructure and creating sustainable employment (Ontario Waste Management Association, 2013, p. 9).
The BC Climate Action Charter has supported economic development and through research and development has created green development options in the RDN, which further support the goals of Zero Waste. According to key industry informant, “collaborative
partnerships with organizations such as the BC Bio-energy network has developed strong relationships with industry and government and is one of the key drivers for Nanaimo’s reputation as a leader and for the regions to be recognized as a hub for Research and Development” (BC Bioenergy Network, 2013).
One of the key components of the RDN’s programs is implementing landfill gas collection this was a requirement of the Province’s Climate Action Plan. In addition, the Province implemented there BC Jobs Action Plan. Both of these plans support innovation and through collaboration and partnerships are trying to stimulate economic activity. These new jobs are in the emerging green economy that is creating new opportunities through sustainability and environmental protection. Ultimately, this reduces GHG’s and protects our natural environment. (Key informant, Province of BC. Personal phone interview, March 28, 2013).
Zero Waste strategies are helping societies to produce and consume goods while respecting ecological limits and the rights of communities; they ensure that all discarded materials are safely and sustainably returned to nature or remanufacturing. In a zero waste approach, waste management is not left only to politicians and technical experts, but to everyone has a voice in the decision making process. (Liss,Gary,2013).
Reduce, reuse and recycling produces greater societal benefits than energy recovery or disposal according to the BC Province (2013). To provide a high-level overview of the RDN’s Solid Waste Management System figure 2 is a schematic diagram showing the breadth of activities and actors engaged with the current solid waste management system. There are a wide range of waste management activities underway that reflect both a relatively mature waste management system and significant economic activity based on secondary resources. (Maura Walker and Associates, 2013, p.15).
As discarded materials flow through the RDN’s solid waste system at different stages in the process there are a variety of jobs created in each stage. Figure 6 below depicts an overview of the Solid Waste System and shows where the material goes once delivered once discarded.
.Figure 6. RDN’s Solid Waste Management System
Source: (RDN, 2013) – Stage One Report
Each of the circles in Figure 2 represents an area in the solid waste system that requires a level of management, which ultimately generates jobs.
For the purpose of this exercise, the following definitions of Municipal Solid Waste (MSW), and Zero Waste have been included.
Municipal Solid Waste (MSW) is governed by the Province of British Columbia’s Environmental Management Act, and it is defined as “refuse that originates from residential, institutional, commercial and institutional (IC&I), construction, demolition, and land clearing (DLC) sources” RDN, (2004).
The definition of Zero Waste by the Province of BC (2005) is that:
Producers of discards.
Jobs – residents & contractors
Collection system
Jobs – Haulers
Transfer facilities – Jobs are in Regional
facilities and private facilities
Waste management options
“Zero Waste emphasizes waste prevention rather than waste management, by targeting inefficiencies through all stages of product life cycle: resource extraction,
manufacturing, consumption and disposal/recycling”. RCBC (2007). p. iii.
The purpose of this report is to demonstrate how the solid waste management planning process gives regional district’s the ability to seek collaborative approaches to problem solving. The report assesses the RDN’s experience with Zero Waste how it has contributed to community economic development. This research points to actual jobs created through new employment opportunities. (RDN, 2013).
An industry contact has indicated that recycling has been an important job creation mechanism that has provided investment opportunities for local businesses. ( DBL, Personal Communications, March 5th, 2013). . According to Human Resources Development Canada, the Green Economy and sustainability are providing new employment opportunities. Many levels of government are advocating Zero Waste as a means to increase employment
Opportunities in the local economy. Recycling businesses also have a positive impact on the environment as they provide convenient alternatives to landfilling. In addition, there are many jobs exist within the non-profit sector where there is a mix of paid jobs and volunteer
2.0 METHODOLOGY
The focus of this research is to access the impacts of the RDN’s Zero Waste Plan on the Region’s local economy was conducted. To explore the research question in more detail the research has been conducted in two parts:
Part 1 consisted of a literature review on the historical context of the RDN’s zero waste philosophy and why this appears to be part of a wider trend by regional districts and
municipalities to adopt Zero Waste policies to achieve this a jurisdictional scan was conducted.
Part 2 involved conducting semi-formal interviews of zero waste practitioners, community economic development organizations, and recycling facility operators. These
interviews would provide an understanding of how the RDN’s zero waste programs contribute to community economic development.
2.1 Research methods
The research encompasses extensive data collection involving multiple sources of information. Primary data collection consisted of carrying out semi-structured interviews with key informants and reports conducted by the RDN. Secondary research involved a review of RDN literary data sources, attendance at conferences, and jurisdictional scan. These types of research methods complement case study research that analyzes programs, which are part of an organizational process such as the RDN’s Zero Waste plan. (Yin, 2003, p.17).
Ethics approval for this research was granted by University of Victoria on December 20, 2012. The primary research involved recruitment of interviewees that occurred during spring
2013. Table 4 summarizes the data collected from primary research sources, which included semi structured interview methods.
Table 4: Indicates Interview Sources
The results of the data collected from interviews was protected and the interviewees remained anonymous. Despite the possibility of their identity, being discerned due to the small sample size a pseudonym has been assigned to each interviewee and their associated affiliation. Note taking was used to record interviewee comments and permission to use quotes in context was requested. Documents will be destroyed upon completion of the research.
Semi-structured open ended interviews were conducted. This method was chosen as it “provides a greater breadth than other types given its qualitative nature. (Denzin, & Lincoln, 1998 p.56). To gather information from personal conversations experts from community economic development associations, solid waste experts and recycling facility operators. The interviewees had a working knowledge of the recycling industry and were familiar with the RDN’s Zero Waste Plan. Also, interview participants were all invited to provide their individual
Research Method Semi Structured Interviews
Public Sector Private Sector NGOs Associations Key informants Manager/Staff Public Sector 2 Executive Directors Non Profit 2 2 Recycling Facility Managers 3 Composting facility Managers 3
perspective on what changes, if any, they would like to see in the RDN. A summary of the interview questions and participant responses is available in Appendix 3.
Qualitative data for this case study was collected and interview responses were open-coded and categorized into themes. The quantitative statistical data gathered from the interviewees was aggregated, which means the amount of materials represents a collective amount, and is the sum of all the components that include total volume of recyclable material by category and jobs based on employment numbers in each waste sector.
The volume data gathered from the RDN internal documents was used to calculate
recycled quantities and the number of jobs reported from recycling facility operators. All facility operators were contacted provided numbers of direct and indirect employment opportunities. The analysis of documents and interview notes paints a picture of job creation between 2006 and 2012 in the RDN. To verify the data information from primary and secondary data sources was used to cross reference job numbers from local recycling facility operators. A jurisdictional scan was also conducted of those regions with similar waste management systems and zero waste philosophies.
Secondary sources included industry associations such as; Coast Waste Management Association (CWMA), non-governmental organizations such as; Recycling Council of British Columbia (RCBC), government reports included; the Regional District of Nanaimo, Statistics Canada, British Columbia Statistics, and the BC Ministry of Environment (MOE) were contacted either by email or by phone to request information.
The Case Study model was chosen as it is useful for examining “contemporary real-life situations” (Yin, 1984, p.23). This is why the case study method was selected as solid waste issues tend to cross a variety of disciplines and can be contentious. Based on the RDN’s landfill siting experience, a level of complexity was encountered during this process, as there was usually a variety of stakeholder interests being represented. (Creswell,1998, p.62).
According to Allison, in Yin (2009), case studies rely on logic from the following elements; (a) rational actors, (b) complex bureaucracies and (c) politically motivated people. These elements while could be considered as competing theories they are also complementary theories (p. 6).
The RDN’s 2004 SWMP was the product of rational actors that included municipal staff, complex bureaucracies that involved three levels of government, as well as politically motivated people that included community stakeholders. Through the RDN’s SWMP process, stakeholder groups converged to avert a landfill crisis and in the wake of public opposition, created the regulatory framework for community economic development to emerge in the Regional District of Nanaimo (Yin, 2010, p. 53).
2.3 Narrative analysis
A narrative analysis uses the interview findings to provide the RDN with feedback on its regulations. This allows the RDN to validate its perception of the impacts of Zero Waste on the local economy. This approach illuminates the decisions that have led to the RDN’s Zero Waste Plan and focuses on the “story itself” (Yin, 2010, p. 17).
The narrative analysis complements the phenomenological approach of this case study as it describes the key events as they unfolded. According to Denzin and Lincoln, qualitative
research crosscuts the humanities and the social sciences and offers an interdisciplinary and trans-disciplinary approach (Denzin & Lincoln, 1994, p. 8).
2.4 Limitations of the Study
Data used in the preparation of this report is gathered by RDN staff, on an annual basis, from regional district recycling depots, provincial stewardship program operators, and private recycling companies operating with the RDN. Data is collected by a combination of the following: analysis of inbound and outbound reports, review of annual reports prepared by stewardship program operators, and phone/email surveys of private recycling or disposal companies operating locally. Once collected, data is tabulated and compared to regional population statistics to prepare the figures outlined in this report.
It should be noted that data collected from RDN facilities and provincial program operators are likely to have a higher degree of accuracy than data collected from private
recycling companies, although staff attempt to verify data to the greatest extent possible. This is due to the fact that regional district depots and provincial stewardship programs have both staff and infrastructure (such as weigh scales) available to provide more sophisticated volume counts, whereas smaller or more rural operators tend to rely largely on estimations based on the previous year’s figures (e.g. approximately 20% more material collected this year over last). Certain tools, such as a requirement that all facilities licensed under the RDN’s Waste Stream Licensing
Bylaw, 2004, submit monthly material statements, have improved the quality of data received from private facilities. Due to limitations with volume reporting it is important to consider annual trends rather than absolute numbers. Furthermore, given the inherent uncertainties in the tracking process, the key figure to consider when analyzing a region’s progress on waste
reduction is the amount of waste disposed, rather than the amount of waste recycled, as the former is the most rigorous and relevant to the waste reduction goal (RCBC).
A limitation to this research is accurately determining indirect employment in the
recycling sector. Stakeholders were unable to quantify specific data to confirm actual economic impacts and job creation in the RDN. Therefore, data for the recycling industry was available at the federal and provincial level and through industry sources. Most of the data was collected during the first two quarters of 2013.
There are minimal data sources from community economic development literature on the economic benefits of recycling and zero waste, however solid waste consultants for a variety of jurisdictions have conducted markets study analysis that complements this case study. For this reason, it was important to discuss this with industry experts that had conducted their own primary research.
One of the of the challenges for Regional districts is that we do not have access to employment information and rely on data prepared by Statistics Canada or BC Statistics using the economic multiplier model. Another significant challenge is that the economic multiplier model does not take into account geopolitical differences. Lisa Skumatz, a highly respected economist with Skumatz Economic Research Associates, Inc. (SERA) is a research and consulting firm specializing in solid waste and energy conservation. (Imbierowicz, K. 2006).
The direct and indirect job numbers are gathered from the primary research and are based on discussions with local facilities. Whereas BC Statistics or Industry Canada do not distinguish between those jurisdictions such as the RDN, with a regulatory framework designed to
proportion of green jobs than other comparably sized jurisdictions that do not have the same regulations.
3.0 LITERATURE REVIEW
There is a plethora of literature and research about solid waste from many disciplines and perspectives. Prior to preparing an analysis of data locally, an extensive review of international literature relating to zero waste and the green economy was undertaken. The purpose of this literature review was to identify key themes and policies that could be considered as best practices in implementation of Zero Waste programs in other jurisdictions.
While there is a growing body of international literature on the impacts of solid waste written from a broad perspective there is minimal work at the community level. It is hoped this research will contribute to this body of work.
This case study reviewed publicly available statistics from BC Statistics, Statistics Canada, community economic development information on the green economy from
jurisdictions on Vancouver Island and the Metro Vancouver. Published and publicly available academic literature from reputable sources, as well as material and information acquired from presentations at solid waste industry conferences, and workshops.
Data also includes information received from stakeholder interviews and informal discussions with solid waste experts and stakeholders. Data and reports were collected from internet sources, and public libraries and University of Victoria library databases and Industry Canada’s Library.
This project examines literature on solid waste from the perspective of its impacts on community economic development through the lens of economic impacts of solid waste policy. It examines the literature on waste generation, disposal of solid waste management, and
highlights the importance of Zero Waste with respect to sustainable waste management. It will also identify gaps in the literature and where further research is needed.
A jurisdictional scan was conducted of Zero Waste program in North America to determine if job creation was a factor for community economic development.
3.1 Literature Review Findings
The purpose of the literature review is to review how increasing solid waste disposal costs and implementing landfill bans has impacted job opportunities in facilities licensed through the RDN’s waste stream management bylaw.
A literature review of local, national and international sources was undertaken. Though leading nationally compared to other parts of Canada, the Regional District of Nanaimo is on par, or coming close to other developed countries lead by Japan. This study also demonstrates that there are significant societal benefits as a result of increased diversion including new jobs, increased GDP, reduced GHG emissions, and reduced environmental and human health risks. (Zero Waste Business Case: Final Report, 2013).
3.2 Review of Zero Waste Jurisdictions
Research was looked at in other jurisdictions for best practices and policies to see if other jurisdictions have had similar successes. I have applied the knowledge from other jurisdictions to estimate how many jobs have been created through the RDN’s policies and to see if this is
consistent with other regional districts. Furthermore, projections for future job creation were also estimated based on the latest 2013 Waste Composition study.
The literature review points to several examples of jurisdictions that have adopted Zero Waste policies, which has allowed the waste industry and local governments to move away from landfill and towards Zero Waste.
Many communities in California, Canada, Italy, New Zealand, Spain and the UK have embarked on the zero waste strategy (not all call it that) and have achieved some with very rapid and impressive results. San Francisco (population 850,000) has reached 72% diversion from waste disposal. Their goal for 2010 is 75% diversion and their goal for 2020 is Zero Waste. Many other communities in California have also reached over 70% diversion. In Italy over 200 communities have done so. Novarra near Turin (pop. 100,000) reached 70% in just 18 months. Salerno, went from 18% to 82 % in one year. Villafranco d'Asti (population 35,000) has reached 85% diversion and the small town of Ursibil in Spain has reached 86%.
The Zero Waste International Alliance (ZWIA) cites a number of North American jurisdictions that have adopted a zero waste goals these are listed in Table 5.
Table 5: Zero Waste Communities in North America ● Metro Vancouver
● City of Vancouver
● Arizona, Sedona,
● Regional District of Central Kootenay
○ City of Nelson
● California (25+ cities)
● Central Okanagan Regional District
○ City of Kelowna
○ Lake Country
● Central Vermont Waste Management District
● Columbia-Shuswap Regional District ● Colorado
○ Boulder City
○ Telluride,
● Comox Strathcona Regional District ● Georgia, Atlanta,
● Cowichan Valley Regional District ● Illinois, Chicago,
● Kitimat-Stikine Regional District ● Ohio, Logan County
● Regional District Kootenay Boundary
○ City of Trail
○ City of Grand Forks
○ Village of Fruitvale
○ City of Rossland
● Texas,
○ San Antonio,
○ Dallas,
● Peace River Regional District ● Washington, Seattle
● Regional District of Nanaimo ● City of Toronto
● Sunshine Coast Regional District ● Halifax Regional Municipality
● Thompson-Nicola Regional District
Many of them have turned to zero waste to help solve a specific issue. For the RDN it was to address a landfill issue. At a recent Zero Waste workshop, Ruth C. Abbe. National Practice Leader, Zero Waste Planning, presented a case study from Alameda County, California and there, Zero Waste had been implemented in 1997, to address the effects of rising sea levels from climate change. The findings in both the RDN and Alameda examples is that while environmental impacts were the primary reason for implementing Zero Waste Plans (ZWP), the
secondary impacts supported green businesses and green collar jobs and this was beyond the original goal. (Abbe, 2013)
3.3 Findings from Literature Review on Job Creation
Recycling is an important economic sector in a number of OECD countries in terms of employment, turnover, and investments. The Bureau of Industrial Recycling (BIR) represents more than 70 countries, over 850 member companies from the private sector and 40 national associations. Together, these members form the largest international recycling federation.
According to BIR in 2006 the “recycling industry” employs more than1.5 million
people, with an annual turnover of $160 billion, and physical throughput greater than 500 million tonnes of materials. (www.bir.org). The Canadian Association of Recycling Industries (Cari), a member of BIR estimated that recycling has been shown to creates 10 times the employment and revenue, when compared to the waste industry. Furthermore, while somewhat dated, Fifteen years ago the Department of Natural Resources reported that some 1000 metal recycling
companies in Canada employed 20,000 directly and another 60,000 indirectly. Today those figures are thought to have doubled. In addition, there are comparable numbers for paper fibre recyclers and even more companies and employment for plastic, oils and solvent, rubber and glass recyclers.
In 2008, the Canadian Association of Recycling Industries (CARI) estimated that almost 12 Million tonnes of metal material was recycled in Canada with an employment level of about 34 000. CARI believes both figures are understated. Extrapolating accurate job numbers is difficult as each association has its own methodology for calculating employment data.
However, the theme emerging is that for Canadians that have a well-established recycling industry there are measurable economic benefits from recycling.
In BC other jurisdictions that have implemented similar Bylaws to the RDN, such as the Cowichan Valley Regional District (CVRD), and Metro Vancouver. These jurisdictions have also experienced job creation because of WSML waste management strategies.
(Communications with Cowichan Valley Regional District.) Metro Vancouver’s Recycling Bylaw requires recycling facilities to be licensed however, there are less landfill bans and the tipping fee is approximately 30% lower than the CVRD and the RDN. As a result, Metro Vancouver’s per capita disposal rate is higher than both the RDN and the CVRD. Ministry of Environment, (2013).
Communities such as the RDN, CVRD and Nova Scotia that either have banned organics or have implemented full-scale programs are achieving the lowest capita waste generation. Nova Scotia has gone even further and banned this from residential waste stream. Lura Consulting (2010)
A study conducted by LURA Consulting points out the number of jobs that have been created by communities adopting zero waste policies it cites Metro Vancouver, Kootaney Boundary as communities that have allowed the private sector to help fill the gaps by providing waste management services. Lura Consulting (2010)
The public policy shift to a Zero Waste future for the RDN and CVRD has led to the implementation of the WSML bylaw. The WSML bylaw is a tool to address economic externalities of waste management. Through conserving landfill space this shifts costs from disposal and creates revenue for recycling facilities whether in the private or public sector. The
primary reason for waste avoidance is to address social issue. The secondary impact is a market issue in the form of green jobs. (Lombardi, Eric. Ecocycle, 2012).
In the RDN, the WSML bylaw has allowed the public sector to defer capital expenditures with respect to developing new disposal capacity. Implementing economic instruments has raised public awareness, shifted disposal behaviours and developed a private sector infrastructure designed to provide alternatives to sending discard materials to a landfill. Curbside blue box recycling began in the early 1990’s and coincided with the Ministry of Environment’s provincial wide goal of reducing residential waste by 50% by the year 2000. Many regional districts
subscribed to the Provincial goal and by 1996, commercial success began to drive curbside recycling.
Currently, about 45% of the world’s 1.3 billion tonnes annual production of steel comes from scrap. Over 40% of the world’s copper production and about one third of the world’s aluminum are also produced from recycled material.
Canadian recyclers process between 16 and 18 million tonnes of scrap metal each year. Similar economic success can be stated for the fibre products that come from the forestry sector, plastics, and chemicals that come from the oil industries. (CARI, 2013)
3.4 Findings on Economic Multipliers for Job Creation
According to the B.C. Statistics, economic multipliers involve input-output modeling techniques to calculate employment opportunities, with both direct and indirect economic impacts from changes associated with a particular industry. For the recycling industry, it is important to use an incremental approach that takes into account revenues from collection and processing activities. (Horn, 2008).
