STAFF REPORT
November 16, 1999
To: Works Committee
From: Barry H. Gutteridge, Commissioner, Works and Emergency Services
Subject: North York Fully Automated "Flower Pot" Waste Collection System
Purpose:
To respond to a request from the Works and Utilities Committee to report on the financial implications and
recommendations with respect to alternatives to the automated "flower pot" waste collection system.
Financial Implications and Impact Statement:
The conversion of 177 sites currently receiving "flower pot" garbage collection where the containers are stored on City
boulevards, to bulk lift collection, could result in estimated annual operating cost savings of $57,000.00 per year.
Recommendations:
It is recommended that this report be forwarded to the North York Community Council for their consideration.
Background:
At its meeting held on April 21, 1999, the Works and Utilities Committee received a report dated April 9, 1999, from the
Commissioner of Works and Emergency Services headed, "Blue Box Collection for Townhomes and 'Flower Pot'
Collection System." The report indicated that there are still a number of inconsistencies with respect to material collection
service delivery across the City of Toronto and that in the coming months, staff will endeavour to develop and recommend
a common set of criteria governing material collection, in an effort to harmonize service delivery.
The Works and Utilities Committee:
(1) received the aforementioned report; and
(2) requested the Commissioner of Works and Emergency Services to submit a report to the Committee at its meeting
scheduled to be held on July 14, 1999, on the financial implications and recommendations with respect to alternatives to
the "flower pot" bins.
Comments:
As indicated in the April 9th, 1999, report to the Works and Utilities Committee, the automated "flower pot" waste
collection system is unique to the former City of North York. The one-person automated side-loading collection system
utilizes vehicles with side-mounted, hydraulically controlled arms capable of lifting and dumping various sizes of round,
plastic containers. This service is provided using in-house staff and equipment. The automated "flower pot" collection
service is provided to multiple family dwellings, strip plazas and City facilities that, in the past, have not been able to
accommodate bulk lift collection service. Currently, there are approximately 765 locations where this service is provided
for garbage collection and 759 sites where it is used to collect recyclable materials.
One of the concerns of the "flower pot" collection system has been its relatively high visibility on city streets in North
York. City staff recently conducted a survey to determine the storage and set out practices of sites receiving "flower pot"
collection for garbage and recyclable materials. Some of the survey's findings are presented below:
Table 1 - "Flower Pot" Garbage Collection
Location of Container(s) Number of Sites
Stored and Collected on Private Property 353
Stored on Private Property/Collected on Boulevard 194
Stored and Collected on Boulevard 214
Stored and Collected in City Laneway 4
Total: 765
Table 2 - "Flower Pot" Recycling Collection
Location of Container(s) Number of Sites
Stored and Collected on Private Property 628
Stored on Private Property/Collected on Boulevard 122
Stored and Collected on City Boulevard 9
Total: 759
In the figures presented above, approximately 208 sites have both garbage and recycling "flower pot" containers.
Our primary objective is to identify a program to remove the "flower pot" containers from City boulevards on
non-collection days. Based on the above information, this involves targeting the 214 sites where the garbage containers are
stored and collected on the City boulevard and the nine sites where the recycling containers are stored and collected in the
same manner.
There are basically three alternatives to the current "flower pot" system:
(1) bag-based curbside collection;
(2) bulk lift collection system; and,
(3) retrofitting the stationary "flower pot" bins located on boulevards with wheels so they can be rolled out to the curb on
collection days only
Due to operational problems and increased costs associated with reverting back to a bag-based curbside collection system,
as detailed in our April 9, 1999 report, staff do not recommend that it be considered as an alternative to the 'flower pot'
system.
The most reasonable alternative to the "flower pot" system is bulk lift collection. The current bulk lift garbage contract in
the North York Community Council Area contains a provision for the City to add additional units (sites). It is estimated
that 83 percent, or 177 of the 214 sites where the garbage containers are stored and collected on the City boulevard could
be converted to bulk lift collection on private property. The 177 sites, which equate to approximately 2,616 units, could be
converted at a cost of $0.73/unit/month, under the existing bulk lift contract. Therefore, the annual cost to convert from
"flower pot" collection to bulk lift collection for these 177 sites, using the existing contractor, would be approximately
$22,916.00 (2,616 units x $0.73/unit/month x 12 months/year), excluding G.S.T. This compares favourably to the current
cost of servicing these sites using the existing "flower pot" system which is estimated to be $79,862.00 per year.
If recommended as the preferred alternative, property owners would be required to purchase or rent the bulk lift containers
and provide any necessary site modifications at their costs.
It is important to note that there are additional costs and concerns with the bulk lift garbage collection alternative that must
be taken into account prior to determining if it should replace the existing "flower pot" collection system at the specific
locations.
The contracted bulk lift garbage collection alternative does not include the cost of the containers. Bulk lift containers for
this application typically cost approximately $1000.00 each. With 177 sites requiring new bulk lift containers, this would
result in a capital cost in the neighbourhood of $177,000.00. The current bulk lift contract requires that the property owner
purchase or rent the bulk lift container at their cost. This requirement should be carried forward for any sites converted
from "flower pot" collection to bulk lift.
In the April 9th, 1999 report, staff noted that property owners may be required to provide engineered concrete storage and
collection areas to accommodate the weight of the heavier bulk lift containers and vehicles. Given the volume of waste
generated at a number of the sites currently receiving "flower pot" collection, it appears that not all of the sites would
require a new concrete storage and collection area. Preliminary estimates indicate that a concrete pad may be required for
up to 60 percent of the sites proposed to be converted to bulk lift collection. However, the decision as to whether or not a
given site requires modifications to accommodate bulk lift collection could only be accurately determined through
individual site visits involving a representative from the bulk lift contractor, City staff and the property owner or landlord.
On a site by site basis, these visits would determine:
(1) where the bulk lift container would be stored;
(2) what size of container would be required;
(3) whether or not a structural concrete pad is required;
(4) whether the container should be stationary or rolled out on collection days for easier access;
(5) if there is proper access and egress for the bulk lift vehicle on the site; and
(6) if minimum parking space requirements can be maintained.
If a concrete storage and collection pad is required, it could cost between $2,000.00 and $3,000.00, depending on the size
of the site. The costs for site modifications necessary to accommodate bulk lift collection would be borne by the property
owner.
In addition to the extra cost to the property owner, it is likely that the construction of a concrete pad, for the bulk lift
alternative, or the storage of wheeled "flower pot" containers on private property, could result in a loss of parking and
landscaping. While the loss of landscaping is more of an aesthetic concern, the loss of parking spaces could result in the
property owner being in contravention of a municipal zoning by-law. North York Zoning By-Law No. 7625, as amended,
sets out minimum requirements for tenant/visitor parking and loading areas for various residential and commercial
properties in the North York Community Council Area. Some sites may not be able to be converted if minimum parking
space requirements cannot be maintained.
In the past, efforts to implement bulk lift collection systems at suitable locations in North York have had limited success
due to resistance by property owners to the cost of providing the necessary facilities, and loss of parking space.
Of the remaining 37 sites (214 - 177) that cannot be converted to bulk lift collection, 16 sites can be converted to locations
where the containers are stored on private property and rolled out on collection days by retrofitting the "flower pot" bins
with wheels. It is estimated that it could cost up to $300.00 per container to retrofit the larger 300 and 420 US gallon
"flower pot" containers with wheels. The property owner would be responsible for the costs to retrofit the "flower pot"
containers with wheels and to purchase new "flower pot" containers, as necessary.
The nine (9) sites where the recyclable material containers are stored and collected on the City boulevard can be retrofitted
with wheels, so that they may be stored on private property and rolled out on collection days. This too would be at the
property owners expense.
Moreover, it is clearly apparent that very few properties abide by the local by-laws pertaining to proper garbage and
recyclable materials storage and collection procedures. Clause No. 3.16.2 of the Nuisance Section of the North York
Property Standards By-Law No. 31148, as amended, states,
"The place for temporary storage and disposal of garbage and refuse shall be maintained:
(1) in a litter free condition;
(2) in a manner that will not attract pests or create a health or safety hazard;
(3) screened from public highway, street, walkway, park or residential property so as not to be visible from such locations."
In addition, the North York Garbage By-Law No. 21732, as amended, which is intended to regulate the storage, handling
and collection of refuse in and by the City also contains a number of clauses and provisions for proper waste management
practices that, if enforced, could result in significant improvements from an aesthetics standpoint. We propose that the
Property Standard and Garbage By-Laws be enforced, while acknowledging the constraints created by the Zoning By-law
which sets out minimum parking and loading space requirements.
The full conversion of the "flower pot" recyclable material collection system to bulk lift requires further investigation to
determine if alternative collection methods would be more cost effective.
Once a successful program to remove the "flower pot" containers from the City boulevards on non-collection days was
implemented, an investigation into improving efficiencies and reducing costs by converting as many of the remaining sites
from "flower pot" collection to bulk lift could be undertaken. We estimate that an additional 412 of the remaining 551 sites
(765-214) receiving "flower pot" collection could be converted to bulk lift with potential further annual savings.
Conclusions:
In order to address the aesthetic concerns associated with "flower pot" garbage containers located on City boulevards, and
in order to reduce costs, a program to replace "flower pot" garbage containers with bulk lift containers, where feasible, or
alternatively to retrofit the "flower pot" containers with wheels to allow them to be stored on private property on
non-collection days can be implemented. It is therefore recommended that this report be forwarded to the North York
Community Council for their input into the development of future recommendations.
Contact:
Andrew Pollock
Director, Policy and Planning
Solid Waste Management Services
Works and Emergency Services
Phone: 392-4715
Fax: 392-4754
E-mail: andy_pollock@metrodesk.metrotor.on.ca
Angelos Bacopoulos Barry H. Gutteridge
General Manager Commissioner
Solid Waste Management Services Works and Emergency Services
BHS/ed
