Implementation of a 100 Percent Biosolids Beneficial

Reuse Program at the Main Treatment Plant

The Works and Utilities Committee recommends:

(1) the adoption of the report dated June 16, 1998, from the Commissioner of Works and Emergency Services, subject to the following amendments:

(i)deleting Recommendation No. (6)(vii) and inserting in lieu thereof the following:

 "(vii)report to the Works and Utilities Committee with recommendations on the proposals submitted for the construction and operation of facilities to support beneficial use programs in February 1999, such proposals to include public operation options;"

(ii)adding thereto the following additional Recommendation No. (6)(ix):

"(ix)the Expressions of Interest and Requests for Proposals be developed with such proposals not precluding the City's ability to select public sector or private sector operation of the facilities or some combination thereof;"

(iii)amending the membership of the Biosolids Multi-Stakeholder Committee to provide for two Union representatives, with the Commissioner of Works and Emergency Services to determine the appropriate Unions to be represented; and

(iv)expanding the membership of the Technical Advisory Committee to include more technical representation;

(2)Harbour Remediation & Transfer Inc. (HR&T) not be permitted to award any contracts until after the July 8, 1998 Council approval of the selected process; and reports, for the information of Council, having requested that the Commissioner of Works and Emergency Services submit a full report on the process and the selected contractor to Council for its meeting on July 8, 1998;

(3)the Commissioner of Works and Emergency Services be involved in the bid process for odour control equipment for HR&T;

(4)proponents responding to the Expressions of Interest be requested to comment on whether their facilities could be sited at the Main Treatment Plant;

(5)some of the technical advisors be independent; and reports having requested the Commissioner of Works and Emergency Services to report to Council on July 8, 1998, clarifying how this will be accomplished; and

(6)the technical advisory process be undertaken in partnership with the Ministry of the Environment.

The Works and Utilities Committee reports, for the information of Council, having:

(1)further requested the Commissioner of Works and Emergency Services to:

(i)arrange a briefing with regard to Harbour Remediation & Transfer Inc. for interested Councillors prior to the meeting of Council on July 8, 1998;

(ii)report to Council on July 8, 1998, on the results of the briefing of Councillors, and confirm that he and the staff are fully satisfied with the solution in all aspects, in particular to address the situation at Falconbridge including investigation of the experience to date and on any concerns arising in that community;

(iii)consider the suggestions made with respect to the membership of the proposed committees, and report to Council on July 8, 1998, on such suggestions;

(iv)consider whether the Technical Advisory Committee should be separate from the Biosolids Multi-Stakeholder Committee, or whether such committees could be folded together; and

(v)further report to Council for its meeting on July 8, 1998, on the following:

(a)whether there is any validity in the concerns raised during the deputations by Ms. Joyce McLean and Mr. Jim Chisholm with respect to the environmental impact of biosolids on agricultural land;

(b)Federal Ministry of Agriculture and Food studies on the effects of hazardous chemicals in soil and sewage sludge; and

(c)the acreage of mine tailings that is available and capable of receiving lime-treated biosolids, with comments from the Ministry of the Environment; and

 (2)referred the submission by Ms. Joyce McLean to the Commissioner of Works and Emergency Services for consideration in his report on the new sewer use by-law; and to the Environmental Task Force.

The Works and Utilities Committee submits the following report (June 16, 1998) from the Commissioner of Works and Emergency Services:

Purpose:

This report is supplemental to the May 15, 1998 report on the implementation of a 100 percent biosolids beneficial reuse program at the Main Treatment Plant (MTP) and responds to the various motions for further information as requested by the Works and Utilities Committee at its meeting of May 20, 1998, when the report was considered. The recommendations contained in this report supersede those of the previous report.

Funding Sources, Financial Implications and Impact Statement:

Approval of the recommendations of this report would require budgetary approval in 1998 for expenditure of $15,000.00 to support public consultation, $400,000.00 for the retention of technical consultants, $50,000.00 for the retention of a Project Manager, and up to $250,000.00 to reimburse proponents who develop comprehensive proposals to support beneficial use of the biosolids from the Main Treatment Plant. Total 1998 expenditures would thus be projected at up to $715,000.00. Total 1999 expenditures are estimated at up to $115,000.00.

Recommendations:

It is recommended that:

(1)a Biosolids Multi-Stakeholder Committee (BMSC) for the City of Toronto be established immediately to facilitate ongoing public consultation and involvement in the ending of incineration at the Main Treatment Plant, with all meetings advertised and open to the public, and with the following membership:

(i)three City of Toronto Councillors (Chair of the Works and Utilities Committee and one Councillor from each of the two wards containing the Main Treatment Plant, with the other two Ward Councillors serving as alternates);

(ii)six representatives from the Neighbourhood Liaison Committees (two each from Main Treatment Plant, Humber Treatment Plant, and Highland Creek Treatment Plant Committees);

(iii)one environmental group representative;

(iv)one representative from the Safe Sewage Committee;

(v)one public health representative;

(vi)two representatives from local industry in the Port Area; and

(vii)one unionized staff representative from the Main Treatment Plant;

(2)the Commissioner of Works and Emergency Services be authorized to provide secretariat support to the Biosolids Multi-Stakeholder Committee, including the annual provision of $15,000.00 to support the activities of the Committee;

(3)a Technical Advisory Committee (TAC), be established immediately to provide technical advice on all aspects of the biosolids program, to obtain outside technical advice as required, to review and develop recommendations on all documents related to the notification, short-listing and selection of proponents for beneficial reuse of biosolids from the treatment plants, with the following membership:

(i)Chair of the Works and Utilities Committee (Chair);

(ii)one representative from the Biosolids Multi-Stakeholder Committee;

(iii)General Manager of Water and Wastewater Services;

(iv)one university representative with expertise in a discipline related to biosolids;

(v)two representatives from municipalities that have successfully implemented a biosolids beneficial use program; and

(vi)one representative with expertise in biosolids regulations;

(4)the Commissioner of Works and Emergency Services be authorized to provide funding up to a maximum of $400,000.00 for technical consultants in 1998, and $100,000.00 in each of 1999 and 2000, to support staff and the Technical Advisory Committee;

(5)the Commissioner of Works and Emergency Services be authorized to select and retain consultants as needed to assist staff and the Technical Advisory Committee;

(6)the Commissioner of Works and Emergency Services be authorized to:

(i)retain a Project Manager at an estimated 1998 cost of $50,000.00, with annual expenditures thereafter of $100,000.00 to manage ceasing of incineration at the Main Treatment Plant and implementation of a 100 percent beneficial use program for the biosolids;

(ii)extend and expand the current land application program as an interim measure subject to satisfactory resolution of outstanding issues related to odour control and shipping facilities;

(iii)advertise internationally for Expressions of Interest (EOI) from proponents with direct experience in beneficial reuse of biosolids, with the financial and organizational capabilities to provide a biosolids management program for up to 53,000 dry tonnes per year within a time frame of one to two years for design, construction, and initiation of operations;

(iv)advertise internationally for Expressions of Interest from proponents with the financial and organizational capabilities to design/build biosolids loading facilities, odour control facilities, and heat generation facilities within a time frame of one to two years for design construction and initiation of operations;

(v)develop Requests for Proposals (RFPs) for approval by the Technical Advisory Committee and review by the Biosolids Multi-Stakeholder Committee to be issued in October 1998 to proponents short-listed from the Expression of Interest process;

(vi)reimburse up to five short-listed proponents up to $50,000.00 each for their costs in preparing detailed proposals for beneficial use of biosolids at the treatment plants;

(vii)report to the Works and Utilities Committee with recommendations on proponents to construct facilities and assume responsibility for beneficial use programs in February 1999; and

(viii)seek approval of the Budget Review Group for the 1998 expenditures identified and to include the projected 1999 expenditures in the Department's 1999 budget request;

(7)the Commissioner of Works and Emergency Services report to the September meeting of the Works and Utilities Committee on the Source Control Program including recommendations on resources, targets, on the role of pollution prevention programs and on the potential impact on sewage quality of programs to reduce combined sewage and stormwater; and

(8)the Commissioner of Works and Emergency Services report to the September meeting of the Works and Utilities Committee:

(i)with a detailed schedule for ceasing incineration at the Main Treatment Plant including specific annual targets for monitoring progress;

(ii)the utilization of the Humber and Highland Creek Treatment Plants and their implications on the operation of the Main Treatment Plant; and

(iii)on any outstanding items raised in the motions tabled at the Works and Utilities Committee's May 20, 1998 meeting.

Council Reference/Background/History:

At its meeting held on February 11, 1998, the Works and Utilities Committee recommended that incineration of sewage sludge at the MTP be stopped no later than January 1, 1999. This recommendation was referred back to the Committee by City Council. A report dated March 16, 1998, was submitted to the Works and Utilities Committee meeting of March 25, 1998, by the Commissioner of Works and Emergency Services.

At its meeting of March 25, 1998, the Works and Utilities Committee deferred consideration of the Commissioner's March 16, 1998 report and requested additional information on 12, 24 and 36-month plans for implementation of 100 percent beneficial reuse of biosolids.

A related report, dated May 15, 1998, was submitted to the Works and Utilities Committee meeting of May 20, 1998, by the Commissioner of Works and Emergency Services. The report was referred back to staff for revision and additional information.

Comments and/or Discussion and/or Justification:

The Biosolids Multi-Stakeholder Committee (BMSC) will be established immediately to facilitate ongoing public involvement in the ending of incineration at the Main Treatment Plant. Representatives from the neighbourhood liaison committees from the Humber and Highland Creek Treatment Plants will be included so that the Biosolids Multi-Stakeholder Committee will be able to address biosolids on a city-wide basis. The BMSC will have the following membership:

(i)three City of Toronto Councillors (Chair of the Works and Utilities Committee and one Councillor from each of the two wards containing the Main Treatment Plant, with the other two Ward Councillors serving as alternates);

(ii)six representatives from the Neighbourhood Liaison Committees (two each from Main Treatment Plant, Humber Treatment Plant, and Highland Creek Treatment Plant Committees);

(iii)one environmental group representative;

(iv)one representative from the Safe Sewage Committee;

(v)one public health representative;

(vi)two representatives from local industry in the Port Area; and

(vii)one unionized staff representative from the Main Treatment Plant.

Each of the groups to be represented will nominate their own representatives. The group so formed will nominate the remaining individuals as required. The BMSC will select its own Chair. The BMSC will need to be established immediately so that they may provide input into the development of the criteria for evaluating the Requests for Proposals.

The Technical Advisory Committee (TAC) will be established immediately to provide technical advice on all aspects of the biosolids program. The role of the TAC is to provide outside technical advice as required, to review and develop recommendations on all documents related to the notification, short-listing and selection of proponents for beneficial reuse of biosolids from the treatment plants, with the following membership:

(i)Chair of the Works and Utilities Committee (Chair);

(ii)one representative from the Biosolids Multi-Stakeholder Committee;

(iii)General Manager of Water and Wastewater Services;

(iv)one university representative with expertise in a discipline related to biosolids;

(v)two representatives from municipalities which have successfully implemented a beneficial use program; and

(vi)one representative with expertise in biosolids regulations.

The TAC will need to be established immediately so that they may provide input into the development of the Request for Proposals, the short-listing of the Expression of Interest submissions and the criteria for evaluating the Requests for Proposals. The consultant will assist staff and the TAC in the preparation and evaluation of the RFPs.

The 36-month plan presented in the report of May 15, 1998, has been revised to allow for an initial Expression of Interest for the construction of required facilities and the provision of biosolids beneficial reuse programs. This will allow for the inclusion of technologies other than those presented in previous reports. The Expressions of Interest will be evaluated in conjunction with the TAC and a short list of qualified companies will be invited to submit proposals for design/build construction of facilities and/or provision of biosolids reuse programs. The proposals will be evaluated based on criteria developed with input from the TAC and the BMSC.

(A copy of a preliminary timeline for the EOI and RFP process, is on file in the office of the City Clerk).

At the request of the Works and Utilities Committee, included in the minutes of its May 20, 1998 meeting, the following information is provided.

Consumers Gas Assistance with Plant Heating Requirements:

As stated in the report of March 16, 1998, we received estimates from private contractors to provide mobile boilers to provide steam generation. Consumers Gas has indicated that they would follow a similar procedure as they do not supply industrial boilers or services directly. They would recommend one of their authorized dealers to perform required work and then finance the purchase through the gas bill. City staff are also investigating the feasibility of a co-generation project involving the MTP, Toronto Hydro, and local industry which would provide thermal energy as well as electricity.

Results of Harbour Remediation & Transfer Inc. Pilot Testing:

The pilot testing and sampling at Harbour Remediation & Transfer (HR&T) has quantified the expected air flow rates, concentrations of particular odorous compounds and typical odour concentrations. The testing has indicated that a removal efficiency of greater than 99 percent is required and attainable through the use of a carefully selected series of odour control equipment and some modifications to the HR&T facilities and process equipment. Work is now proceeding on preliminary design to establish the required capital and operating costs. All of the biosolids sent to HR&T for the pilot tests has been removed from the HR&T site in accordance with their Certificate of Approval. A presentation will be made to the Committee by Zorix Consultants on the odour control project at its June 17, 1998 meeting.

MTP Solids Train Audit:

A solids train audit was initiated by our staff at the MTP in November 1996. The sludge audit's goal is to improve operating performance and increase the effectiveness of the existing facilities. The audit has been proceeding steadily and has already resulted in significant improvements in the performance of solids handling facilities at the MTP. For example, digester hydraulic retention time has been increased from 8 days to over 12 days by changes in process control. A more detailed report will be presented in 1999. The results and progress of the sludge audit will also be reviewed by the TAC.

Additional work will begin in 1999 as a joint effort between the City of Toronto, the Ontario Ministry of the Environment, and Environment Canada, focusing on digester optimization and the effects of operating parameters on biosolids stabilization, and odours. The results of this report and the sludge audit will be used to help develop a protocol for other sludge audits in Ontario and assist in the further development of sludge stabilization guidelines.

Conclusions:

In order to establish the 100 percent biosolids utilization at the MTP, it will be necessary to implement the components recommended in this report, and for the Committee to provide the Commissioner with authority to:

-establish the Technical Advisory and Biosolids Multi-Stakeholder Committees as soon as possible;

-retain consultants to assist the department and the Technical Advisory Committee.;

-retain a biosolids project manager to work with the consultant to prepare necessary Expressions of Interest and Request for Proposals; and

-prepare necessary EOI, short-list submission, and prepare and release RFPs for required facilities and biosolids management programs.

Attaining a 100 percent biosolids beneficial use program within as short a time as possible will require that all of the plan's components are tightly integrated. We will submit regular progress reports to the Works and Utilities Committee, updating the status of the various activities.

Additional reports on the long range plans for the City's biosolids management will developed in concert with the TAC and the BMSC, and recommendations will be brought to this Committee.

Contact Name:

Mr. R. M. Pickett, Director, Water Pollution Control Division

Telephone: (416) 392-8230; Fax: (416) 397-0908

E-Mail: bob_pickett@metrodesk.metrotor.on.ca.

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The Works and Utilities Committee reports, for the information of Council, having also had before it during consideration of the foregoing matter the following communications:

(1)(June 15, 1998) from Ms. Sarah Miller, Coordinator, Canadian Environmental Law Association, urging the Committee to ensure that decisions respecting alternatives to incineration of sewage sludge at the Main Treatment Plant are guided by four key principles, namely, that the City of Toronto take responsibility for the waste it generates by: refusing to export contamination to other parts of the Great Lakes Basin ecosystem; reducing contamination at the source; ensuring that the "beneficial uses" of sludge derive from a safe product; and maintaining public sector responsibility and jurisdiction over all aspects of sewage treatment; and

(2)(June 16, 1998) from Dr. Stephen Connell, Toronto, Ontario, raising questions with respect to the construction of a biosolids truck loading facility at the Main Treatment Plant and a study undertaken in 1994 by Gore and Storrie; the attendance of a biosolids consultant at the meeting of the Committee on May 20, 1998; and the intentions of the Commissioner of Works and Emergency Services regarding planning for the wastewater system.

The following persons appeared before the Works and Utilities Committee in connection with the foregoing matter:

-Mr. Moe Zolghadr, ZORIX Consultants Inc., representing Harbour Remediation & Transfer Inc.;

-Mr. Jim Chisholm, Chair, CUPE Local 79, Environment Committee, and Coordinator, Works Best Practices;

-Ms. Karen Buck, representing the Main Treatment Plant Neighbourhood Liaison Committee, and Citizens for a Safe Environment, and filed submissions with respect thereto;

-Mr. Peter Smith, Toronto, Ontario;

-Mr. Jody P. Amblard, President, Associated Industrial Controls Ltd., and filed a submission with respect thereto;

-Ms. Karey Shinn, Chair, Safe Sewage Committee, and filed a submission with respect thereto;

-Ms. Joyce McLean, Toronto, Ontario, and filed a submission with respect thereto;

-Mr. Colin Lambert, National Director, Health & Safety Branch, CUPE - National;

-Mr. Peter Leiss, Executive Vice-President, Toronto Civic Employees' Union, Local 416 - CUPE, and filed a submission with respect thereto;

-Mr. Hamish Wilson, Toronto, Ontario;

-Ms. Debra Kyles, Kleinburg, Ontario; and

-Ms. Peg Lush, Toronto, Ontario.