Management of Sewage Biosolids - Context of the City of Iqaluit by Kenneth Johnson

MANAGEMENT OF SEWAGE BIOSOLIDS – AN OVERVIEW OF CANADIAN ACTS, REGULATIONS, GUIDELINES AND STANDARDS IN THE CONTEXT OF THE CITY OF IQALUIT Mukesh Mathrani, Earth Tech Canada Inc.* Ken Johnson, Earth Tech Canada Inc. * Earth Tech Canada Inc., 17203, 103 Avenue, Edmonton, Alberta T5S 1J4

INTRODUCTION In 2003, Earth Tech (Canada) Inc. was retained by the City of Iqaluit to undertake the design of improvements/upgrades to the existing non-commissioned Waste Water Treatment Plant (WWTP). The initial facility was constructed as a membrane treatment facility, however this facility was never commissioned. The facility upgrading consists of converting the membrane facility to a conventional secondary treatment facility (activated sludge). It is the intent to upgrade the WWTP in three phases, with a first phase of construction to be completed in the spring of 2006. The first phase will provide primary treatment; the second phase will provide secondary treatment; and the third phase will provide an increase in overall capacity. The sewage sludge generated from the WWTP can be a health and environmental concern for the community and the regulatory agencies, if not properly treated and disposed off. Therefore, the City has planned to have a Sewage Sludge Management Plan (SSMP) to address community and regulatory concerns and to use the sewage sludge as “sewage biosolids”. City of Iqaluit - Location Iqaluit, place of many fish (in local language), is the largest community and the capital city of Nunavut, located in the southeast part of the Baffin Island, near the mouth of the Sylvia Grinnell River, at 63° 44 N latitude and 68° 31 W longitude. Iqaluit is about 2,200 kilometres east of Yellowknife. Located at the head of Frobisher Bay, this community was established in 1949 as Frobisher Bay, when the Hudson's Bay Company moved its post here from a site 70 kilometres southeast. It became a municipal hamlet in 1971, capital of Nunavut in 1999 and a City in 2001 (the only City in the territory of Nunavut). The land area of the municipal boundary is 52.34 square kilometres. Iqaluit has the distinction of being the smallest Canadian capital city in terms of population and the only capital that cannot be accessed from the rest of Canada via road.

FIGURE 1: MAP OF CANADA SHOWING LOCATION OF IQALUIT

FIGURE 2: IQALUIT ACROSS KOOJESSE INLET Iqaluitâ&#x20AC;&#x2122;s major economic activity is the Government of Nunavut and Government of Canada offices. Other economic activity includes social institutions, educational institutions, a hospital, stores and tourism.

City of Iqaluit - Population According to the “2001 Community Profiles” by Statistics Canada, the total population of Iqaluit was 5,236. Inuit (aboriginal people) represent approximately 85 per cent of the population. The Government of Nunavut population projection for Iqaluit is 6,477 in the year 2010 and 8,391 by 2,020. City of Iqaluit – Terrain and Climate Iqaluit’s location is above the tree line and within the continuous permafrost zone of Canada. The terrain surrounding Iqaluit is rolling, and the region generally consists of glacially scoured igneous/metamorphic terrain. The subsoil is made up of glacial drift over granitic Precambrian bedrock. The overburden consists of silty-sand, sand, gravel and boulders which vary in depth up to 18 meters. In some locations, a thin layer of organic material is found. Iqaluit experiences 8 months of the year in which the average daily temperature is below freezing, on an average. Iqaluit has an Arctic climate with January high and low temperatures of -21.5 °C and -29.7 °C, respectively and July high and low mean temperatures 11.4 °C and 3.7 °C, respectively. The annual precipitation is made up of 19.2 centimeters of rainfall and 25.5 centimeters of snowfall for a total of 43.0 cm precipitation. The prevailing winds are northwest at 16.7 kilometers/hour.

METHODOLOGY For any community development project it is necessary, and in most of cases an essential project requirement, to comply with all the regulatory requirements, federal as well as provincial/territorial. In this regard, a consultation process with all the regulatory departments is preferably exercised from the early stage of the project. This is to make sure that all the regulatory concerns are appropriately addressed to proceed with the project, properly and effectively. For the City of Iqaluit’s SSMP it was important to know about the relevant regulations, acts, standards and guidelines to develop and implement the plan, accordingly. However, no such regulatory framework exists in the Territory of Nunavut that can be directly applied to Iqaluit’s SSMP. In most cases, the laws of the Government of Northwest Territories (GNWT) are considered as a guideline. This is because the Nunavut territory was separated from the NWT in 1999. For a possible future regulation it was important to develop Iqaluit’s SSMP in such a manner that it should comply with any such regulation. Also, the City of Iqaluit is interested to make its SSMP as an example for other territorial communities. In this regard, all the acts, regulations, guidelines and standards governing sewage biosolids management in Canada were reviewed and analyzed for their application in the context of the City of Iqaluit. This paper is therefore an outcome of that review and analysis process.

DISCUSSION Canadian Regulatory Framework In November 2003, the Canadian Council of Ministers of the Environment (CCME), which is comprised of 14 federal, provincial and territorial member jurisdictions, agreed to pursue the development of a Canada-wide Strategy for Municipal Wastewater Effluent (MWWE), with the outcome of a harmonized (one-window) management approach for MWWE across Canada by November 2006. The MWWE Strategy will address a number of governance and technical issues resulting in a harmonized management approach. Regarding the issue of sewage sludge, the Development Committee of the CCME will prepare a proposal to develop a strategy for environmental risk management of the municipal sewage sludge. Wherever possible, opportunities to link the Canadian Environmental Protection Act (CEPA) 1999 and the Fisheries Act with development of the Canada-wide Strategy will be undertaken. At this time there is no regulation under the Fisheries Act applicable to the release of effluents from municipal wastewater systems, although these systems are recognized as a significant source of harmful substances in the environment. It is envisioned that the outcome of the CCME’s MWWE process will be effective environmental protection through a harmonized management regime that will be fair, consistent and predictable. Currently, treated sewage sludges, for the most part, are provincially regulated in Canada. The following sections therefore provide a highlight of the regulatory framework in various provinces and territories of Canada related to the management of sewage sludge or sewage biosolids, including composting and land application. British Columbia In British Columbia, the “Organic Matter Recycling Regulation” (OMME) (2002) governs the discharge of sewage sludge. The regulation is designed to make sure that selected organic matter is recycled in environmentally prudent manner and to instill public confidence in the production and use of recycled organic matter. The OMRR regulation applies to the construction and operation of composting facilities and sets standards for the production, distribution, storage, sale and use or land application of sludge, and compost. The “Compost Facility Requirements Guideline” (2004) (Part 5 of the OMRR) provides guidance to compost facility operators. The “Best Management Practices Guidelines for the Land Application of Managed Organic Matter in British Columbia” (2002) is aimed to make sure that sludge is applied in environmentally safe manner, minimizing human health risks.

Alberta In Alberta, under the “Environmental Protection and Enhancement Act” (1993) (EPEA), Alberta Environment has the responsibility for waste management facilities dedicated to handling and disposing of non-hazardous waste including municipal sewage sludge. The “Code of Practice for Compost Facilities”, and the “General Standards for Landfills”, outlines minimum requirements for the design, construction, operation and monitoring of landfills that accept 10,000 tonnes or less per year of non-hazardous and inert waste or a compost facility accepting 20,000 tonnes or less per year of mixed organic material. Alberta Environment only requires notification with respect to compost facilities, which process only vegetative matter and/or manure. The responsibility for reviewing applications and monitoring waste facilities is managed regionally, with approvals and registrations being authorized by the Regional Directors of the Alberta Environment. The disposal of sewage sludge by incineration is regulated under the 1995 “Guidelines for Design and Operation of Refuse Incinerators in Alberta”. Saskatchewan In Saskatchewan, the “Land Application of Municipal Sewage Sludge Guidelines” (2004) provides instructions and requirements to apply/spread municipal sewage sludge onto agricultural land in a beneficial and environmentally acceptable manner, protecting the environment and human health from adverse effects. These guidelines are not applicable to industrial wastes. The “Guidelines for Sewage Works Design” (2003) applies to all sewage works described in the “Water Regulations” (2002) except for industrial wastewater works. These guidelines require a permit to construct, operate, extend or alter municipal sewage sludge application works from the Saskatchewan Environment (SE) before starting construction of such works. The SE’s review of municipal sewage sludge applications focuses mainly on the quality of sewage sludge used and protection of public health and environment. The SE does not review the projects with regard to crop production and impacts to soil chemistry for agriculture. According to these guidelines, the sewage sludge process should include considerations for sludge characteristics, energy requirements, effectiveness of sludge thickening, complexity of equipment, manpower requirements, toxic effects of heavy metals and other substances on sludge stabilization and disposal, treatment of side-stream flow such as digester and thickener supernatant, odour problems, back-up method of sludge handling and disposal and method of ultimate sludge disposal.

Manitoba In Manitoba, the “Water Works, Sewerage and Sewage Disposal Regulation” (1988) under the Public Health Act regulates the treatment and disposal of sewage sludge. The implementation of these regulations is the responsibility of the Department of Water Stewardship. Ontario In Ontario, sewage sludge is regulated under Ontario’s Environmental Protection Act (OEPA). The 1996 “Guidelines for the Utilization of Biosolids (Sludge) and Other Wastes on Agricultural Land”, were mainly developed by the Ontario Ministry of Environment (MOE). These guidelines are used by the Ontario MOE to assist them in issuing Certificates of Approval to municipalities or contractors for “organic soil conditioning site”. Certificates of Approval are required for all land application sites, and include explicit management conditions that are enforceable by the Province under the OEPA. The sludge that is sold as a fertilizer may fall under the Agriculture and Agri-food Canada (AAFC). In the wake of the tragedy in Walkerton in May 2000, the provincial government committed itself to province-wide nutrient management standards. The 2002 “Ontario Nutrient Management Act” came into force in July 2003, and included a province-wide ban on the land application of untreated sewage, to be phased in over 5 years. The Act also states a ban of sewage sludge application on snow-covered or frozen soils. The General Regulation under the Nutrient Management Act sets out specific details of the legal requirements for the handling, storage and land application of “non-agricultural materials” (nutrientrich materials not from animal sources) including sewage sludge. The generators of these non-agricultural materials, such as municipalities, are required to have a nutrient management strategy in place by 2008. The management of composting with due regard to process conditions and characteristics, to prevent contamination of the environment, is controlled by the 2004 “Interim Guidelines for the Production and Use of Aerobic Compost in Ontario”. This document includes discussion of generic composting technologies, major operating parameters, sampling and chemical analyses, monitoring of processes, reporting of results and assessment of potential off-site impacts. Quebec In Quebec, sewage sludge is considered as fertilizing residual material (FRM). The Ministry of Environment’s “Guidelines for the Beneficial Use of Fertilizing Residuals” (November 2002), is used to provide the criteria, technical requirements and regulatory standards for the reclamation of a multitude of fertilizer residuals including compost. These guidelines are the result of the 1996 Bureau d’audiences publiques sur l’environnement du Québec (BAPE)’s final report that highlighted the need to restrict landfilling of residual materials and increase reclamation in various forms.

New Brunswick In New Brunswick, the 1996 “Guidelines for Issuing Certificates of Approval for the Utilization of Wastes as Soil Additives”, mainly developed by the New Brunswick Departments of the Environment and Local Government, are used by the government for safe and responsible use of municipal wastes on land. These guidelines cover the acceptable methods of stabilization, suitability of the land as well as application rates, separation distances (for example, between the land and a drinking water supply) and waiting periods (between the application of the biosolids and various uses of the land). These guidelines also outline handling and follow-up requirements related to transportation, storage and record keeping for those who receive Certificate of Approval to apply biosolids. The land application of municipal wastewater biosolids as compost is regulated by the 1998 “Guidelines for the Site Selection, Operation and Approval of Composting Facilities in New Brunswick”. Nova Scotia In Nova Scotia, the use/disposal of biosolids is regulated by the 2004 “Guidelines for Land Application and Storage of Biosolids in Nova Scotia” under the Nova Scotia Environment Act. These guidelines have been created in response to a requirement to manage the biosolids generated during the treatment of domestic wastewater or septage in Nova Scotia. Research from other jurisdictions that utilize the organic matter and beneficial nutrients contained in biosolids formed the basis of these guidelines. The purpose of these guidelines is to facilitate the beneficial use of biosolids through land application, while protecting the environment and human health from adverse effects. These guidelines are also aimed to provide guidance for obtaining an Approval from the Nova Scotia Environment and Labour to land apply and/or store biosolids. These guidelines provide site selection criteria such as soil requirements, separation distances to protect public health and water quality, land slope, depth to groundwater and land use restrictions. These guidelines also require nutrient and land management plans including sampling, record keeping, monitoring and reporting of all the activities. According to these guidelines, only stabilized biosolids can be applied to land. Biosolids acceptable for land application and/or storage falls into one of three categories, depending on the metal and pathogen content: EQ, Class A, or Class B. It should be good to mention over here that EQ (Exceptional Quality), Class A and Class B identification for the sewage sludge are established by the US EPA. These classes are based upon the sewage treatment process, which will define the level of pathogenic organisms and the reduction in the vector attraction potential. These biosolids classes also dictate the application requirements of the sewage sludge, such as buffer requirements, crop harvesting restrictions, and public access to the sewage or biosolids application site.

EQ biosolids is the name given to treated residuals that contain low levels of metals and do not attract vectors. These biosolids, used in small quantities by general public, have no buffer requirements, crop type, crop harvesting and site access restrictions. Class A sludge contains low levels of metals, no detectible levels of pathogens, and do not attract vectors. There are no requirements regarding buffer zones, crop type, crop harvesting and site access if used in small quantities by the general public. When used in bulk, Class A sludge is subject to buffer requirements, but not to crop harvesting restrictions. Technologies that can meet Class A standards include thermal treatment methods like composting, heat drying, heat treatment, thermophilic (heat generating) aerobic digestion and pasteurization. Class A technologies, known as PFRP (Processes that can Further Reduce Pathogens), must process the sludge for a specific length of time at a specific temperature. Class A sludge may then be distributed to public for unrestricted or limited restricted application to farms, lawns, gardens, golf courses, etc. Class B sludge is treated, but can contain compliant amounts of pathogens. Class B requirements make sure that pathogens in the sludge have been reduced to levels that protect public health and the environment. This sludge is subject to buffer and crop harvesting restrictions. Treatment technologies meeting Class B standards include anaerobic digestion, aerobic digestion, composting, air-drying and lime stabilization. Class B technologies, known as PSRP (Processes that can Significantly Reduce Pathogens), must process the biosolids under certain operating conditions (length of time and temperature). Class B sludge may then be distributed to public for restricted application to farms, landfills, and forests. In Nova Scotia, there are no restrictions for land application of EQ biosolids or biosolids, regulated by the Canadian Food Inspection Agency (CFIA) under the Canadian Fertilizer Act, and no Approval is required. However, the land application of either Class A or Class B biosolids requires an Approval, and restrictions pertaining to the use of these products will apply. For both Class A and Class B biosolids, land application is not permitted when the ground is frozen, snow covered or saturated. The acceptable stabilization methods to the Department of Nova Scotia Environment and Labour are: composting, aerobic digestion, anaerobic digestion, alkaline/lime stabilization, heat drying, heat treatment, and pasteurization. Other stabilization methods may be acceptable upon the Departmental review and approval. The 1998 “Composting Facility Guidelines” (revised in October 2003) under the Environment Act, administrated by the department of the Environment and Labour, provide guidelines for the proper environmental management of composting facilities in the Nova Scotia. These guidelines also provide guidance as to the requirements to obtain an approval to construct and operate a composting facility. These guidelines apply to all composting facilities requiring approval under Section 27 of the 1995 “Solid Waste-Resource Management Regulations”.

Prince Edward Island In Prince Edward Island, the 2003 “Sewage Disposal Systems Regulations” regulate the disposal of sewage in the province. These regulations are administrated by the provincial Ministry of Agriculture, Fisheries and Aquaculture. Newfoundland and Labrador In Newfoundland and Labrador, the 2002 “Environmental Protection Act” regulates the management of waste and disposal sites in the province. The Act is administrated by the department of Environment and Conservation and the department of Government Services. Northwest Territories In Northwest Territories, the federal department of Indian and Northern Affairs Canada (INAC), established under the federal Northwest Territories Water Act (1992) and the Mackenzie Valley Resource Management Act (1998), is responsible for the regulation and enforcement of waste disposal into water through territorial Water Boards. The NWT Water Board’s “Guidelines for the Discharge of Treated Municipal Wastewater in the Northwest Territories” (1992), cover the guidelines for the treatment capability of a single-cell annual discharge lagoon, the preferred sewage treatment method in the northern communities. Yukon In Yukon, the Yukon Water Board issues permits for municipal wastewater systems, including collection, treatment and release components, under the 2003 “Yukon Waters Act”. The Water Resources Division of the Yukon Department of Environment administers and audits the performance of each facility under the license, except with respect to any effluent toxicity tests, which are administrated by the Environment Canada under the Fisheries Act. The 1983 “Guidelines for Municipal Wastewater Discharges in the Yukon Territory” were developed to identify conditions and objectives of municipal wastewater quality that were considered appropriate for Yukon communities by the Water Board. These Guidelines were updated and released on July 14, 2005 as the “Draft 2005 Interim Guidelines for Municipal Wastewater Discharge”. The purpose was to help communities in the design and planning of new and upgraded sewage treatment systems that are anticipated between now and 2007 when a Canada-wide MWWE Strategy is scheduled for release. All municipal waste discharges in the Yukon are required to comply with the Yukon Waters Act, the Fisheries Act, the Canadian Environmental Protection Act and other relevant legislation and regulations.

Nunavut In 1996, the Nunavut Water Board (NWB) adopted NWT’s municipal effluent guidelines as the “Nunavut Water Board Effluent Guidelines”. Several concerns were raised by the NWB in applying the guidelines in the Nunavut including the treatment, handling and disposal of sludge from mechanical systems. In 2001, the NWB recognizing the conflict between ‘achievable’ and ‘desired’ and the potential for industrial and commercial wastewater discharges to municipal systems with respect to the economic growth, proposed revisions to the NWB Municipal Effluent Guidelines. The 2002 “Guidelines for the Discharge of Domestic Wastewater in Nunavut” are administered by the Nunavut Water Board (NWB) through INAC. These guidelines apply to commercial and industrial wastewater discharged to municipal systems. The 1976 “Guidelines for Effluent Quality and Wastewater Treatment at Federal Establishments” apply to the disposal of sewage sludge on land. Summary of Regulatory Framewok The discussion on the regulatory framework for the sewage sludge management in the previous sections identifies that the existing system for the management of sewage sludge in Canada includes a number of Acts, Regulations, Guidelines and Standards administered by federal, provincial and territorial governments. In addition, certain municipalities administer sewer use by-laws that control the disposal of specific substances at the source. Table 1 summarizes the regulatory framework of sewage sludge (biosolids) management in the various provinces and territories of Canada. Regulatory Framework in the Context of Iqaluit’s SSMP In the context of Iqaluit’s SSMP, the regulatory framework for SSM varies between provinces and territories. But, the one thing is common in all acts, regulations, guidelines and standards that, all these pieces of regulations are aimed towards the use of sewage sludge (biosolids) in a controlled and sustainable manner, and protecting the public from any adverse health consequences. In most of the cases, the guidelines and standards are developed by one province/territory and adopted by other provinces/territories with some modifications to suit the local conditions. Also, some provinces are in the development and implementation stage of a complete set of regulations concerning the management of sewage sludge and use as a compost and/or application as soil additive. In the case of Iqaluit, therefore, considering the community background that is quite different from the other Canadian provinces, technical and financial resources, accessibility to the community and other associated difficulties it is less practical to adopt the most stringent regulatory framework at the initial stage.

In the context of Iqaluit, it is likely that the prevailing legislation and guidelines will pertain to most aspects of the Iqaluit’s SSM Plan including:        

design, construction and operation of sewage sludge processing and end-use facilities; sewage sludge quality criteria sewage sludge transportation requirements sewage sludge site management procedures environmental assessment as part of the planning process monitoring and reporting requirements contingency planning staff training

CONCLUSION In order for the City of Iqaluit to successfully implement any form of sewage sludge management plan, an appropriate regulatory and community stakeholder dialogue needs to be implemented and maintained. REFERENCES Alberta Environment (1995), Guidelines for Design and Operation of Refuse Incinerators in Alberta. Alberta Environment Alberta Environment (2004), Standards for landfills in Alberta. Environmental Assurance Science and Standards Branch, Alberta Environment. CBCL Ltd. (2005), Atlantic Canada standards and guidelines manual for the collection, treatment and disposal of sanitary sewage. CBCL Ltd. Environment Quebec (2004), Guidelines for the beneficial use of fertilizing residuals: reference criteria and regulatory standards. Environment Quebec. Forgie, D.J.L., Saaser, L.W., Neger, M.K. (2004), Compost facility requirements guideline: how to comply with part 5 of the organic matter recycling regulation. British Columbia Ministry of Water, Land and Air Protection. Government of Manitoba (1988), The public health act C.C.S.M. c. P210 water works, sewerage and sewage disposal regulation 331/88 R. Government of Manitoba. Government of Newfoundland and Labrador (2002), Environmental protection act. Department of Environment and Conservation, Government of Newfoundland and Labrador.

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