SOLID WASTE COLLECTION CONTRACT RENEWAL – SECONDARY SUITES
A report investigating options to provide residents with secondary and garden suites the opportunity for additional garbage and food waste bins.
TOWN OF VIEW ROYAL COUNCIL REPORT
TO: Council DATE: March 11, 2026 FROM: Ivan Leung, P.Eng, Director of Engineering MEETING DATE: April 7, 2026
SOLID WASTE COLLECTION CONTRACT RENEWAL – SECONDARY SUITES
RECOMMENDATION:
THAT the report dated March 11, 2026 from the Director of Engineering titled “Solid Waste Collection Contract Renewal – Secondary Suites” be received for information.
ALTERNATIVE OPTIONS:
Option #2: THAT Council direct staff to proceed with amending the Residential Garbage and Household Food Waste Bylaw No. 745, 2009 and the Fees and Charges Bylaw No. 958, 2016, Amendment Bylaw No. 1115, 2023 (Garbage Rates) to allow additional garbage carts to be provided for secondary suites and garden suites.
AND THAT the service be onboarded and established in 2028 as part of the 2027-2030 Solid Waste Collection contract renewal process.
PURPOSE:
The purpose of this report is to respond to Council resolution C-20-26 of the February 3, 2026 regular Council meeting to investigate options to provide residents with secondary suites the opportunity for additional bins.
FEASIBILITY – ADDITIONAL BINS FOR SECONDARY SUITES:
A “SWOT” analysis was conducted to determine the pros and cons of providing additional bins (garbage and food waste) for secondary suites. This was conducted both internally with administrative staff, and through external engagement with neighbouring municipalities:
Table 1: SWOT Analysis
| Objective: To evaluate the feasibility of providing additional garbage and food waste bins to secondary suites (100% at property owners’ cost), and its impacts on the Town’s level of service. | |
|---|---|
| Strengths (Internal, Positive) | Weaknesses (Internal, Negative) |
| Potentially improves the Town’s initiative of mitigating issues related to wildlife attractants | Secondary suites are currently not eligible for their own garbage and food waste bin pursuant to the Residential Garbage and Household Food Waste Bylaw No. 745, 2009 The exact number of secondary suites within the Town is unknown: • 200 are tracked through secondary suite permitting (Class 1) • Class 2 secondary suites are not tracked as the land use was covered at the time of development which does not require permit (Class 2). Staff estimate upwards of 400 dwelling units that have Class 2 secondary suites Staff do not have the resources to administer requests of all secondary suites sustainably (Engineering & Finance Dept. hardships) |
| Opportunities (External, Positive) | Threats (External, Negative) |
| Provides an elevated level of service to property owners with secondary suites Potential to reduce illegal dumping of garbage |
Unfairness to garden suites (currently a separate land use) Potential for additional time needed for solid waste collectors to collect the additional bins and subsequently affecting on time performance and risk to missed pickups The cost to the Town for the garbage collector contractor to collect secondary suite carts are unknown (until competitive bid process closes) Potential for higher overall garbage volumes within the Town Payment models must change to ensure that the provision of the additional bins and the additional service required is paid for solely by the property owner requesting the additional bins |
Payment Measures – Jurisdictional Scan
Most municipalities in Greater Victoria that allow for additional waste pick up do so with the purchase of bag tags. This is the current process within the Town.
There are a few municipalities within Greater Victoria that provide additional waste carts as an option (pickup every two weeks, service provided not just to secondary suites):
Table 2: Jurisdictional Scan
| Option Description | Pros | Cons |
|---|---|---|
| Option 1 2 municipalities require residents to pay a one time fee for the provision of the cart itself, and to pay for the additional bag decals to be placed on the garbage bags within the additional cart. Both of these municipalities have in house garbage collection services |
Cost effective for residents (only pay if they use). This program is administrated by smaller sized municipalities that are comparable to the Town. |
Additional measures required to offset administrative costs (Engineering Department). Additional time spent for contractors to verify extra bag decals have been placed on the bags within the carts. |
| Option 2 One municipality charges an annual service fee (no one time fee). This municipality has in house garbage collection services |
Ensures full recovery of administration, processing and disposal costs. Encourages cessation of additional service if suites are not occupied (supporting the Community Climate Action Strategy). |
Flat rate to residents regardless of magnitude of use. Additional measures required to ensure ineligible dwellings try not to participate (due to lack of additional bag tags being needed). This program is administrated by a large municipality and economies of scale keeps the annual service fee sustainable: an advantage that the Town may not have. |
Risk Management and Mitigation Measures
A risk management analysis of the weaknesses and threats to the objective were identified as follows:
Table 3: Risk Identification
| Risk Description | Risk Rating |
|---|---|
| Ineligibility due to Bylaw | High |
| Current staffing levels unable to administer new and change requests sustainably | Moderate / High |
| Unfairness to Garden Suites | Moderate |
| Potential for impacts to on time performance and missed pickup, and higher contract costs | Unknown |
| Potential for higher contracted service costs (equipment depreciation, on time performance, etc) | Unknown |
| Potential for higher overall garbage volumes | Moderate |
| Payment models require change to ensure that the provision of the bins and service is 100% at the cost of the requester | High |
The risks identified can be generalized into two categories: regulatory issues and administrative issues.
The regulatory changes required to expand the program to secondary suites are to:
- Amend the Residential Garbage and Household Food Waste Bylaw No. 745, 2009 to include secondary suites as units eligible to be provided their own bins.
- It would be recommended to include garden suites as units eligible to be provided their own bins, as this land use is not included in the Bylaw.
- Amend the Fees and Charges Bylaw No. 958, 2016, Amendment Bylaw No. 1115, 2023 (Garbage Rates) to charge property owners requesting the additional bins.
- Taking into account the size and resource capacities of the Town, the recommended payment model for the additional service would be a ‘modified option #1’ noted in Table 2:
- Payment of a one time fee to cover the cost to provide the cart(s) plus administrative costs (Engineering and Finance costs)
- Payment of extra bag decals to still be required
- It would be recommended to offer property owners the choice of either garbage, food waste, or both carts. It is expected that most requesters will request garbage carts (extra bag decals only account for additional garbage at this time, but the bylaw can be adjusted to allow for additional organics collection).
- Approximate relevant costs are as follows:
- Extra cart: $142 / cart (2025 rate and subject to change)
- Extra bag decal: $3.50 / decal
- Administrative costs: recommend $30 service fee per request for additional carts
- Taking into account the size and resource capacities of the Town, the recommended payment model for the additional service would be a ‘modified option #1’ noted in Table 2:
To sustainably administer the program, policy is required to ensure the customer level of service aligns with existing staffing resources:
- Provide an administrative ceiling for additional bin requests (for example, onboarding 50 to 100 per year, on a first come first served basis)
- Place the onus on the property owner to notify the Town to remove the extra bins if the secondary suite permit is cancelled, not renewed, if the suite is not in use, or the property is sold to another owner
- The service fees for additional carts are non-refundable
- The bins remain the property of the town, are non transferrable, and must be returned to the Town once additional service is not required.
STAFF RECOMMENDATION
Should Council wish to proceed with the additional service, staff recommend adopting the recommended changes to the Residential Garbage and Household Food Waste Bylaw No. 745, 2009 and Fees and Charges Bylaw No. 958, 2016, Amendment Bylaw No. 1115, 2023 (Garbage Rates) as noted above. Staff also recommend policy to ensure that administration of the program can be done sustainably.
Finally, as there are “known-unknown” risks: on time performance risks, service cost implications, and feasibility for the contractor to provide the additional service, staff recommend that the service be established in 2028 to provide 1 year of onboarding and to allow the Town and the contractor to work out any issues and challenges that may exist.
ANALYSIS:
Impacts and implications can be summarized as follows:
| Community Impact: | Improved level of service for the collection of household garbage and food waste to residential units with secondary suites. Mitigates wildlife attractants. |
|---|---|
| Financial Implication: | Additional fees and charges will be incurred by residents with secondary suites to support the additional service. |
ALIGNMENT:
The recommended option aligns with the Town’s following core guiding documents as follows:
Strategic Plan: N/A Official Community Plan: N/A Other Policy Documents: N/A
PUBLIC PARTICIPATION GOAL:
The desired level of public participation for the recommended option is:
☒ Inform ☐ Consult ☐ Involve ☐ Collaborate ☐ Empower ☐ N/A
This staff report was created at the request of Council.
TIME CRITICAL:
Time is of the essence to ensure that the competitive bid process can be rolled out by late spring / early summer 2026, and in time for onboarding (January 1, 2027).
CONCURRENCE:
| Position | Initials | Comments |
|---|---|---|
| Chief Administrative Officer | SS | I concur with the recommendation. |
REVIEWED BY:
| Position | Initials |
|---|---|
| Director of Corporate Administration/Deputy CAO | N/R |
| Director of Finance & Technology | SV |
| Director of Development Services | N/R |
| Director of Engineering | IL |
| Director of Protective Services | N/R |
ATTACHMENTS: N/A
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