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HomeMy WebLinkAbout2000-02-08 City Councilof Palo Alto City Manager’s Report TO: ATTN: HONORABLE CITY COUNCIL POLICY & SERVICES FROM: DATE: SUBJECT: CITY MANAGER FEBRUARY 8, 2000 POLICY TO SUBSTANTIALLY REDUCE DIOXIN RELEASES TO THE ENVIRONMENT DEPARTMENT: PUBLIC WORKS CMR:441:99 MERCURY AND REPORT IN BRIEF Mercury and dioxins are highly toxic substances that persist for long periods in the environment, where they bioaccumulate in living tissues. Mercury can be found in dental amalgam, thermometers, electrical switches, thermostats, fluorescent light bulbs, and batteries, as well as certain pharmaceutical products, fungicides, and other household products. Dioxins are byproducts of incineration, chemical manufacturing, and pulp and paper bleaching. Primary local sources of dioxins appear to be residential wood burning and motor vehicles, particularly diesel-fueled motor vehicles. Both mercury and dioxins are listed by regulatory agencies as impairing San Francisco Bay water quality. Though the timeline is unclear, future direct discharge permits (such as sanitary sewers) may include specific mandates to make measurable progress towards eliminating mercury and dioxin releases to the environment. While the City has already addressed several sources of mercury and dioxins, other controllable mercury sources exist within the City, and additional measures can be taken to control discharges from the sources already addressed. In order to facilitate interdepartmental collaboration and to indicate the City’s level of commitment to reducing environmental releases of mercury and dioxins, staff recommends that City Council approve a mercury and dioxin elimination policy. Such a policy will complement and reinforce several policies in the City’s Comprehensive Plan. Staff will cooperate with dentists, laboratories, hospitals, local businesses, and industry to encourage them to adopt their own mercury and dioxin elimination policies. City staff will also create outreach programs to educate residents about their role in mercury and dioxin releases to the environment. CMR:441:99 Page 1 of 6 RECOMMENDATION The staff recommends that the City of Palo Alto establish a mercury and dioxin elimination policy as the first step towards achieving a long-term goal of eliminating mercury and dioxin releases to the environment. BACKGROUND Mercury and dioxins are highly toxic substances that persist for long periods in the environment, where they bioaccumulate in living tissues. Mercury is a naturally occurring element found in small quantities throughout the environment. Mercury is especially prevalent in cinnabar deposits along the California coast, where it has been mined since the 1880’s. Because of its physical properties, it serves many useful purposes. It can be found in dental amalgam, thermometers, electrical switches, thermostats, fluorescent light bulbs, and batteries. Certain pharmaceutical products, fungicides, and other household products also contain mercury. In the past, mercury was used as a fungicide in paint. Elemental mercury, a liquid at room temperature, can become airborne through many processes, including incineration of mercury-containing waste. Airborne mercury adheres to dust and precipitation, and falls to earth, depositing on soils and surface waters. Through biological processes, mercury can be converted to an organic form, called "methyl mercury," which is easily absorbed by organisms at the bottom of the food chain. Bioaccumulation of mercury produces relatively high concentrations of mercury in higher organisms, such as fish. Human exposure to mercury affects the brain, spinal cord, kidneys, and liver, and interferes with normal fetal development. In humans, elevated mercury levels can cause mental and physical retardation. Dioxins are produced when chlorine-containing products, such as organochlorine pesticides, polyvinyl chloride (PVC) plastics, and polychlorinated biphenyls (PCBs), are made, and when these products are heated or burned. Dioxins are not intentionally created for any useful purpose; they are waste byproducts of incineration, chemical manufacturing, and pulp and paper bleaching. Primary local sources of dioxins appear to be residential wood burning and motor vehicles, particularly diesel-fueled motor vehicles. National and international activities responsible for dioxins that reach the local sanitary sewer include bleaching paper, incinerating medical and municipal waste, and manufacture and use of chlorinated pesticides. Once released to the environment, dioxin can travel far from its source. Like mercury, it bioaccumulates in the food chain. In humans, dioxins have been shown to cause cancer, weaken the immune system, and interfere with the endrocrine system, which is ¯ responsible for making hormones needed to regulate bodily functions. While the sources and chemistry of mercury and dioxin are very different, they both exhibit the following characteristics: CMR:441:99 Page 2 of 6 *persist in the environment *bioaccumulate in the food chain ¯do not respect jurisdictional or geographic boundaries ¯are highly toxic to human health ¯are key toxins in fish tissue throughout San Francisco Bay Both mercury and dioxin are listed by regulatory agencies on the Section 303(d) (Federal Clean Water Act) impaired water body list for action in the San Francisco Bay Area. In a study of San Francisco Bay, the California Environmental Protection Agency found elevated concentrations of mercury and dioxin in fish tissue. Based on these findings, it issued a fish consumption advisory. Fish consumption is the primary route of human exposure to these pollutants. The populations especially at risk from mercury and dioxin pollution are pregnant women, children, and the developing fetus. Across North America, municipalities, states, and countries are responding to the environmental and human health impacts of mercury and dioxin in local waterways. For example, the New England states and five Canadian provinces cooperatively ratified a mercury elimination policy. Locally, the City of San Francisco passed a dioxin elimination resolution in 1998, followed by a mercury elimination resolution in 1999. Out of concem for the South San Francisco Bay environment and a desire to avoid future compliance issues, Palo Alto’s Regional Water Quality Control Plant (RWQCP) is working to reduce its mercury and dioxin releases. The RWQCP releases both mercury and dioxin to the environment through its treated effluent, ash waste from sludge incineration, and incinerator air emissions. The RWQCP’s permit for discharge to the Bay has discharge limits mandated by the San Francisco Bay Regional Water Quality Control Board (SFBRWQCB). Over the past few years, the RWQCP has initiated several programs that reduce sources of mercury and dioxin discharges. Among them are a program to reduce the use of mercury thermometers; best management practices (BMPs) for hospitals and other medical facilities, laboratories, and pottery studios; and distribution of a guide to installing graywater systems. Although the hospital and laboratory BMP programs have only been in place for two years, several indicators point to the success of the programs. Observed quantities of mercury discharged in wastewater from hospitals and laboratories in the RWQCP service area are relatively low compared to similar discharges in other areas of the country. In 1998, the City Council approved the rehabilitation of the RWQCP’s sludge incinerator. Prior to Council approval, the project went through a vigorous review process, in part due to public concern regarding dioxin releases from the incinerator. In concert with CMR:441:99 Page 3 of 6 approval of the incinerator rehabilitation project, the City pledged to review opportunities to reduce dioxin releases throughout the City. Because mercury and dioxin are federally listed as impairing Bay water quality, the SFBR-WQCB is developing a plan to significantly reduce the releases of these compounds to the environment. The RWQCP participates in regional stakeholder committees created by the SFBRWQCB to formulate future steps for improving Bay water quality. Though the timeline is unclear, future RWQCP discharge permits may include specific mandates to make measurable progress towards eliminating mercury and dioxin releases to the environment. While the RWQCP has already addressed several sources of mercury and dioxin (see attachments 1, 2 and 3), other controllable mercury sources exist within the city, and additional measures can be taken to control discharges from the sources already addressed. The primary sources are listed in Exhibit 1. Attachment 4 further describes these sources, the applicability to City departments, busineSses and/or residences, and the current status of source reduction and pollution prevention efforts. Sources of Mercury and Dioxin Within the City of Palo Alto Mercury Sources ¯Thermometers ¯Thermostats ¯Fluorescent, neon, and high intensity discharge lights ¯Dental amalgam ¯Switches, batteries, cleaners, and pharmaceutical products ¯Chemicals and solvents ¯Fuel combustion ¯Gauges Dioxin Sources ¯Wastewater sludge incinerator ¯Chlorine-bleached paper products ¯Residential wood burning ¯Vehicle emissions ¯Wood preservatives ¯Vinyl/PVC DISCUSSION In order to facilitate interdepartmental collaboration and to indicate the City’s level of commitment to reducing environmental releases of mercury and dioxins, staff recommends that City Council approve the following mercury and dioxin elimination policy: It is a goal of the City of Palo Alto to reduce, and eventually eliminate, releases of mercury and dioxin to the environment. To achieve this goal, the City will evaluate opportunities to eliminate mercury and dioxin releases from municipal, commercial, industrial and residential sources, focusing on the most cost-effective sources first. CMR:441:99 Page 4 of 6 The mercury elimination strategy will focus on products that contain mercury as an intentional ingredient; laboratory, medical, and manufacturing processes that use mercury; and the combustion of mercury-containing fuels or wastes. The dioxin elimination strategy will focus on products that contain dioxin, manufacturing processes that create dioxin as a by-product, and combustion-of fuels or wastes that contain dioxin precursors. Both strategies will place higher priority on measures that reduce and eliminate sources having the greatest adverse impact on human and environmental health and/or which are most cost-effective to implement. It is recognized that it may not be possible to totally eliminate mercury and dioxin releases due to technological or economic factors. However, significant progress can be achieved by working toward elimination through regulatory and voluntary pollution prevention programs. There are numerous opportunities for Palo Alto to consider to reduce mercury and dioxin releases. Below are four examples of programs currently under consideration by staff: Fluorescent lights: Staff is reviewing the economic and environmental feasibility of substituting standard mercury-containing fluorescent lights with low-mercury fluorescent alternatives, both at City facilities and as a recommendation to businesses and residents. Dental amalgam: Staff is considering facilitating proper disposal and storage of mercury amalgam by local dentists. Staff plans to work with dentists to explore options, including treatment, to prevent mercury discharges from dental facilities. Residential wood-burning: Staff is currently designing a brochure to educate residents about the health effects of woodsmoke and ways that woodsmoke emissions can be reduced. Staff is also reviewing the feasibility of a fireplace and woodstove ordinance for new construction. Chlorine-bleached paper products: Staff is considering changing the City’s paper purchasing policies to dramatically reduce the dioxin levels in paper which the City purchases. If adoption of a price preference is recommended (similar to that for recycled products currently in the Palo Alto Municipal Code), that action would be brought to Council for approval. Staff will cooperate with.dentists, laboratories, hospitals, local businesses, and industry to encourage development of individual mercury and dioxin elimination policies. City staff will also create outreach programs to educate residents about their role in mercury and dioxin releases to the environment. CMR:441:99 Page 5 of 6 RESOURCE IMPACT Implementation of this policy is not expected to immediately impact fiscal resources. The Public Works Environmental Compliance staff members will take the lead in reviewing source control and pollution prevention options. They will team with work units within the City’s Administrative Services, Utilities, and Fire Departments and other Public Works divisions to ensure that environmental and resource implications are fully considered for specific programs under consideration. Actions that have significant resource impacts will be brought back to City Council for approval. POLICY IMPLICATIONS The recommended policy is consistent with current City policies and will require no changes in these policies. A mercury and dioxin elimination policy will complement and reinforce several Comprehensive Plan policies. ENVIRONMENTAL REVIEW This is not a project as defined by the California Environmental Quality Act. ATTACHMENTS Attachment A:Description of the Mercury Thermometer Takeback Program Attachment B:Description of the Mercury Thermostat Takeback Program Attachment C:Fact sheet "How do vehicles pollute the Bay?" Attachment D:Description of Mercury and Dioxin Sources and Status of Pollution Prevention Programs PREPARED BY: Stephanie Hughes, Manager, Environmental Control Programs DEPARTMENT HEAD: GLENN S. Works CITY MANAGER APPROVAL: JUNE FLEMING City Manager CMR:441:99 Page 6 of 6 Regional Water Quality Control Plant Operated by the City of Palo Aito for the East Palo Alto Sanitary District, Los Altos, Los Altos Hills, Mountain View, Palo Alto, and Stanford ATTACHMENT A "MONEY FOR MERCURY" THERMOMETER TURN-IN PROGRAM Mercury is a highly toxic metal that. enters the Regional Water Quality Control Plant (RWQCP) and the Bay from many sources. Just one broken mercury thermometer can pollute 5 million gallons of Bay water. Recent studies show relatively high levels of mercury in Bay fish, raising the concern that mercury is accumulating in the tissues of organisms in the food web. The RWQCP and other Bay Area water pollution prevention agencies are developing programs to educate the public about mercury contamination, its sources, and actions individuals can take to reduce amounts of mercury currently reaching the Bay. One such program is the Money for Mercury Thermometer Program, a Clean Bay Business promotion in parmership with pharmacies in RWQCP service area communities. Broken mercury thermometers can readily cause c,~ntamination of sewer systems. Mercury has been known to build up in plumbing traps and jolts, where it leaches slowly into wastewater over a long period of time. The Money for Mercury Program aims to educate the public about mercury pollution, encourage people to turn in their old mercury thermometers, and promote use of the convenient non-mercury alternatives that are now available. Consumers are asked to bring mercury thermometers to the RWQCP, where they are given a coupon for $5.00 off the purchase of a new non-mercury thermometer, or $2.50 off any purchase at one of the participating Clean Bay Business pharmacies and stores. The RWQCP holds the thermometers for mercury reclamation and recycling through Palo Alto’s Household Hazardous Waste Collection Program. Clean Bay Business pharmacies and stores distribute literature about mercury pollution and the Money for Mercury program, feature non-mercury thermometers in store displays, and redeem program coupons through the City of Palo Alto. In return, they receive public recognition for their efforts, in the form of.Clean Bay Business emblems for display and inclusion in newspaper advertising purchased by the RWQCP. In order to collect elemental mercury, an "acutely hazardous waste," the RWQCP received a permit from Department of Toxic Substances Control as a permanent household hazardous waste facility, limited to collection of mercury and a limited number of other pollutants of local concern. Under terms of the permit,, residents of the RWQCP service area (East Palo Alto Sanitary District, Los Altos, Los Altos Hills, Mountain View, Palo Alto; and Stanford) may bring thermometers to the Plant during regular business hours, Monday through Friday. 12/6/99 2501 Embarcadero Way Palo Alto Ca 94303 Tel.: (650) 329-2598 Fax: (650) 494-3531 Regional Water Quality Control Plant Operated by the City of Palo Alto for the East Palo Alto Sanitary District, Los Altos, Los Altos Hills, Mountain View, Palo Alto, and Stanford ATTACHMENT B Mercury Thermostat Store Promotion Sponsored by the Regional Water Quality Control Plant (RWQCP) in the East Palo Alto Sanitary District, Los Altos, Los Altos Hills, Mountain View, Palo Alto, and Stanford Goals of the thermostat program: ¯Educate the pubhc about mercury pollution in the Bay ¯Encourage proper (hazardous waste) disposal of mercury-containing thermostats (Mercury in thermostats turned in to the RWQCP will be reclaimed and recycled.) ¯Encourage residents to choose a non-mercury alternative when purchasing a thermostat The RWQCP asks participating stores to: ¯Make program literature available to customers - -- ¯Accept merchandise coupons for $5.00 off any store purchase, to be redeemed by the City of Palo Alto The RWQCP will provide stores with: ¯Publicity including display advertisements in local newspapers explaining the program and directing residents to participating stores 2501 Embarcadero Way Palo Alto Ca 94303 Tel.: (650)329-2598 Fax: (650)494-3531 How do vehicles pollute the BaLJ? Let’s count the waLJs: ATTACHMENT C 1. Tailpipe emissions Tm3pipe emissions go up in the air... but all too soon, many tiny particles are back down on the street, waiting for rain drains and on into the Bay. 4. Leaking automotive fluids Leaking oil, antifreeze~ and other automotive fluids such as brake fluid, battery acid, and grease: All of these fluids contain toxic organics and metals. If they leak onto the street as you drive or when you’re parked, you can hetthc~fre headed for the storm drains, and on to local creeks and the Bay! What comes out of the milpipe? Exhaust contains chemicals long known to impair air quality and human health: ¯ Carbon monoxide ¯ Particulates ¯ Nitrogen oxides and volatile organic compounds (VOCs)---the ingredients that form smog What can you do about it? Check your parking spot routinely for evidence of leaks. If your car or truck is leaking, have it repaired promptly, at your f~vorite Clean Bay Business auto shop. Chemicals in exhaust also cause water pollution: ¯ To~ic organic compounds such as dioxins ¯ Mercury ¯ Other hea~ metals What can you do about it? Make sure a Clean Bay Business auto shop keeps your car trued up so the engine burns cleaner. For a complete list of Clean Bay Business shops, check out the website below or call (650) 3292598 5. Brake pads Brake pads are designed to wear away little by little, each time you slow down or stop. Many brake pads contain copper, which is highly toxic to aquatic life at the base of the food web. Brake pad dust is the largest source of copper in the Bay! What can you do about it2 2. Tires As the tread wears down, pollution bu~ds up on the roadway. Tires contain zinc, cadmium, and a host of other substances you wouldu’t want to drink or feed to your goldflsl~ When ifs time to replace your brake pads, inquire about pads made from materials that contain little or no copper. Some parts stores have information about brake pads’ copper content, although manufacturers are not currently required to list ingredients. What can you do about it? The best way to reduce pollution due to fire wear on streets and freeways is to drive 3. Soap and dirtL~ carwash water, wax, and detailing materials Dirty, soapy water is on its way to the nearest creek when you wash your car on the street--or in a driveway that slopes to the gutter. Even biodegradable soap is harmful to creek life! What can you do about it? Take your car to a Clean Bay Business carwash. Carwashes are best because they recycle their water, and finally send it through the sewer to the wastewater treatment plant. If you must wash your car at home, wash it on a lawn or unpaved are~ Use a bucket of soapy water and pour it down a sink or toilet when you’re doIle. For mor~ information about vahot gou can do ~o help I:~event w~ter pollution, check out our ~: http:l lwww.cit~,polo~[to.ca.us/cleanba~ 6. Used oil and coolant, disposed of improperlL~ Oil is high in zinc; radiator fluid contains several other heavy metals. Pollution from these metals is a big problem for our creeks and the Bay. What can you do about it? If you change your own oil, use a funnel and a pan that catches all the drips. Recycle that used off curbside, or at a city recycling center or certified collection center. For information, call 1-888-BAYWISE. If you flush your radiator, collect all the fluid and take it to a household hazardous waste collection event or center. Regional Water Quality Control Plant 2501 Emban~dero Way Palo Alto, CA 94303 (65O) 329-2598 The Regional Water Quality Control Plant Is opem~<i by bhe City of Palo Alto for the East Palo Alto Sanita~ District, Los Altos, Los Altos Hills, Mountain View, Palo Alto, and Stanford. ATTACHMENT D > o