HomeMy WebLinkAboutStaff Report 123-07TO:CITY COUNCIL
City of Palo Alto
City Manager’s Report
ATTN:
FROM:
DATE:
SUBJECT:
CITY MANAGER
MARCH 13, 2007
POLICY AND SERVICES COMMITTEE
DEPARTMENT: PUBLIC WORKS
CMR:123:07
CONCEPTUAL REVIEW OF A ZERO WASTE OPERATIONAL PLAN
RECOMMENDATION
Staff recommends that the Policy and Services Committee recommend to City Council approval
of the short term, mid term and long term goals outlined in the Zero Waste Operational Plan
(Attachment A). The Zero Waste Operational Plan recommends a regional facility approach to
achieve 73 percent waste diversion by 2011 and close to zero waste by 2021. Reliance on
regional facilities for composting and construction (C&D) debris processing provides the
greatest diversion at the lowest price. The ZWOP also recommends a Recycling Drop-Off
Center with a permanent Household Hazardous Waste facility to be developed locally with
further study being required at a later date to determine the specific site location. The local
Recycling Drop-Off Center will provide a convenient oppommity for.residents and business to
divert more materials to reuse and recycling and will reduce the toxicity of the disposed waste
stream.
BACKGROUND
On November 15, 2004, during the discussion of the then-proposed Environmental Services
Center project, Council directed staff to develop a zero waste policy and implementation plan.
In January 2005, a Zero Waste Task Force composed of residents and businesses was formed to
assist in the creation of a zero waste policy and the development of a Zero Waste Strategic Plan
(ZWSP) for Palo Alto. The ZWSP was created to act as a framework to guide City officials in
the planning and decision making process towards achieving zero waste goals. In October 2005,
Council approved (CMR:382:05, Attachment B) the Zero Waste Task Force ZWSP, which
identified the key objectives and strategies needed to reach zero waste goals. The ZWSP
established a goal of 73 percent diversion by 2011 and to strive for zero waste by eliminating
materials sent to landfills by 2021. The ZWSP recommended that the City conduct a waste
composition study and develop a Zero Waste Operational Plan (ZWOP) to identify the policies,
programs and facilities needed to achieve these goals.
DISCUSSION
The primary purpose of the ZWOP is to significantly reduce the amotmt of waste produced by
residents, businesses, and institutions within the City, to reduce the toxicity of the disposed waste
stream and to maximize diversion of recyclable and compostable materials generated within the
city.
CMR:123:07 Page 1 of 7
Project Description
The ZWOP includes:
A detailed waste composition study to identify the components of the City’s disposed
waste stream;
Identification of the policies, programs and facilities needed to reach 73 percent diversion
by 2011 and to strive for zero waste by 2021;
Identification of potential candidate sites for processing facilities options both locally and
regionally;
¯Estimated costs for implementing the Plan;
¯Estimation of diversion potential for the components of the Plan;
¯Identification of the staffing needs to implement the policies and programs identified in
the plan; and
Creation of action plan that identifies the tasks necessary to undertake the Plan, including
an implementation schedule.
Palo Alto Waste Composition Study
To achieve zero waste, it is first necessary to understand existing waste streams to identify key
opportunities for diversion, recovery, or reuse of specific types of waste categories. The
following are the ZWOP’s key findings regarding disposal trends and recovery potential for the
city overall:
Approximately 72% of the city’s waste is reusable, recyclable or compostable.
About 3% of the city’s waste stream is considered potentially recyclable, meaning
markets could be developed regionally to process and market these materials.
Approximately 25% of the city waste sampled consists of problem materials (Waste is
considered problem materials if there are no existing processing options).
The ZWOP’s waste composition study identified the following key opportunities:
Focus on residential and commercial paper. Recyclable paper from residential and
commercial waste streams totaled approximately 15% (10,300 tons). Collection,
processing, and end markets for recycled paper are well established and could be tapped
to increase diversion.
Expand organics diversion. Food waste and compostable paper from single family,
multi-family, and commercial sources totaled more than 26% (18,000 tons).
Examine opportunities of increased construction and demolition (C&D) debris
reduction/recycling. Recyclable materials in the industrial and self-haul waste sectors
account for more than 22 % (15,200 tons) per year.
ZWOP Recommended Policies, Programs and Facilities
Given the key findings of the waste composition study, the ZWOP contains the following major
recommendations (section 7.0 of the ZWOP):
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Policies
Continue to expand efforts in waste prevention through legislation, policies, ordinances,
outreach, and technical assistance.
Seek to reduce the amount and toxicity of consumer product waste through measures
that place the appropriate level of responsibility on manufacturers for the end-of-life of
their products.
Encourage innovative services to be added by the private sector and nonprofit groups so
the City does not have to invest in those activities.
Work with residents, businesses, community organizations, Bay Area Product
Stewardship Council, Bay Area Zero Waste Communities group to further the City’s zero
waste efforts.
Establish, support and incorporate environmentally preferable purchasing standards.
Programs
¯Divert all PASCO debris boxes rich in C&D debris to local C&D debris processors.
¯Create a grant or loan program for attracting and retaining reuse and recycling businesses
within the community.
Track and reduce greenhouse gases from the actions in reducing waste within the
community.
Enhance recycling in public areas (grocery stores, convenience stores, hospitals and
schools)
¯Enhance business and school technical assistance programs to maximize participation.
¯Phase in a mandatory participation ordinance to coincide with the implementation of a
new collection services agreement.
Create new rate incentives that further rewards customers for reducing or eliminating
waste.
Consider encouraging adaptive reuse design and expanding the C&D ordinance to
include all projects.
Have City lead by example by expanding recycling services, increasing education and
requiring accountability.
Implement in the upcoming procurement process for the hauling and processing
agreement the following services: expansion of the current curbside yard trimming
collection program to include food scraps, compostable paper, untreated wood and other
compostables that would include multi-family and the commercial sector; expansion of
the types of recycling materials being excepted at the curbside; improvement in the bulky
item clean-up program to further reuse and recycle the materials being collected; and
implementation of a universal roll-out of recycling services to all customers.
Facilities
Use the regional facilities approach when processing waste for recyclables at the
Materials Recovery Facility, Recyclables, Organics/Yard Trimmings and C&D Debris.
The regional facilities approach involves sharing existing processing facilities located
within 85 miles of the City with the City contractingfor these services as part of its
agreement with a new contract hauler.
Keep a Recycling Drop-Off Center with a permanent Household Hazardous Waste
(HHW) facility locally with further analysis needed for a permanent site location.
CMR:123:07 Page 3 of 7
Overview
The following table provides an overview of the ZWOP for the short, mid and long term.
Year/Term
Diversion Rate
Major additional
programs and
facilities
Estimated
additional costs
(Break down of
cost are itemized
in the Resource
Impact Section)
Approximate rate
impact
Projected one
standard can rate
($19.80)
increase.
Zero Waste Operational Plan Overview
2004 2008 2011
62%
NA
NA
NA
Short Term
68%
-Additional
C&D debris
diversion
-Additional staff
resources
$615,000 (on-
going cost)
3%
$.59
Mid Term
77%
-New
collection
contract
-Universal
roll-out
-Regional
organics
processing
-Regional
C&D debris
processing
$3,378,500
(on-going
cost)
$150,000 (one
time cost)
17%
$3.370
2021
Long Term
78 to 90%
-Use of
emerging
technology or
other
innovative
approaches to
materials
management
not available
not available
not available
ALTERNATIVES TO STAFF RECOMMENDATION
The ZWOP recommends a regional facility approach for composting and C&D processing along
with a local Recycling Drop,Off Center and HHW facility. Two alternatives were looked at that
included City-developed facilities, such as the former Los Altos Treatment Plant (LATP) site and
the Palo Alto Regional Water Quality Control Plant (PARWQCP) site. These alternatives would
provide local composting and C&D processing along with a Recycling Drop-Off Center with
HHW. Comparisons for these alternatives can be found in section 6.4 and in Exhibit B in the
Zero Waste Operational Plan. If the Cotmcil were to direct staff to further explore City
developed facilities, additional environmental review would be required. Following is a general
summary of the two alternatives along with a third alternative that would require no new City-
developed facilities, programs or policies.
CMR:123:07 Page 4 of 7
Alternative 1: City-Developed Facility- LATP Site
This alternative assumes development of the western-most portions, approximately 7.1 acres of
the former LATP. This site could accommodate the Recycling Drop-Off Center with HHW,
Organics/Yard Trimmings Composting, and C&D Debris Processing facilities. This site is also
the subject of the City’s initiative to retain auto dealerships in Palo Alto (Anderson Honda).
Altemative 2: City-Developed Facility - PARWQCP Site
This altemative assumes development of approximately 7.5 acres of the southwestem portion of
the PARWQCP site. The City would need to take possession, purchase and then demolish three
buildings on the northeast side of Embarcadero Way and four buildings on the southwest side of
Embarcadero Way, both most directly north of the PARWQCP entrance. This site could
accommodate the Recycling Drop-Off Center with HHW, Organics/Yard Trimmings
Composting, and C&D Debris Processing facilities.
Alternative 3: No New City-Developed Policies, Programs or Facilities
This alternative assumes that after the City landfill closes in 2011, the existing City facilities
would be closed as well. The City would opt not to replace the Recycling Drop-Off Center
including handling of certain HHW materials. Public Works Operations would continue its
current HHW collection events at the PARWQCP. In addition, all self-haul materials would be
diverted to the Sunnyvale Materials Recovery and Transfer (SMART) Station or other regional
facilities. Under this scenario, the City Municipal Code would require modification.
Approach/Year
Regional Facility Approach
(ZWOP recommendation)
Alternate 1: City Developed
Facility-LATP Site
Alternate 2: City Developed
Facility-PARWQCP Site
Alternate 3: No New City
Developed Policies, Programs,
or Facilities
Estimated Costs and Diversion Rate Comparisons
Estimated
Net
Annual
Cost *
$3,993,500
$5,242,000
$5,342,000
$0
Projected one
standard can rate
($19.80)
increase.
$3.96
$5.03
$5.12
$0
2004
Estimated
Diversion
61.9%
61.9%
61.9%
2011
Estimated
Diversion
76.6%
77.3%
65.3%
65.3%
2021
Estimated
Diversion
77.6%
78.3%
66.3%
66.3%
* Cost includes amortized capital cost, annual operating cost, estimated material sales, net material sales
and existing processing cost.
RESOURCE IMPACT
Additional Refuse Fund expenses and revenues will be required to support the ZWOP
recommendations. For the short term (fiscal year 2007-08) period $615,000 for on going
expenses would be needed to fund:
CMR:123:07 Page 5 of 7
$450,000 for additional staff or contract resources (3 FTE),
$100,000 for expanding the outreach campaign,
$15,000 for diverting the remaining PASCO debris boxes rich in C&D to a local C&D
processor, and
$50,000 for grants or loan program for attracting and retaining reuse and recycling
businesses.
For the mid term (after fiscal year 2008 but on or before fiscal year 2011) period, $3,378,500 of
on-going expenses and $150,000 of one time-time expense would need to fund:
$15,000 for organic containers;
$2,500 for technical assistance to multi-family units;
$3,361,000 for implementing new programs in the upcoming procurement process for
collection and processing services (assumes a regional facility approach for composting
and C&D Debris processing with a local Recycling Drop-Off Center with HHW facility -
see Exhibit B in the ZWOP for additional details.); and
$150,000 of one-time expenses would need to be funded for the purchase of organic
containers.
For fiscal year 2007-08, staff is proposing a 13 percent rate increase for the Refuse Fund to
maintain the Council-adopted minimum Rate Stabilization Reserve. It is projected that if the
ZWOP is fully implemented as recommended, that a 20 percent rate increase for the Refuse fund
would be required starting in fiscal year 2007-08 (a 3% rate increase, and after fiscal year 2008
but on or before fiscal year 2011, a 17% rate increase).
POLICY IMPLICATIONS
On November 15, 2004, during the discussion of the then-proposed Environmental Services
Center project (CMR: 470:04), Council directed staff to return to Council with a proposed policy
for zero waste, including an implementation plan. The Zero Waste Operational plan is consistent
with this Council direction.
The City’s Sustainability Policy and Comprehensive Plan contains many programs and policy
statements that are consistent with the long-term solid waste planning goals and objectives of the
ZWOP. The city’s Comprehensive Plan contains the following policies:
Comprehensive Plan Policies
Natural Environment-Solid and Hazardous Waste
N-34: Reduce the amount of solid waste disposed in the city’s landfill by reducing the amount
of waste generated and promoting the cost-effective reuse of materials that would
otherwise be placed in a landfill.
N-35:Reduce solid waste generation through salvage and reuse of building materials, including
architecturally and significant materials.
N-36:Encourage the use of reusable, returnable, recyclable, and repairable goods through
incentives, educational displays and activities, and city purchasing policies and practices.
N-37: Ensure the environmentally sound disposal of solid waste.
N-38: Support state and federal legislation encouraging the use of recyclable goods.
CMR:123:07 Page 6 of 7
N-52:Improve city composting praetiees and continue promoting the household composting
program.
N-54:Continue to develop tong-term solid waste management programs, that include safe and
environmentally sound disposal methods such as the SMART Station.
The following local, state, and federal mandates are consistent with the Zero Waste Operational
Plan recommendations:
Palo Alto Municipal Code (5.20.270)
The city will maintain, within the city’s territorial limits, a recycling center that accepts from
residents and non-residents the delivery ofreeyelable materials.
ENVIRONMENTAL REVIEW
This project is a feasibility study and exempt under 14 California Code of Regulations 15262.
ATTACHMENTS
Attachment A: Zero Waste Operational Plan-December 2006
Attachment B: CMR: 382:05 Adoption of Zero Waste Resolution, Approval of the Zero Waste
Strategic Plan and Direction to prepare a Zero Waste Operational Plan
Copies of the attachmems to this CMR:123:07 may be viewed at the Public Works Department
counter located at 250 Hamilton Avenue, 6th Floor, Palo Alto or by contaeting Russ Reiserer at
650-496-6951.
RUSSELL REISERER
Solic! Waste Manager ,~
GLENN S. ROBERTS
Director of Public Works
CITY MANAGER APPROVAL:
Assistant City Manager
CMP~123:07 Page 7 of 7