HomeMy WebLinkAbout0184.092•
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THE RONORABLE CITY COUNCIL
Palo Alto, California
COmmercial/lndustri41 Recyclin~ Progr~ms -InformatiqD
Kembe~s of the Council:
Attention: Policy and Services Ccmmittee
Report in Bxief
This report provide:;; information on commercial and industrial
recycling proqrdJDs 1n Palo Alto. At trle Policy and Services
Committee meeting on February 4, 1992, staff prepared an overview
of recycling sarvices provided by the city. TI"'"' Policy and
Services Committee requested additional inft..-rmation on
cOllUllercial!industrla~ recycling programs offered by the city. This
report also includes information on "mixed recyclables.-
BackgrQund
Commercial/industrial wastes account for approxim~tely 75 percent
of the city's solid waste e>tream. Approximately 1.1 percent of
commercial/industrial waste is currently being recycled. During
the AS 939 short-term planning period, the rccycling rate target to
achieve £"0:0:' this sector is 30 to 40 percent {equivalent to
approximately 24 to J2 pe~cent of the total waste stream).
Commercial waste is defined as waste originating from ~holesale and
retail distribution opel."ations, institutions (hospitals, education
facilities, etc.), service operations (office and repair
facilities), and government operations. Industrial waste is
defined as waste collected in roll-off containers and typically
oriqinating from industrial, comnercial, constructionidemolition,
and other sour~es.
COmmercial/Industrial Recycling Prog~~ms
CITY PROGRAMS
a. Hiqh-Gr.~. Office Papar Collection: The office paper
recycling program, originated in 1986 is curr~ntly available
to private busine.sses, City government offices I and other
facilities~ The City offers collection service, provides
participants .... ith desks ide containers, informational materials
for employees, and assista.nce in establishing office paper
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recycling proqrams. Starting in 1990, large businesses were
offered large bins or whee!ed carts for ~hite paper to improve
collection effi~iency.
b. Co_erolal/ln.5uetrl&l corrulj'a.te4 cardboard. Coll.ection: ln
1989, the City begi1n a corrugated cardboard collection
recyclinq program. Busin.esses are charged a :lnont.l].ly fe~ for
rental of the bih, and collection is provided at no additional
charge by PASCO. Corrugated c~rdboard is col.lected from
businesses Yp to five days per week, depending on the amount
generated. The City has provided 20 bins for cardboard
collection at no charge to the university Avenue and
California AVenue business districts. Bins a:re shared by
local businesses.
c. Co ... rcial/ln4ustrial con.ultinq service. Proqr .. : The City
provides a Comnercialflndustrial Consulting services program
to assiat businesses on how to start and maintain recycling
pr09rams. We also perform \iaste audits, which include
cost/benefit ar.alyses, and prepare reports identifying
materials 'With recycling potential.
d. Polystyr.a.. FOUl Collectien: In Nov~mber 1990, the city began
a three-month polystyrene foam recycling pilot prograJl! for
cups, plates, and take-out/fast-food containers; molded
packaging (e.g., what is used to cushion small appliances,
TV's, etc.); loos8 packing materials; and meat trays from the
qrocary. Polystyrene foam can be t3ken to the recycling drop
off center or t<) three other sit.es througho'Jt the City. One
bin is at CUbberley community center; the other tyO are in
indUstrial areas (including Stanford Research Park) which
serve the businesses in their proximitY4 This program became
pe~anent in June 1991.
e. Downtown 1!lnvirona.nul Action Projec:t (DEAPJ: DEAP wa.s
designed to encourage dcwntown palQ Alto businesses to
recycle. It ~as originally funded by downtown businesses a~d
had a steering committee made up of business owners, managers,
and volunteers. The management of DEAP has now been passed to
the City. Approximately 30 recycling sites have been
designated in downtown Palo Alto for collection of newspaper,
ql~ssl cans, white paper, cardboard, and polyethylene
terephthalate (PET} 4 Each site provides wheeled carts for
newspaper. glass/PET combined, cans, white paper, and large
bins for corrugated cardboard.
Collections by PASCO teqan in November 1990. DEAP block captains
and volunteers contacted one thousand busine.sses and provided
them information about the collection program.
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OTHER PROGR1>.MS
a. private Broker.: Private :rtaterial hrokers such as
Weyerhaeuser and Smur~it collect so~rce-separateQ materia is
from companies in Palo Alto. The broKers usually pay
companies for the materials as an ir.~entive for the comp~nies
to choos-e their services over City recycling s.ervices. The
City of Pale Alto does not restrict the source-separated
collection of recyclables, but seea it as an alternative for
companies interested in keepin',} materials ~ut of the waste
stream.
b. R •• t~ur.nt/B.r Glasa Collections Since 1985, Circo Glass of
Ne .. "ark, california has collected glass from restaurants, bars l
and hotels in Palo Alto. Circo provides bins ana regular
picKups for the glass.
FUTURE CITY PROGR~S
a. BUDDyvale Katerial Recovery an4 Tra~.f.r (8KaRT) stktion
Sunn}~ale, along with the cities of Palo Alto and Mountain View,
is currently seeking a cnntractor to build and ope~ate the SMaRT
station. This facility will serve as both a materials ~ecovery
facility and transfer station for Y&ste oeinq hauled to Ki~by
Canyon Landfill in San Jose. TWo-thirds of the Palo Alto waste
stream will be transported to the SMaRT statLcn~ Approximately
20 percent of the incoming 'Waste will be re.cycled. It is
estimated that 10 to 12 percent of the total Palo Alto waste
stream will be recycled at the SMaRT Station. The expected
completion date is July 1993, ~ith full operation to beqin in
July 1994.
~ansi9n of Commercial/Indystrial Recycling Programs
curr~ntly, the materials c~ll~cted through the
commercial/industrial program are polystyrene, ne...,spaper, PET,
glass, cans, high-grade ~ffice paper~ and Gorrugated cardboard. In
order to collect BLare of the commercial/industrial ,.,aste, mere
programs will have to be estahlished and a broader range of
materials collected. Other materials that could be ccnsidered are
film, pla5tic, ferrous metals, compostable 'Waste S'.nCl 'Wood~
In order to increase partiCipation, lhe City has adopte.d an
aggressive campaiqn to get neW' cOIilpanies to recycle. Business
recycling brochures will be sent to 3,000 companies promoting City
and private recycling services~ The Cityrs past efforts were
focused on the larqest waste generators in Palo Alto to encourage
them to increase their recycling efforts.
CITY OUTREACH AND PUBLIC INFORMATION PROGRAM
a~ Busin ••• R..cyc:linq Brochure: In November 1990, the City
published "Business Recycling ... the Palo Alto Way, '" a brochure
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containi~9 10 inserts describing the City's recycling pr~Jram5
for businesses (previously provided to Policy ar:d Services
committee members). Included in the brochure is information
about broker services available to those businessss for ~h~m
selling source-separated ~ateri~ls directly to a hroker would
be most economica 1. The :broc.-nu:,e t-.as been distr ibutea at
presentations 'tlade to l;n.!sinesses, and by direct mailing to
3,000 Palo Alto businesses. This effort ..,as started in
January 1992 and .... i 11 take approxim3tely eight ]!'.onths to
complete. The brOchures are beinq mailed out in increments of
500.
b. tN.in •• s ltecrelitJq au14.: In February 1992 1 a Business
Recyclinq Guide was made availa:ble to the
cOlDJl\erciall industrial sect.or. The quide: provides specific
information to help DUsinesses start recycling progr~ms~ It
includes ans~ers to commonly asked questions about recycling,
a ~aste audit she~t, a list of ~uestiQn5 tc ask when selecting
a recycling broker, exanplE5 of educational/promotional
materials I and specific waste reduction techniques.
c. au.in... a.cycling work.hQP: Workshop6 for bUsinesses
interested in starting or expending recyclir.:q programs are
conducted on a continuing basis.
d. Public Pr.8.Dt~tion.; The City gives presentations to
interested businesses and community groups upon reqyest. The
business recycling brochure and the business recycling ~~ide
are distri~uted at these presentations~
e. PUblic •• coqnitio~ an~ A.arda: Public recognition and awards
are used by the City to acknowledge businesses th.at have
implemented source reduction and recycling activities.
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particip.tion in Local ZVentd: Participating in local events
is a highly visible metl'lod of reachj ng the community about
waste rcduc~ion programs. The City targets events such as
Earth Day and the Safety Fair at S~anford Shopping Cen~er as
opportunities to incorporate ~aste reduction practices. The
City places displays on the recycling pr09ra~ and the
household hazardous 'Waste progra:;n at these events.
a8oycliD9 Video.: CUrrently, the City has two videos that
focus on its recycling program; one was developed by Cable Co
op. the other by an independent producer. The~e are loaned to
businesses and cozmunity groups.
h. w .... It.eleas •• , The City prepares news releases for local
papers and magazines concerning waste management issues and
waste reduction efforts.
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OTHER RELATED INFORMATION SO~~CES
a~ P~DID.ul. COA8ervation center (pee): The pee has available
for UI!U! .2IIIt the PCC library the "Recycled px-oducts Guide~ II
yhich is updated quareerly. In aodition, suhscriptions can be
ordsred through the PCC. The Guide contains information on
products made from recycled conS\lmer proOucts , office
products, construction materials, industrial commodities, and
more. pec also gives annual awards to bu&ine&ses fo"'("
environmentally responsible proje.cts, including recrcling and
.ouree reduction activities. pee sponsors bl:oyn bag se-mir.ars
{or people interested. in waste reduction and other
environmental issues. 'Ihe ongoing lecture series covers wa.ste
reduction programs, including recyclinq and source reduction.
The pee has also formed the Business Environmental Network,
which sponsors workshops on different aspects of business
rec.ycling.
b. 8&!lta Clu. CQ\Ulty Kanuraetl!Jdllq Gro\lp: The Santa Cli,ra
county Kanu,~acturin'3 Group publishes a recycling quide tor
bUsinesses that emphasizes the importance of waste reduction
and identifies how tc implement a recycling program a:1d
resources available to assist 'Wi th locating recycled pr-cdlicts,
markets I and technical assistance.
c. center tor .Develop.ent of Recycling' (CDR): CDR is a non
profit research and information center located at San Jose
state University. It pro ..... ides inforl!lation to the public about
recycling opportunities, and compiles research for qovernment
or businesses on solid waste issues. CDR waG initially formed
through a partnership with the City of San Jose.
d. au,in ••• BDvironaental •• twork {SEN): BEN i~ affiliated with
pce and provides a network for businesses in San~a Clara and
San Mateo Cour.ties: Oll environmental issues. They provide
seminars, lect\lres l and ..... orkshops as __ ell as a monthly
newsletter to thei~ members.
Ftrr'JRE PUBLI CI T"i EFFORT S
4. COOrdination _tth the COUDt~ of Banta Clara: The city will
participate in public education and technical assistance
efforts organized by the County of Santa clara. The City of
Palo Ai to pays :fees to the county of Santa Clara :based on
tonn~qes of solid ~~ste disposed. These fees support
countywide solid waste management activities.
r.. H ••• letter: The City is .. ·orkinq with a conSUltant to develop
a newsletter that contains information on solid waste issues.
c. Speakers BUr.au: The City is organizing a speaker-s bureau
that ~ay include Volunteer speakers for solid 'Waste issues.
The list of speakers will be distributed to community groups,
schools, businesses, government offices, and churches
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interested
management.
tile "Publ ic
seotion. )
in sponsoring a 'Workshop or seminar on waete
(This effort will be a more formalized version of
Preser.tation" prog,ram listed in the previous
STAFFING AND BUDGET
Work on the commercial/industrial recycling program is done by the
Recrcling Coordinator, two Program Assistants, the P!"oject
C(~rdinator, and the Solid Waste Manage~. Estimates of staff time
for new or expanded proqram implementation: .-4 person years for
expansion of commercial/industrial recyclinq progr~msj ,05 person
years tor work involving the SMaR'l' Station; 1.0 person years for
education and public information; and .05 person years for
wanaqement of nev cvmmercial/industrial recycling programs. The
total of 1.5 person years of commercialj industrial recjo'cling 'Work
will be divided among the five staff positions ~lready mentioned.
The Source Reduction and Rec~rclin9 Element (SRRE) costing section
esti~ates that $260,000 ~ill be used for planning and capital costs
for new comlllerciaijindustrial rec~icling programs. Annual operating
costs are estimated to be $513,000 to $542,000; and $133,000 is the
projected amount per year fer program revenues. All new equipment
for expanded programs will be purchased by the Palo }.lto sanitation.
Company (PASCO).
B_efuse Collgction Fees
The Palo Alto refuse collection rates are set by t~e City Council.
It is City policy that the Refuse fund be operated on a cost
recovery basis f.or any cor;;ts related to solid waste activities.
This includes all refuse collection services, recycling programs,
landfill operation, street sweeping, litter pickuPI state and local
environmental mandates (including household hazardous waste
programs), refuse fund capital improvement projects, conversion of
t,he refuse disposal area to Syxbee ParK, and the State requjred 1.5.
~O year post-Closure environm~ntal maintenance fund. In fiscal
year 1991-92, the Refuse fund will generate approximately $1).3
millic·n dollars for solid waste activities; of the $13~J million,
$5.1 million or approximately 38 percent will be paid to Palo Alto
sanitation Compar.y {PASCO) for all refuse collection services,
compost collection program, residential and commercial recycling
programs, and c~llection a~d cleaning of all public trash
receptacles.
The balance, $8.2 million (62%), is reta~ned by the City for the
solid waste progra~s (Attachment A) ~n addition to PASCO's
services. In 1993. the City will begin disposal of approximately
tYo-thiras of its refuse at Kirby canyon Landfill in San Jose. The
costs for this transfer and handling wi 11 result in significant
increases to the refuse collection rates.
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The city of Palo Alto has an exclucive collection aqreement for
refuse with PASCO, in .... hich PASCO also p=ovides commercial;
indu,stri.oJtl recycling programs. Businesses are permitted to
directly sell source-separated materials, but cannot hire outside
firms t.o provide "mixed recycl.el::lle w collecti-on or other refuse
services, unless they 'Work as a subcontractor to PASCO. This
exclusive agreement aS6u~es tnat the City bills and collects the
fees for solid waste services~ and that anyone proposing to offer
these services is under the Same contractual oDligation as PASCO~
Mix~d Recycling Programs
Businesses in Palo Alto have been approached by firms. offering
"mixeci recyclables l1 collection. The programs offered by various
firms are packaged in vary appealing terms to businesses. They
offer siqnificantly lo~er collection rates than tha City charges,
whiCh translates into direct savings for busine;sses, end they
require. no separation of materials> Host of th.e finns otEering
"mixed recycling" services are in the refuse collection business.
Basically, a firm ~ill approach commercial/industrial companies and
propose to collect all materials unsorted, .ith the exception of
food waste. This unso~ted material is then sometimes sorted for
recyclables, and the residue is disposed. Three or four companies
in Stan.ford Research Park area have been approached by a firm.
proposing "mixed recycling-services. The company requests a copy
of the custOmEr's qarbaqe bill; then proposes to offer "mixed
recyclinq" services for approximately 20-30 percent less than the
total City hilling, stating the revenues t~om recyclables allows
reduced costso In comparing the City's refuse billing to 3 "mixed
.recycling" proposal, the proposer compares the total bill and not
the 38 percent vhicn is for refUse collection. If the billing for
mixed recycling services were compared to just refuse collection
services, the mixed recyclinq would cost 32 percent more~
staft met on two or three occasions with a representative of a firm
proposing "'milf.ed recycling" services in an attempt to evaluate
their services. They did not provide staff 'With a copy of any
proposals made to busin~sses in Palo Alto, nor did they provide a
published rate sheet for the types and frequency of s~r~ice6o They
did not propose to offer their service~ to ~ business deSiring
this type of collection, but limited t~eir offer to the largest
qenerators (and coincidentally) the firms with the biggest refuse
bills. When staff requested a copy of a "mixed recyclinq"
agreement, they provided a "Non-Exclusive Franchise Agreement Fer
Hauling Industrial Refuse W with the ci~y of Santa Clara.
City and PASCO staff attended a California Resource Recovery
Association meeting in Hountai~ View in December 1991 and in an
effort to work ~ith "miked recyclers·, offered to collect "mixed
recyclables" using PASCO equipment and making it available at a
single location {the landfill) Eor pickup by a mixe.d recycling
firm. staff felt this minimized transportation costs to various
sites in Palo Alto by the firms proposing "mixed recyclinq,-Not
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one firm has. expressed any !nterest in 'Caking this material for
free. When staff offer~d to have PASCO deliver "mixed recyclable"
loads free of charge to the San Jose firm which had approached
businesses in Stanford Research Park, and allow the fire to retai~
100 percent of the rav~nues trom recyclaole ~aterial, they refused
~nd wanted to charge a process rate. Staff has oftered a nu~ber of
"mixed recyclers" the opportunity to work as a subcontractor to
PASCO. This 'Would assure all billings f.or services 'Would be
received and distributed by the City. No firms have indicated an
interest in working 'Within that frQme~crk.
alxed Recycling Pilot Progra~
Tn :May 1991, the City Manaqer ~uthoriz~d Puhlic wcr}.:s statf to
perform a pilot proqram to collect "mixed recyclablE"'s" for a SO-cay
period to determine the costs and be~efits of a program to collect
unsegregated materials. SUl'l Microsystems Inc. (Palo Alt.o) 'Was
selected for the pilot program. The material collected 'Was
transported by P;\SCO to the Bro'Wning Ferris Industries (BFI)
Recyclery in San Jose~
On May 16, 1991, PASCO performed a waste audit to determine the
size and frequency of bin service required to keep "wet -wastes'"
(food r kitchen scraps) separ6te from ~aterial intended for a "mixed
re-::yclable" compactor. As a result of the survey, PASCO added a 4-
yard container on a five times per week collecticn schedule, and
changed their existing 30-yard compactor to "on-c~ll" servic~
dedicated to "mixed recyclables.-
On May 23, the compactor was surveyed to determine the amount of
recycla:bles and level of contamination. Four to five yaJ:-ds of 'Wet
wastes were founQ in the container including food scraps, coffee
grounds, used disposable food utensils, food packaging, bathroom
garbage, cigarette butts and ashes, HVAC air filters, plants and
dirt.
The containments represented 10-15 percent of the entire load; and
due to contamination, the entire lo~d was unaccep~able for ~mixed
recycling~ :by BFI. A letter was sent to Sun Microsystems on May 27
with this information, explaining the necessity for minimizIng this
type of material. Subsequent loads collected during the pilot were
much cleaner than the first.
A total of seven compactor collections ~ere made during this pilot
proqra:ct. The first pull has been discussed in the preceding
paragraph; the second and last pull were taken to the Palo Alto
Recycling Center to a~dit the amounts of ~he recycled materials in
the compactor. The third "I:hrough sixth pulls were taken directly
to the 8FT Recyclery in San Jose for sorting~ Results were:
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Ml. l2An: CONDrno"'" TA.RE ;,\{f.IQ!-iI ~~ ~ill r.a.sCQ H...u! !NG COlit IQIM..J;Qill
6/26 dirty 2,11cn. W70Q 00 135.00 34::,OC
• 712 ,w 1" wra 1711,55 2iAS 148.5<)· 2.3,",,05 , 7116 <irty :.6 telll 207.00 00 l.q:,,~ 355.50 • 7". ow '(,0 toNi 166 30 40,70 148 50"' 31440
~.OO hour increase on July 1, 1991 -refuse rate increas~ 30%
The cost for this -mixed recyclinq" pilct proqram vas 92 percent of
the disposal fee char-qed by BF r at the faci 1i ty, and the cleanest
loads of mixed recyclables still cost 88 percent of .. hat BFI r s
disposal fee at the landfill would have been.
The costs of t.his pilot proqra!!l. (EF! fees and PASCO haul costs) did
not include costs for the City's other solid waste programs.
WWe AtKIn (performe('l by!.tafi' on 2nd and 7th pu!I,)
cardboard
wb ite ledger
mixed paper
""Iorod ledger
polY")Tene
mise. pl.astic
g.mage
Pilot swr.:mory
W~jght
(Per cubjc nc'
66
450
400
435
20
20
200
7S.8
3.3
3.6
1.1
5.6
L1
8.9
Imal Cubic..l..iU1
68
3 • I
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The results of this pilot demonstrated that only 28 percent (2 of
7) of the pulls were c!ean enough to be recycled, and i2 percent of
the material 'Would be classified as qarbaqe~ BFI staff stated that
the "clean" loads still contained ma1"lY contaminants.
Whi te ledger paper, cardboard, and polystyrene could have been
col 1 ect.ed separately under other programs offered by PASCO
(polystyrene would have to be dropped off by the customer at one of
four polystyrene collection centers in the City), 01" through a
source-separated materials broker. By performing source separation
of materials, the quality and marketability of the material """ould
increase Significantly.
source reduction is the method that the California Integrated Waste
Management Board (CIWMB) has placed at the top of the integrated
W'aste lIanagement hierarchy~ Unlike recycling, source reduction
activities worx to reduce or prevent waste from entering the waste
stream, thus eliminating processing for recyclables (and associateQ
costs) ~
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Source-neparate:d recyclinq progra:!:'is place tl".e responsibili ty on the
glener.ator, 'Which furthe.r encourat;es source reduction activities.
The cost for source-separated recycling programs is incurred by the
individual or business generating the refuse, not the rate payinq
group at la~ge~ If there are any dramatic decreases in revenue a
from co::nmerciall industrial customers usi...ng mixed recycling
services, the loss .·ould be trar.sferret! to the residential rate
payers.
The City has achieved a 29 percent reduction in waste f.Lom the
residential sector through source-separated and source reduction
activities. OUr SAAR objective fot' commercial/industria.l recyclinq
i6 to increase the current 11 perc~nt to 30-40 percent, which is
achievable if all bu:iinesses "Work to reduce -waste qenerated~ Mixed
recycling pr-Dgrams discouraqe source reduction by providing little,
if any, incentive to chanqe procurement policies I packaqing, and
individual habits~
R~spectfully submitted,
)II CilAEL H. )II LLER
Deputy Director,
~blic Works 6perations , . • /" ,/ ~/ ----{,
//-v'-<--<--'"-./'
J1JNl! FLEMING
'As~istant City
'-/'
Manager'
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DAVID G. ADA,l oIS
Dir~ctor of Public Wo~ks
AttacluDent A: Table I -1991-92 Use of Funds
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Attachment .\
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Pt"rcent of 1 Program$und/QescriptjOD ~ llea} Rev"'fme
PAYMENTS TO PASCO $.5,185,066 39 • RefLi.Se Co!l~ti(1Q
• Co,DPO:it CoHee: -Ro::sid;:r.tiaI
II· Recycling Collection -CommerdalfRe.;identiaJ
• Publ ic T~ Receptacle';
(! 87 receptacles empti~ oc the average
Oftw[ce per week)
lANDFlLI.RENT 2,68 7 ,000 20 • Paid To Ger.eraI Fund
ALLGC:A TED OVt:RHEAD S65,815 07 • An 3900 Categories.
LA. "DFlLL ClOS URE FUND 56S,OOO 04 .. State Mandsted
ADMINISTRATh'E/GENERAL PROGRAM 463,209 03
UATERlAL RECOVERY PROGRAM 475,679 04 • City Recycl iog and Compost
(1501;;: P.R. AB 939, brochures, etc.
3 pcxitions; 2 at 120,(00)
STREET SWEEPL'IG PROGRAM 64(),737 05 • AIl Sweeping
• Liner Pickup
DISPOSAl OPEltHJONS aOGRAM 953,692 07
ENVlRONMENTAL CONTROLS PROGRAM
• Household Hazardous W.asi:e
1,362,428 10 , • City-Gener.ned HuWaste (Cnyw[de)
• All Environmental Monitoring at LmdfiIl
(water sampling, leacltar:e,
waste di5charge permit)
• State!Loca.i Garbage Tues
State H3Z'.I.,aste and Disposal Taxes
SYSTEMS IMPkOVEMEI,. 154,000 01 • Dirt/Asphalt (lntennediate)
• Well Maintenance and construction, etC_
113,355,626 100%
DAVE ,"'Elil
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