HomeMy WebLinkAbout2019-08-20; City Council; Resolution 2019-145RESOLUTION NO. 2019-145
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF CARLSBAD,
CALIFORNIA TO ACCEPT THE SUSTAINABLE MATERIALS MANAGEMENT
PLAN.
EXHIBIT 1
WHEREAS, California State laws related to solid waste and sustainable materials management,
which includes recycling, continue to be added and amended and include requirements intended to
reduce the amount of greenhouse gas {GHG) emissions resulting from organic materials discarded in
landfills; and
WHEREAS, City Council accepted the Carlsbad Community Vision in January 2010, which
identifies environmental sustainability as a core community value, and the city's General Plan includes
goals and policies that promote environmental sustainability, including ethics of conservation, waste
reduction, recycling and sound procurement decisions; and
WHEREAS, Sustainable Materials Management specifically addresses the environmental aspect
of sustainability, comprised of a systematic approach to using and reusing materials more productively
over their entire lifecycles, in which waste from one activity becomes a resource for another; and
WHEREAS, Sustainable Materials Management represents a fundamental shift from waste
management to materials management and can lead to the reduction of GHGs from within the city,
thus lessening Carlsbad's impact on climate change; and
WHEREAS, Sustainable Materials Management seeks to reduce consumption of raw (virgin)
materials in production of new materials and products, minimize generation of materials (source
reduction), maximize productive use of materials that are generated by reusing and/or repurposing
those materials, and then minimize the amount of materials that are ultimately disposed when they
reach the end of their useful life; and
WHEREAS, the proposed Sustainable Materials Management Plan contains specific policies,
ordinances, programs, services, service provider contractual requirements and facility capacity that the
city should pursue to ensure compliance with all solid waste regulations currently in effect, achieve
compliance with all Senate Bill {SB) 1383 (Short-Lived Climate Pollutants Methane Emissions: Organic
Waste Reductions) requirements, and establish sustainable materials management systems
throughout the city.
August 20, 2019 Item #14 Page 4 of 129
NOW, THEREFORE, BE IT RESOLVED by the City Council of the City of Carlsbad, California, as
follows:
1. That the above recitations are true and correct.
2. That the City Council accepts the Sustainable Materials Management Plan (Attachment
A) and supports its proposed phases: 1) ensure compliance with all solid waste
regulations currently in effect, 2) achieve compliance with all SB 1383 (Short-Lived
Climate Pollutants Methane Emissions: Organic Waste Reductions) requirements, and
3) establish sustainable materials management systems throughout the city.
PASSED, APPROVED AND ADOPTED at a Regular Meeting of the City Council of the City of
Carlsbad on the 20th day of August 2019, by the following vote, to wit:
AYES:
NAYS:
ABSENT:
Bhat-Patel, Blackburn, Schumacher, Hamilton.
None.
Hall. 7/u4 w-~tJJ
~o< MATT HALd, Mayor
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~RBARA ENGLESON, City Clerk
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City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
Definitions
Alternative Daily Cover (ADC) -Material, other than soil, that is used to cover waste at a
landfill, including green waste.
Anaerobic Digestion -A series of biological processes in which microorganisms break down
biodegradable material in the absence of oxygen. One of the end products is biogas, which is
combusted to generate electricity and heat, or can be processed into renewable natural gas
and transportation fuel.
Bulky Waste -Solid waste that cannot or would not typically be accommodated within a solid
waste cart. Bulky waste includes furniture, appliances, mattresses, wood and lumber.
CALGreen -California's green building regulations.
California Product Stewardship Council -The California Product Stewardship Council
(CPSC) is a network of local governments, non-government organizations, businesses, and
individuals supporting policies and projects where producers share in the responsibility for
managing problem products at their end of life.
CalRecycle -The California Department of Resources Recycling and Recovery is a branch of
the California Environmental Protection Agency that oversees the state's waste management,
recycling, and waste reduction.
Capture Rate -The percentage of generated secondary materials actually recovered from a
household or business.
Coast Waste Management -The city's contract hauler.
Construction and Demolition (C&D) Debris -Solid waste that is directly related to
construction, remodeling, repair or demolition activities. Common C&D materials include
lumber, drywall, metals, masonry (brick, concrete, etc.), carpet, plastic, pipe, rocks, dirt, paper,
cardboard, or green waste related to land development.
Covered Generators -Commercial accounts that must comply with AB 341, AB 1826, and SB
1383 based on weekly solid waste or organic material service volumes (weekly cubic yards).
Disposal Bans -Bans that prohibit the disposal of specific materials (e.g., green waste and
construction and demolition debris.
Diversion Rate -The percentage of generated materials that are recovered rather than
disposed and includes green waste that is used as alternative daily cover.
Diversion -A term often used interchangeable to describe recycling.
E-Waste -Anything with a plug or battery (e.g., computers, televisions, radios).
Extended Producer Responsibility (EPR) -A mandatory type of product stewardship.
Green Waste -Also commonly referred to as "yard waste" is any vegetative matter resulting
from normal yard and landscaping maintenance. Green waste includes plant debris, such as
grass clippings, pruning, weeds, branches, brush, and other organic waste normally produced
from gardens or landscape areas.
Definitions
and
Acronyms
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Definitions
and
Acronyms
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste ta Managing Materials
Household Hazardous Waste -Hazardous waste generated at a residential property.
Life Cycle -A series of stages through which something (such as an individual, culture, or
manufactured product) passes during its lifetime.
Material Bans -Also known as Product Bans, are bans on the use of certain materials in a
jurisdiction (e.g., plastic bags).
Organic Waste (Organic Materials) -As defined in SB 1383 "Organic waste" means solid
wastes containing material originated from living organisms and their metabolic waste
products, including but not limited to food, green material, landscape and pruning waste,
organic textiles and carpets, lumber, wood, paper products, printing and writing paper,
manure, biosolids, digestate, and sludges.
Personal Care Products -Pharmaceutical and Personal Care Products (PPCPs) comprise a
broad and diverse collection of thousands of chemical substances including unused or expired
prescription medications, over-the-counter medications, therapeutic drugs, fragrances,
cosmetics, sun-screen, diagnostic agents, natural health products, veterinary drugs and growth
enhancing chemicals used in livestock operations.
Product Stewardship-A strategy whereby manufactures and other along the product supply
chain share in the financial and physical responsibility for collecting and recycling products at
the end of their useful lives.
Product Stewardship Institute (PSI) -A national, membership-based nonprofit committed
to reducing the health, safety, and environmental impacts of consumer products across their
lifecycle with a strong focus on sustainable end-of-life management.
Recovered Organic Waste Products -Products made from California, landfill-diverted
recycled organic waste processed in a permitted or otherwise authorized facility.
Recovery -A term often used interchangeable to describe recycling.
Recycling -The action or process of converting waste into reusable material.
Recycling Rate -The percentage of generated materials that are recovered rather than
disposed and unlike the Diversion Rate, does not include green waste that is used as alternative
daily cover.
Recovered Organic Waste Products -Compost and/or renewable transportation fuel made
from organic material recovered from the waste stream, as defined in SB 1383.
Republic Services -The city's contract operator of the Palomar Transfer Station.
Roll-Off Service -Service provided using containers typically varying in size from 10 to 40+
cubic yards. Roll-off containers are designed to be transported by special roll-off trucks, and
are commonly used to contain loads of construction and demolition waste, dirt and concrete,
and other types of waste.
Sharps -Devices with sharp points or edges that can puncture or cut skin (e.g., needles).
Source Reduction -Also referred to as Waste Prevention (or waste reduction) is the
elimination of waste before it is created (e.g., using a reusable rather than a disposable cup)
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Sustainability I Sustainable Development -The UN World Commission on Environment
and Development defines sustainable development as "development that meets the needs of
the present without compromising the ability offuture generations to meet their own needs."
Sustainable Materials Management -A systematic approach to using and reusing materials
productively over their entire life cycles, where waste from one activity becomes the resource
for another.
Take-Back Ordinances -Ordinances that require retails to take back certain products that
they cell when they have reached the end-of-their useful lives.
Universal Waste I U-Waste -A category of hazardous waste that includes fluorescent lamps,
cathode ray tubes, instruments that contain mercury, batteries, and other items.
Waste Prevention -Also referred to as Source Reduction (or waste reduction) is the
elimination of waste before it is created (e.g., using a reusable rather than a disposable cup).
Acronyms
AD
ADC
C&D
CWM
CRV
EPA
EPR
HHW
PPCP
PTS
RCRA
SMMP
Anaerobic digestion
Alternative daily cover
Construction and Demolition
Coast Waste Management
California Redemption Value
Environmental Protection Agency
Extended Product Stewardship
Household Hazardous Waste
Pharmaceuticals and Personal Care Products
Palomar Transfer Station
Resource Recovery Act
Sustainable Materials Management Plan
Definitions
and
Acronyms
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Definitions
and
Acronyms
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1.1 Sustainability in Carlsbad
The purpose of sustainability in Carlsbad -and its incorporation throughout the city's General
Plan -is for the city to responsibly develop and account for long-term projected population
growth and its potential impact on the environment. By accounting for sustainability in this
process, and particularly with the development and implementation of this Sustainable
Materials Management Plan (SMMP), Carlsbad can reduce its contribution to global climate
change, minimize its reliance on fossil-fuel sources, decrease consumption of natural
resources, promote active living and access to healthy food, and demonstrate its commitment
and leadership in sustainability.
1.2 Sustainable Materials Management Plan
1.2.1 Purpose of the Plan
The purpose of the SMMP is to identify specific policies and ordinances, programs and services,
service provider contractual requirements, and facility capacity that Carlsbad should pursue to
achieve its sustainable materials management objectives. The SMMP is organized into the
following three phases:
Phase 1 Ensure compliance with all state solid waste regulations currently in effect.
Phase 2 Achieve regulatory compliance with all SB 1383 regulations.1
Phase 3 Establish sustainable materials management systems throughout Carlsbad.
Phase 1 and Phase 2
Phases 1 and 2 are both specific to ensuring Carlsbad's compliance with State of California solid
waste regulations. Phase 1 is specific to complying with all regulations currently in effect
(particularly Assembly Bill (AB) 939, AB 341, AB 1826, and AB 1594). Phase 2 is specific to
ensuring Carlsbad's compliance with the regulatory requirements of Senate Bill (SB) 1383
(Short-Lived Climate Pollutants), which largely take effect on January 1, 2022, and address the
management of residential and commercial organics.
Phase 3
Completing Phase 1 and Phase 2 will ensure the city's compliance with all state solid waste
regulations currently in effect. Achieving those goals will also increase the diversion of
materials in the city and increase the city's use of sustainably produced materials. It will not
however result in the establishment of sustainable materials management systems. For that
to occur, the city's efforts need to extend well beyond those necessary to simply achieve
regulatory compliance (i.e., Phases 1 and 2).
For Carlsbad to sustainably manage the materials that are generated in the city there needs to
be significant additional efforts specific to the upstream design and production, consumption
SB 1383 (Short-Lived Climate Pollutants) is undergoing final rule making and it is expected to be
final during the Fall 2019. Once the regulations have been finalized, the relevant SMMP actions
should be reviewed to confirm they are consistent with the final regulations.
Section 1
Executive
Summary
Section 1-1
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Summary
Section 1-2
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
and use, and end of life management of those materials. Phase 3 provides for the development
of sustainable materials management systems in all city government departments and
throughout Carlsbad.
Completing Phase 3 will result in the transformation of the city's current solid waste
management system to a sustainable materials management system, aligning that system
with, and supporting the city's overall sustainability goals, including but not limited to the
reduction of greenhouse gases.
Carlsbad's "Sustainability" core value of its General Plan calls for building the city's
sustainability initiatives to emerge as a leader in green development and sustainability, with
particular focus on water, energy, recycling, and foods. For Carlsbad to be a leader in green
development and sustainability it needs to make major progress toward, and ultimately
complete Phase 3 of this SMMP.
Implementation of Carlsbad's SMMP and its completion of Phase 3 will result in the following:
1. Sustainable materials management systems in all city government departments;
2. Sustainable materials management systems throughout Carlsbad's residential and
commercial sectors, and public areas and venues; and
3. Establishing the city as a leader in sustainable materials management.
1.2.2 Structure of the Plan
The SMMP's "actions" for each of the 3 Phases are presented in the context of the following
three elements of sustainable materials management systems (life-cycle phases), with the
major types of actions associated with each element noted:
1. Upstream Design and Production -Designing and producing sustainable materials and
products that have high post-consumer recycled content and contain no or minimal
raw (virgin) materials, have no or limited packaging, are non-toxic, and are readily
recyclable. Major related actions include:
a. Sustainable Procurement
b. Material Bans2 I Disposal Bans
c. Product Stewardship I Take Back Ordinances
2. Consumption and Use -Consuming and using sustainably produced materials and
products in a manner that is consistent with the hierarchy of waste reduction, reuse,
and recycling. Major related actions include:
a. Waste Prevention I Source Reduction
b. Material Reuse
c. Sustainable Materials Market Development and Support
3. End-of-Life Management -Maximizing diversion of materials and the production of
post-consumer recycled content feedstock for upstream design and production of
sustainable materials (i.e., closing the loop). Major related actions include:
2 Also referred to as Product Bans.
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Section 1
Executive
Summary
Section 1-4
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
Upstream Design & Production
Sustainable Procurement
No action is required
Material Bans I Disposal Bans
No action is required
Product Stewardship I Take Back Ordinances
No action is required
Consumption & Use
Waste Prevention I Source Reduction
No action is required
Material Reuse
No action is required
Sustainable Materials Market Development
No action is required
End-of-Life Management
Diversion Programs
1. Compost the green waste that the city's contract hauler collects or deliver to an
Anaerobic Digestion facility for Processing (AB 939 and AB 1594).
2. Process the construction and demolition (C&D) debris that the city's contract
hauler collects for recovery of targeted materials (AB 939 and CALGreen).
3. Provide commercial organic waste collection services to all commercial covered
generators (AB 1826).3
Regional Advocacy and Support
No action is required
1.3.2 Summary of Phase 2 Actions
The following actions will ensure the city's compliance with SB 1383 requirements, beginning
on Janua ry 1, 2022.
Upstream Design & Production
Sustainable Procurement
1. Annually procure a quantity of "recovered organic waste products" (i.e., compost
and renewable transportation fuel) that meets or exceeds the city's SB 1383
annual recovered organics waste product procurement target.
Covered generators are accounts that are subject to the regulations.
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2. Ensure that at least 75% of city government's annual purchase of paper products
are recycled-content.
Material Bans I Disposal Bans
No action is required
Product Stewardship I Take Back Ordinances
No action is required
Consumption & Use
Waste Prevention I Source Reduction
No action is required
Material Reuse
No action is required
Sustainable Materials Market Development
1. Develop markets for recovered organic waste products and other recovered
products within all city government departments and throughout Carlsbad.
End-of-Life Management
Diversion Programs
1. Implement required residential and commercial organics collection services.
2. Develop required edible food recovery program.
Regional Advocacy and Support
No action is required
1.3.3 Summary of Phase 3 Actions
The various upstream design & production, consumption and use, and end-of-life management
actions listed below all support the development of sustainable materials management
systems in Carlsbad.
Upstream Design & Production
Sustainable Procurement
1. Adopt a city government best practices Sustainable Materials Purchasing and
Procurement Policy.
Material Bans I Disposal Bans
2. Material Bans -Evaluate and adopt appropriate material bans (e.g., single-use
plastics, disposable food ware packaging).
Section 1
Executive
Summary
Section 1-5
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Executive
Summary
Section 1-6
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
3. Disposal Bans -Ban the disposal of green waste and C&D debris at the PTS, and
through the city's residential and commercial collection systems.4
Product Stewardship I Take-Back Ordinances
4. Consider adopting take-back ordinances for products that are difficult or costly to
manage.
5. Advocate for product stewardship and extended producer responsibility (EPR).
Consumption & Use
Source Reduction
1. Identify and realize waste prevention opportunities in all city government
departments.
2. Support waste prevention opportunities throughout Carlsbad.
Material Reuse
3. Identify and realize material reuse opportunities in all city government
departments.
4. Support the expansion of a reuse economy throughout Carlsbad.
Sustainable Materials Market Development
5. Identify and realize opportunities for city government's use of sustainably
produced materials in place of products made from raw materials.
6. Support the development of markets for sustainably produced products
throughout Carlsbad.
End-of-Life Management
4
Diversion Programs
1. Maximize the diversion of commercial recyclables.
2. Maximize the diversion of green waste.
3. Maximize the diversion of C&D debris.
4. Develop prioritized list of other materials to target for sustainable management.
Summarize recommended actions for managing those materials for review by the
city council, and implement approved management strategies.
5. Expand recycling and organic waste collection in city controlled public areas and
venues.
Under such a disposal ban, green waste and C&D debris would continue to be accepted at the PTS,
however facility users would be required to segregate those materials, and the PTS contract
operator would be required to process and divert those materials.
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Regional Advocacy and Support
6. Advocate for and support the implementation of the County's Food Donation
Action Plan for the San Diego Region and pursue enhancements to Carlsbad's food
security infrastructure in conjunction with the development of the city's required
SB 1383 edible food recovery program.
7. Advocate for and support the development of regional markets and processing
capacity for hard to recycle materials for which markets and processing capacity
does not currently exist.
8. Advocate for and support the development of additional local and regional organic
material processing capacity sufficient to manage all of the organic material
generated in Carlsbad and San Diego County.
I
Section 1
Executive
Summary
Section 1-7
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Summary
Section 1-8
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8. High-quality education and community services; and
9. Neighborhood revitalization, community design, and livability.
Specific values that the city has identified as part of the Sustainability core value include:
1. Green Development
2. Water Conservation, Recycling, and Desalination
3. Water Quality
4. Energy Security
5. Recycling, Composting, and Waste Reduction
6. Healthy and Sustainable Food
Envision Carlsbad's Existing Conditions and Issues Exploration includes the following details
about sustainability that were considered when developing this SM MP:
• Waste reduction and recycling -The city supports programs that manage the overall
waste stream of the city and that maximize the amount of waste that is recycled by its
residents, citizens, and businesses. The city promotes the ability to quickly and
conveniently dispose of hazardous waste.
• Efficient transportation and low emission fuel sources -The city believes that
effective traffic management is an important element affecting the quality of life
within the city. The city supports programs that optimize the flow of traffic, the use of
low-emission alternative fuel vehicles, and the increased availability and use of mass
transit and other non-automotive modes of transportation. The city encourages
participation in research programs designed to test and improve alternate fuel
vehicles.
• Sound procurement decisions -The procurement of products and services by the city,
its residents, businesses, and institutions result in environmental, social, and economic
impacts both in this region and the country. Where possible, the city's procurement
systems should support the use of recycled materials and products with low carbon
footprints (low use of carbon or greenhouse gas producing products in the
manufacture, installation, maintenance, or disposal of the product).
Additionally, the city has the following six guiding sustainability principles:
1. Being a model community -Carlsbad desires to be a model community by creating a
sustainable, high quality of life for those who live, work, and play in the city.
2. Creating a sustainable system -Sustainability is based on achieving a long-term
balance among social, economic, and environmental factors.
3. The participation of Carlsbad residents is vital to its success -The city recognizes that
it takes the collective efforts of its citizens to make its vision a reality. Residents have
a responsibility to be informed, involved, and engaged in the development of their
community.
4. A proactive approach to sustainability guides city policy -Carlsbad is committed to
proactively addressing existing and potential community needs without compromising
Section 2
Introduction
Section 2 -3
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Introduction
Section 2 -4
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
future generations. The city encourages staff to participate in research opportunities
that may further its goals of creating a sustainable community.
5. Carlsbad recognizes the local and global impacts of decision making -Local social,
economic, and environmental issues cannot be separated from the bigger picture.
Carlsbad recognizes the interconnectedness of citizens, associations, and communities
and the profound impact that one community's actions may have on another.
6. Developing a sustainable community is based on employing cost-effective programs
-The city recognizes that both financial and staff resources are limited; therefore,
those programs and activities providing the highest benefit to the community and
representing best-cost solutions should be considered.
2.2 Sustainable Materials Management Plan
2.2.1 Purpose of the Plan
This SMMP is intended to be a living document, helping to guide the city, its residents, and
businesses toward more sustainable use of our material resou rces . The purpose of the SMMP
is to identify specific policies and ordinances, programs and services, service provider
contractual requirements, and facility capacity that Carlsbad should pursue to achieve its
sustainable materials management objectives. The SMMP is organized into the following three
phases:1
Phase 1 Ensure compliance with all state solid waste regulations currently in effect.
Phase 2 Achieve regulatory compliance with all SB 1383 regulations.2
Phase 3 Establish sustainable materials management systems throughout Carlsbad.
2.2.2 Structure of the Plan
The SMMP's "actions" for each of its three Phases are presented in the context of the following
three elements of sustainable materials management systems (life-cycle phases), with the
major types of actions associated with each element noted:3
2
3
1. Upstream Design and Production -Designing and producing sustainable materials and
products that have high post-consumer recycled content and contain no or minimal
raw (virgin) materials, have no or limited packaging, are non-toxic, and are readily
recyclable. Major related actions include:
a. Sustainable Procurement
Phases 1 and 2 are specific to the city achieving regulatory compliance and take priority over Phase
3. Once the city completes Phases 1 and 2 its attention and resources will shift to Phase 3.
Those regulations begin to take effect as of January 1, 2022.
These three elements are used by various entities to reflect the el ements of a sustainable materials
management system. The also align with the 5 phases of Environmental Protection Agency (EPA)'s
Life Cycle of Waste Management, as follows: Materials Extraction and Manufacturing = Element
#1-Upstream Design and Production; Distribution and Usage= Element #2 -Consumption and Use;
and End-of-Life Management= Element 3 -End-of Life Management.
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Section 2
Introduction
Section 2 - 6
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
management elements. Appendix 2A provides a summary discussion of those required
actions.
2.2 .3 Sustainable Materials Management Plan Vi sion
Phase 1 -Ensure compliance with all state solid waste regulations currently in effect.
The SMMP envisions the city ensuring compliance with all state solid waste regulations
currently in effect by increased recovery of C&D debris, composting of green waste that the
city's contracted hauler delivers to the PTS, and the implementation of an AB 1826 commercial
organics collection program, supported by required public education and outreach.
Phase 2 -Achieve regulatory compliance with all SB 1383 regulations
The SMMP envisions the city achieving full regulatory compliance with all applicable SB 1383
regulations, as of January 1, 2022, when those regulations largely take effect. This will require
the city to provide SB 1383 organic collection services to all residents and businesses, and
implement an edible food recovery program. The city will also need to complete the required
SB 1383 planning, procurement, public education and outreach, ordinance development,
enforcement, and monitoring activities.
Phase 3 -Establish sustainable materials management systems throughout Carlsbad.
Going beyond Phase 1 and Phase 2 regulatory compliance, the SMMP envisions the city
becoming a leader in sustainable materials management through the development of
sustainable materials management systems in each city government department and citywide.
Carlsbad's city government plans to take a lead role and serve as an example to residents and
businesses with respect to sustainable materials management. In support of that effort,
Sustainable Material Management Strategic Plans will be developed for all city government
departments as part of the development of the SMMP's implementation plan. Those strategic
plans will be based on an evaluation of each department's purchasing and procurement
practices (upstream design and production), consumption and use of materials, and end-of-
life management practices, thereby covering the entire sustainability materials management
life-cycle. The city plans to also actively seek out businesses interested in developing
sustainable materials management "partnerships", and assist those businesses with
developing sustainable procurement, consumption and use, and end-of-life management
practices.
Implementing sustainable materials management systems in Carlsbad will require a rethinking
and restructuring of how city government, residents, and businesses purchase, use, and
manage materials at the end of their useful lives. It will require commitment, hard work, and
a well-designed implementation plan. Effective public education, outreach, technical
assistance, and stakeholder involvement will be critical to success. Through a concerted
commitment to and implementation of sustainable material management principles, the city
can make meaningful progress towards achieving the SMMP's vision.
Overall, Carlsbad's SMMP envisions the following:
• City as a Model -Establishing city government as a model for the greater Carlsbad
community through the implementation of sustainable materials management systems in
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all city departments that incorporate best management practices specific to upstream
design and production, consumption and use, and end-of-life management.
• City Influence on the Greater Community-Establishing specific sustainability expectations
for various sectors of customers {residential, commercial, institutional, and schools) by
developing policies and establishing programs, as well as collaborating with and providing
appropriate incentives to the sectors.
• Upstream Design and Production -Influencing changes in the material extraction,
manufacturing, and distribution of materials to the extent possible within the region by
working with regional manufacturers and industries to effect positive change, while also
supporting policies at the state and federal level.
• Consumption and Use -Providing opportunities to our community to reduce waste,
including reducing single-use items, and developing and expanded reuse economy in the
city.
• End-of-Life Management -Maximizing the diversion of recyclable and organic materials
and supporting the development of regional recycling and organic material processing
capacity.
• Implementation Plan -Developing a detailed implementation plan that reflects the goals
and actions of this SMMP.
• Community Involvement -Including community decision making in the development of
solid waste policies and programs.
• Considers all Definitions of Sustainability -Considering the financial and social impacts of
creating a sustainable materials management system and reducing the impact to sensitive
communities.
2.2.4 Supporting Pub lic Education, Outreach and Technical Assistance
Program
Public education and community outreach will play an important role in Carlsbad's sustainable
materials management planning and implementation. This is particularly true with respect to
building community support for high diversion programs, and establishing sustainable
materials management systems. To build that community support, community public
education and outreach should start early, involve the community in making important
decisions, use Carlsbad's local traditions and culture to increase the impact of those efforts,
and keep the community involved through public meetings, newsletters and public
announcements.
The SMMP envisions that Carlsbad's overall sustainable material management efforts will be
supported by a comprehensive Sustainable Materials Management Public Education,
Outreach, and Technical Assistance Program that supports the required and planned SMMP
actions. Appendix 2B provides an overview of the city's current public education and outreach
efforts and recommendations for improvement, along with examples of successful public
education and outreach programs in other jurisdictions.
Section 2
Introduction
Section 2 - 7
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Section 2
Introduction
Section 2 - 8
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2.2.5 Key Items Needed for Implementation
Actions specific to each of the SMMP's three Phases can begin immediately, with a target date
for substantial completion of Phase 1 by July 1, 2020, and Phase 2 by January 1, 2022. The later
date corresponds with CalRecycle's timeline to begin enforcing SB 1383 residential and
commercial organic recycling requirements.4 Key items that must be implemented include the
following:
• Develop an Implementation Plan for this SMMP
• Adopt a Best Practices Sustainable Materials Purchasing and Procurement Policy
• Implement changes to collection contract and PTS operating contract
• Adopt city ordinances to support this SMMP
Additional resources, including staffing and funding will be needed to complete the SMM Plan
Phases.
2.2 .6 Performance Metrics
Establishing performance benchmarks, measuring progress against those benchmarks, and
identifying opportunities for improvement is the foundation of an effective management
system. For purposes of gauging the effectiveness of Carlsbad's progress toward its sustainable
material management objectives, performance metrics should be identified, and performance
should be tracked relative to the established metrics. Appendix 2C provides an initial list of
recycled content material procurement metrics, and diversion metrics, which should be
reviewed and adjusted as appropriate as the SMMP is implemented.
2.3 Federal (EPA) Sustainable Materials Management
Planning
The United States Environmental Protection Agency (EPA) is responsible for protecting human
health and the environment. As such, the department develops laws and regulations, resource
guides, specific programs to address aspects like clean air and water, and also enforces policy.
The Resource Conservation & Recovery Act (RCRA) provides the legislative basis for EPA's.
Sustainable Materials Management Program, setting a strong preference for resource
conservation over disposal. EPA's 2002 report, Beyond RCRA: Waste and Materials
Management in 2020 made the argument for focusing efforts on materials management. One
of the findings of that report was the need for society to shift focus away from waste
management toward materials management.
The EPA's 2009 report, Sustainable Materials Management: The Road Ahead, provided
recommendations and an analytical framework for moving toward sustainable materials
4 Certain other SB 1383 requirements become effective at a later date (e.g., January 1, 2024).
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management. In October 2015, the U.S. EPA's Sustainable Materials Management Program
Strategic Plan was issued {Appendix 2D), which included the following objectives:
■ Decrease disposal rate -Track and reduce the overall amount of materials disposed,
which encompasses activities targeting source reduction, reuse, recycling, and
prevention;
■ Reduce environmental impacts of materials -Reduce the environmental impacts of
materials across their life cycle, including reduced greenhouse gas emissions and water
and energy use;
■ Increase socio-economic benefits -Track and report material impacts on the economy
as well as social aspects; and
■ Increase capacity of state and local governments, communities, and key
stakeholders to adopt and implement sustainable materials management policies,
practices, and incentives -Increase the number of states and communities where
sustainable materials management capacity has been expanded as a result of the EPA's
technical assistance and support. It also involves increasing the per capita quantity
and/or quality of recyclables recovered for manufacturing and increasing the number
of households with access to organic collection and recycling.
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3.1 Introduction
Completing Phase 1 of this SMMP will ensure the city's compliance with state solid waste
regulations currently in effect. Completing Phase 2 of this SMMP will ensure the city's
compliance with SB 1383 regulations, effective as of January 1, 2022. The following five (5)
pieces of legislation are the most impactful to the development the city's solid waste
management system. The first four relate specifically to Phase 1, the fifth (SB 1383) applies to
Phase 2.1
AB 939 Integrated Waste Management Act (1989)
AB 341 Mandatory Commercial Recycling (2011)
AB 1594 Green Use as ADC (2014)
AB 1826 Mandatory Commercial Organics Recycling (2014)
SB 1383 Short-Lived Climate Pollutants (2016)
This section includes relevant legislation, details related to material bans and extended
producer responsibility.
3.2 Major Impacting Legislation
3.2.1 AB 939 -Integrated Waste Management Act
Overview
AB 939, among other things, established an integrated waste management hierarchy to guide
the California Integrated Waste Management Board and local agencies in implementation, in
order of priority: (1) source reduction, (2) recycling and composting, and (3) environmentally
safe transformation and land disposal. AB 939also required each city and county to develop a ·
plan (i.e., Source Reduction and Recycling Element (SRRE)) to divert 25% of all solid waste from
landfill or transformation by January 1, 1995 through source reduction, recycling, and
composting activities, and percent by January 1, 2000. Local agencies report back their
progress in achieving waste diversion annually via the Electronic Annual Report (EAR).
Impact on City
While the City is currently in compliance with the 50% minimum diversion requirement it will
lose the diversion credit it is currently receiving for its green waste that is currently used as
alternative daily cover (ADC) as of January 1, 2020. At current levels of ADC use, and assuming
all other solid waste diversion factors remain the same, the city's recycling rate will fall below
AB 939's 50% minimum diversion requirement at that time unless corrective actions are taken
(e.g., the city's green waste is composted or anaerobically digested so that it retains the
diversion credit for that material).
A complete accounting of California solid waste legislation can be found on CalRecycle's website at
https://www .cal recycle .ca .gov/laws/legislation/ calh ist.
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3.2.2 AB 341-Mandatory Commercial Recycling
Overview
AB 341 (1) requires Cal Recycle to issue a report to the Legislature that includes strategies and
recommendations that would enable the state to divert 75 percent of the solid waste
generated in the state from disposal by January 1, 2020; (2) requires businesses that meet
specified thresholds in the bill to arrange for recycling services by January 1, 2012; (3)
streamlines the amendment process for non-disposal facility elements, by allowing changes
without review and comment·from a local task force; and (4) allows a solid waste facility to
modify their existing permit, instead of having to undergo a permit revision, under specified
circumstances.
Impact on City
AB 341 requires all multifamily residential properties (with 5 units or more) (regardless of solid
waste generation) and businesses that generate four (4) cubic yards of solid waste per week
to sign up for recycling collection service (covered generators). CWM currently offers
commercial recycling services to all commercial businesses, including AB 341 covered
generators.
Phase 3 of the SMMP goes beyond AB 341 requirements with the implementation of universal
commercial recycling serviced for.all commercial accounts, not just covered generators.
3.2.3 . AB 1594-Green Waste Used as Alternative Daily Cover
Overview
Provides that the use of green material as alternative daily cover is disposal and does not
constitute diversion through recycling, as of January 1, 2020. (Chapter 719). Green material
can continue to be used as alternative daily cover (ADC), however it will not count as diverted
material.
Impact on City
The majority ofthe green waste collected by CWM in Carlsbad is used as ADC, which does not
qualify of diversion as of January 1, 2020. At current levels of ADC use, and assuming all other
solid waste diversion factors remain the same, the city's recycling rate will fall below AB 939's
50% minimum diversion requirement as of January 1, 2020.
3.2.4 AB 1826 -Mandatory Commercial Organics Recycling
Overview
AB 1826 requires commercial businesses to arrange for recycling services for organic waste.
Local jurisdictions are also required to adopt an organic waste recycling program.
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Signed by Governor Brown in 2014, AB 1826 requires commercial businesses and multi-family
properties2 to implement organics recycling programs for the diversion of organic waste3 from
landfills.
Under AB 1826, local jurisdictions are required to implement an organics recycling program
appropriate for that jurisdiction, designed specifically to divert commercial organic waste. AB
1826 implementation includes the following four local jurisdiction requirements:
■ Identify Covered Generators Component -Identify commercial businesses and multi-
family properties (collectively, "covered generators") that must comply with the
regulations of AB 1826;
■ Organics Recycling Service Component -Ensure that organics recycling services are
available to all covered generators;
■ Education and Outreach Component -Conduct education and outreach to covered
generators about the state law and how to comply; and
■ Compliance Monitoring Component -Identify covered generators that are not in
compliance and inform them of their requirements and how to comply.
Impact on City
In accordance with AB 1826, Carlsbad must develop a full scale commercial organics recycling
program. The city has conducted a review of options with its contract hauler and the PTS
contract operator. The city has also been collaborating with the San Diego Association of
Governments (SANDAG) Solid Waste Technical Advisory Committee on regional planning for
required infrastructure, programs, and best practices for food waste reduction, and diversion.
The city also conducted a Food Waste Reduction and Recycling Pilot Program, and city staff
worked with the County of San Diego to develop a Food Donation Action Plan for the San Diego
region.
3.2.5 SB 1383 -Short Lived Climate Pollutants
Overview
SB 1383 (1) codifies various aspects of the California Air Resources Board's Short-Lived Climate
Pollutant Plan; (2) requires the California Energy Commission to develop recommendations to
increase the use of renewable gas; (3) sets organics disposal reduction targets; and, (4)
provides CalRecycle the regulatory authority required to achieve the waste sector aspects of
the Short-Lived Climate Pollutant Plan.
Passed in 2016, the bill aims to reduce Short Lived Climate Pollutants, or "Super Pollutants",
emitted in the state, including methane from the waste sector. SB 1383 sets a goal to reduce
organic waste by 50% from the 2014 level by 2020 and 75% from the 2014 level by 2025.
Additionally, the bill establishes a target of recovering 20% of currently disposed edible food
for human consumption by 2025.
For the purposes of AB 1826 compliance, a "multi-family property" is defined as a multi-family
dwelling that consists of five or more units. Multi-family dwellings that consist of four units or fewer
are exempt from all provisions of the law.
Organic waste, which is regulated under AB 1826, means food waste, green waste, landscape and
pruning waste, nonhazardous wood waste, and food-soiled paper waste that is mixed in with food
waste.
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SB 1383 Article 16 (Administrative Civil Penalties for Violations of Requirements of this
Chapter), requires that jurisdictions adopt an ordinance or enforcement mechanisms to
impose penalties for violations that are equivalent to or stricter that those amounts specified
in the Article, and as described further below.
Violations for property owners and organic waste generators include, but are not limited to
. the following:
■ Failure of property owners to provide or arrange for organic collection service (i.e.,
100% service subscription);
■ Failure of organic waste generators to prohibit their employees from placing organic
waste in a container not designated to receive organic waste (i.e., 100%
participation/capture rate);
■ Failure of organic waste generators to pe riodically inspect waste containers for
contamination and inform employees if containers are contaminated; and
■ Failure of edible food generators to arrange to recover edible food.
Jurisdiction imposed fines for these and certain other violations are structured in three levels:
■ Level 1 (first violation) -$50-$100 per violation, per day.
■ Level 2 (second violation) -$100-$200 per violation per day.
■ Level 3 (Third and subsequent violations) -$250-$500 per violation per day.
Article 16 also establishes penalties that Cal Recycle may impose on jurisdictions for failure to
comply with requirements, including the following:
■ Failure to implement required residential and commercial organic collection services;
■ Failure to conduct required route audits and monitor containers for contamination;
■ Failure to adopt required ordinances or similar enforcement mechanisms;
■ Failure to enforce required ordinances or similar enforcement mechanisms;
■ Fa il ure to implement a required edible food recovery program;
■ Failure to provide required public education;
■ Failure to comply with required CALGreen building standards;
■ Failure to keep required records; and
■ Failure to provide required reports.
Jurisdictional penalties related to the above requirements are structured in three levels:
■ Level 4 (first violation) -$500-$2,500 per violation, per day.
■ Level 5 (second violation) -$1,000-$5,000 per violation per day.
■ Level 6 (Third and subsequent violations) -$5,000-$10,000 per violation per day.
SB 1383 also establishes penalties for haulers, including self-haulers, and other entities.
Impact on City
SB 1383 requires jurisdictions, including Carlsbad, to take a wide range of specific actions,
including:
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• Imposing subscription, source separation, and education requirements and associated
penalties on organic material generators including businesses and multi-family
customers;
• Meeting certain targets for procurement of end-use organic waste products internally
and/or as a requirement on contractors and/or haulers;
• Engaging in annual outreach efforts to organic waste generators, outreach to edible
food generators, and quarterly contamination route monitoring that includes
distribution of contamination tags to customers.
• Requiring edible food generators to donate edible food, and collecting records and
enforcing requirements; and
• Requiring certain self-haulers of organic waste to source-separate, deliver for
diversion, keep records of amounts delivered, and report annually to jurisdictions
(residential self-haulers are exempt).
3.3 Legislative Material bans and Extended Producer
Legislation
3.3 .1 Extended Producer Responsibility
Extended producer responsibility (EPR) is a strategy of holding product developers,
manufacturers, distributors and other material companies responsible for the products that
they are creating and thus putting into the waste stream. Specific strategies can include take-
back programs of certain materials for proper management and disposal/diversion (such as
with pharmaceuticals and sharps), placing a cost on a product for the funding of proper
management of that waste stream (such as with mattresses and carpet) or requiring proper
labeling and instructions on packaging/products. EPR programs add the environmental
costs associated with a product throughout the product life cycle to the market price of that
product.4 EPR legislation is a driving force behind the adoption of remanufacturing initiatives
because it "focuses on the end-of-use treatment of consumer products and has the primary
aim to increase the amount and degree of product recovery and to minimize the
environmental impact of waste materials".5
3.3.2 Material bans
The goal of enacting a product ban is to stimulate the use of products or materials that are
more sustainable by disallowing the sale/distribution of less environmentally-conscious option
from the waste stream and driving attention/incentive (socially, financially, etc.) to the better
option. It is not clear, however, whether substitute products are in fact better for the
environment. Some experts contend that bans do not reduce waste but merely change its
composition, or even create more of it, while others contend that bans provide a greater
4 OECD (2001). Extended Producer Responsibility: A Guidance Manual for Governments. Paris, France.
Johnson, Michael R.; McCarthy, Ian P. (2014-10-01). "Product recovery decisions within the context
of Extended Producer Responsibility". Journal of Engineering and Technology Management.
Engineering and Technology Management for Sustainable Business Development. 34: 9-
28. doi:10.1016/j.jengtecman.2013.11.002.
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benefit of starting or continuing the conversation of proper waste habits, and may motivate
greater change within the industry.
3.3.3 Proposed and Existing Extended Producer Responsibility
Legislation6
Proposed Legislation
SB 54 -Single-Use Plastic Waste: Reduction (Introduced December 11, 2018 )
The goal of this bill is to reduce the amount of single-use plastic in the waste stream by
requiring that CalRecycle develop a scoping plan to address the following regulations: source
reduce, to the maximum extent possible, single-use packaging and products; to source reduce
_ or recycle at least 75% of single-use plastic packing and products by 2030; and to require that
all single-use packaging and products distributed or solid in California be recyclable or
compostable on and after 2030. Manufacturers/distributors of single-use plastic in California
would be required to demonstrate a recycling rate of not less than 20% on and after January
1, 2022 and 40% as of January 1, 2026. This bill has the potential to reduce the amount of
single-use plastic waste entering California's waste stream, polluting our oceans, littering our
local communities and beaches, and costing local governments millions of dollars in cleanup
costs.
Existing Legislation
SB 212 -Statewide Drug and Sharps Take Back Program (2018)
SB 212, which was signed into law on October 1, 2018, and requires entities selling drugs or
home-use medical sharps in California to individually, or in cooperation with other entities,
develop and implement a statewide drug and/or home-generated sharps waste stewardship
plan for the collection and disposal of home-generated drug and sharps waste. For drug
stewardship plans, the plan must have five collection sites per county or one per 50,000
people, whichever is greater. For home-generated sharps stewardship plans, collection is done
through prepaid mail-back containers, for which distribution is made or initiated at the point
of sale with no cost to the consumer. It also requires CalRecycle to adopt specific regulations
no later than January 1, 2021.
AB 1884 -Plastic Straws (2018)
AB 1884, which went into effect as of January 1, 2019, prohibits full-service restaurants from
providing single-use plastic straws to consumers unless requested by the consumer. This
covers full-service dining, but not takeout establishments like fast-food restaurants. The goal
of this bill is to reduce the amount of single-use plastic straws in the waste stream and
particularly was created to address plastic waste in coastal communities and California
beaches. Financial penalties to a restaurant for violations include $25 per day not to exceed
Source: California Product Stewardship Council.
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$300 annually. Several California cities have already adopted ordinances similar to AB 1884,
including Manhattan Beach, which in June 2018 banned plastic straws, stirrers and utensils.
SB 254 -Used Mattress Recovery and Recycling Act (2013)
SB 254, which went into effect on January 1, 2014 is aimed at reducing the amount of
mattresses that end up in landfills as well as reducing the illegal dumping of mattresses. The
bill requires retailers to provide consumers the option to have old mattresses picked up,
requires the mattress recycling organization to develop a state plan for recycling used
mattresses, and prohibits a manufacturer, renovator or retailer from selling in or importing a
mattress into the state under noncompliance circumstances. This bill helped to establish the
website Bye Bye Mattress which helps residents find drop-off locations for" their used
mattresses.
AB 2398 -Producer Responsibility for Carpet {2010)
AB 2398 is a Carpet Stewardship law, signed by the governor of California, on September 30,
2010. The purpose of the law is to increase the diversion and recycling of carpet in the state of
California. As of July 1, 2011, the State began charging a $.25/square yard of carpet sold in
California called the Carpet Stewardship Assessment. Retailers must include the $0.10/sq. yd .
Carpet Stewardship Assessment fee as an after-tax line item on a customer invoice. Unlike
other proposed stewardship legislation that are intended to fund the entire burden of end-of-
life management, this law is designed to find ways to incentivize the growth of carpet
reclamation and recycling and still allow the market to work.
AB 1343 -Architectural Paint Stewardship (2010)
AB 1343 creates a producer managed post-consumer paint recovery program. It requires
architectural paint manufacturers to develop and implement a stewardship plan to reduce the
generation of post-consumer paint, promote reuse of paint, and manage the end-of-life post-
consumer paint in an environmentally sound manner.
SB 346 -Brake Pad Partnership (2010)
SB 346 phased copper out of brake pads sold in California. It was a negotiated agreement with
the producers to stop copper pollution at the source. This measure was the only feasible way
to reduce the single most significant source of copper in urban watersheds, which kills marine
organisms and fatally impairs the viability of salmon and other fish, frustrating State, regional
and local government efforts to meet our water quality objectives in the Bay Area and
Southern California.
AB 1879 -Green Chemistry Program (2008)
AB 1879 required the California Department of Toxic Substances Control (DTSC) under
the Green Chemistry Initiative to adopt, by January 1, 2011, regulations to establish a process
by which chemicals or chemical ingredients in products may be identified and prioritized for
consideration as being chemicals of concern.
AB 2347 -Recycling Mercury Thermostats (2008)
AB 2347 established a shared responsibility program for the recycling of mercury thermostats
and relieved pressure on cash-strapped local governments. This bill took a producer
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responsibility approach for establishing effective mercury recycling collection programs,
allowing Californians to return waste thermostats to retail locations that sell new ones,
establishing convenient collection sites for contractors, and requ iring companies that produce
thermostats to fund the recycling program.
AB 1860 -Unsafe Products: Recall or Warning (2008)
The Product Recall Safety and Protection Act (Act) requires the immediate removal from the
market and notice to consumers for products subject to recall or warnings. The Act also
requires a product manufacturer whose product is subject to a recall and/or warnings to
provide for the safe return of the product to the manufacturer at no cost to the end consumer
or retailer, and requires the manufacturer to properly dispose of the product and not export
the product, or permit the product to be exported, for disposal in a manner that poses
significant risk to the public health or the environment.
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4.1 Introduction
Coast Waste Management (CWM), a division of Waste Management Inc., has an exclusive
contract for the provision of residential and commercial solid waste, recycling and green waste
collection services in Carlsbad. With the exception of residential and commercial recyclable
materials, E-waste, white goods, and a portion the construction and demolition debris
collected by CWM, all franchised materials collected by CWM are delivered to the PTS, which
is operated by Republic Services (Republic) under contract to the city. The majority of solid
waste from the PTS is landfilled at Republic's Otay Landfill in Chula Vista.
The PTS is the one of only two large volume transfer station in northern San Diego County,
with more than 50% of the material that passes through that facility coming from outside of
the city. EDCO Waste and Recycling Services also operates a large volume transfer station in
Escondido, and a C&D debris processing facility in San Marcos, which currently receives CWM
C&D debris that is not delivered to the PTS.
4.2 City Historical Diversion and Recycling Rates
AB 939, which was passed in 1989, required jurisdictions in California to meet diversion goals
of 25% by 1995 and 50% by the year 2000. In 2011, the Legislature passed AB 341, which
among other things, established a new statewide goal of 75-percent recycling through source
reduction, recycling, and composting by 2020.
Table 4-1 provides historical diversion rates and recycling rates for the past 10-years for both
the city of Carlsbad and statewide.1 As shown, the city's diversion rate was 53% in 2017, 2 down
from a high of 67% in 2010. While the city's diversion rate was generally comparable to the
statewide rate from 2008 to 2012, over the past 5-years it has been less than the statewide
average.
On the other hand, Carlsbad's recycling rate was 44% in 2017, and has outpaced the statewide
average, although less so in recent years. Of particular note is that the statewide recycling rate
of 44% in 2016, the most recent year for which statewide data is available, is well below the
2020 75% recycling goal.
The difference between Carlsbad's Diversion Rate (53% in 2017) and Recycling Rate (44% in
2017) is due to the use of the city's green waste as alternative daily cover (ADC) at Republic's
Otay Landfill. If that material, which does not count toward diversion under AB 341 were
composted, the city's Recycling Rate and Diversion Rate would be the same.
Several activities which count toward diversion under AB 939 do not count toward recycling under
AB 341, including ADC, alternative intermediate cover (AIC), other beneficial reuse at landfills,
transformation credit and waste derived fuel. These five activities are instead defined as "disposal-
related activities."
The most recent year for which data is currently available.
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Table 4-1
City and Statewide Diversion and Recycling Rates
Carlsbad Statewide
Diversion Recycling Diversion Recycling
Year
Rate 111 Rate 121 Rate Rate
2008 61% 57% 59% Not
2009 65% 60% 65% Reported
2010 67% 60% 65% 49%
2011 66% 59% 65% 49%
2012 66% 59% 66% 50%
2013 61% 55% 65% 50%
2014 57% 51% 65% 50%
2015 57% 52% 63% 47%
2016 54% 47% 61% 44%
2017 53% 44% Not yet reported
(1) includes alternative daily cover (ADC) diversion
(2) Does not include ADC diversion
CalRecycle reported that a major reason the state's recycling rate has been decreasing is the
rise over th.e past several years of both total disposal and per capita disposal. CalRecycle
pointed to several reasons for the rising disposal volumes including relatively low disposal
costs, higher wages driving increased consumption, slow-to-develop domestic markets for
recyclable materials, declining international markets for recyclables and a lack of in-state
infrastructure to process organics.
4.3 Contracted Service Providers
4.3.1 Coast Waste Management
Single-Family Services
Residents are provided weekly solid waste, recycling and green waste collection services in
containers provided by CWM. Solid waste, recycling and green waste containers are provided
in three sizes: 35, 64, and 96-gallons. Residents are allowed up to three recycling carts and
three green waste carts at no additional cost. Extra solid waste carts are provided at an
additional monthly rate.
Multi-Family and Commercial Services
CWM provides solid waste services to commercial and multi-family accounts using commercial
cans and bins ranging in size from 2 cubic yards to 6 cubic yards, and 3-cubic yard commercial
compactors. Service is provided up to six days per week. Commingled recycling, and source
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separated cardboard and mixed paper recycling services are also provided to commercial
accounts. Commercial green waste collection service is also provided at an additional cost.
CWM also offers 3-cubic yard special haul (temporary service), and 3 and 4-cubic yard C&D
debris recycling service.
Roll-Off Services
CWM provides industrial customers with roll-off services for 10-cubic yard to 40-cubic yard
bins, as well as specialized compactors.
Other Services
Bulky Item Collection -For items that are too large to fit into the trash can, residents may
request the pickup of household bulky goods. Residents may dispose of up to five bulky
household items, three times annually, at no charge. Residents may schedule additional pick-
up appointments at a cost of $35 for the first item and $5 for each subsequent item.
Christmas Tree Recycling -CWM collects Christmas trees the first two weeks following
Christmas on the regularly scheduled collection day. There are also a number of drop-off
locations within the city where residents can take their trees for recycling.
Drop-Off/ Buy-Back Center -CWM operates a non-franchised drop-off buy-back center at the
PTS. The Center accepts California Redemption Value (CRV) bottles and cans in for cash. Also
accepted for drop off are non-CRV bottles and cans, newspaper, mixed paper and cardboard.
CWM Franchised Diversion Rate
Table 4-2 provides a summary of CWM's collection contract diversion rate for the residential,
commercial and roll-off waste streams, and overall for the past 5 years. As shown, over the
past five years there has been relatively little change in CWM's total diversion rate.
Table 4-2
CWM Collection Contract Diversion Rate
Waste Stream 2014 2015 2016 2017 2018 5-Year
Average
Commercial Diversion % 10.2% 12.3% 12.4% 13.3% 14.0% 12.4%
Residential Diversion % 54.7% 54.5% 53.7% 54.8% 53 .1% 54.2%
Roll-Off Diversion % 21.5% 17.4% 26.6% 32.5% 28 .7% 25.3%
Total Diversion% 32.2% 31.9% 33.2% 35.4% 33.8% 33.3%
4.3.2 Republic Services I Palomar Transfer Station Inc.
Republic Services operates the Palomar Transfer Station (PTS), which is located in Carlsbad.
The PTS is a large volume transfer/processing facility that is owned by the County, leased to
Carlsbad, and operated by Republic under contract to the city. It is permitted to accept mixed
municipal, construction/demolition, and industrial waste, and green materials.
PTS Incoming and Outgoing Tonnages
Table 4-3 provides a summary of the incoming and outgoing tons from the PTS for 2018. As
shown, with the exception of 22 pounds of solid waste that was disposed of at the El Sobrante
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Landfill in Riverside County, all of the solid waste received at PTS in 2018 was disposed at
Republic's Otay Landfill in Chula Vista.
Of particular note is Republic's management of the C&D debris and green waste received at
the PTS:
■ Of the 3,470 tons of C&D debris received at the PTS, 1,010 tons (29%} were delivered
to Republic's Otay Landfill C&D processing facility for processing, with the remaining
71% disposed as municipal solid waste (MSW}; and
■ Of the 47, 546 tons of green waste received at the PTS, 4,078 tons were composted
(9%), while the remaining 38,387 tons (81%} were used as alternative daily cover (ADC)
at the Otay Landfill.
Table 4~3
PTS Incoming and Outgoing Tonnages (2018)
MSW11)
Recycling
C&D12l
Green Waste
Mattress
Total
Otay Landfill
MSW
Recycling
C&D
Green Waste
Mattress
Total
El Sobrante Landfill
MSW
Total
Agromin
Green Waste
Total
Orange MRF
Recycling
Total
Total Outgoing Materials
MSW
Recycling
C&D
GW
Mattress
Total
Tons
PTS Incoming Tons
391,603
2,756
3,471
47,546
445,376
PTS OutgoingTons
395,263
1,010
38,387
434,660
22
22
4,078
4,078
2,353
2,353
395,285
2,353
1,010
42,465
441,113
%ofTotal
88%
1%
1%
11%
0%
100%
29% Processed
81% ADC
9% Composted
August 20, 2019 Item #14 Page 45 of 129
Section 4
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City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
4.4 Disposal Tonnages by Facility
Table 4-5 provides a summary of the city's 2018 disposal tonnages by facility. As shown, more
than 96% ofthe city's disposal tonnage was landfilled at the Otay Landfill. The vast majority of
that tonnage transferred through the PTS (97%). The city's disposal facility profiles for 2013,
2014, 2015, 2016 and 2017 are generally similar.
Table 4-5
City Disposal Tonnages by Facility (2018)
Disposed
Destination Facility
Tons %of Total
Otay Landfill 156,693 96.2%
Sycamore Landfill 2,773 1.7%
El Sobrante Landfill 2,646 1.6%
West Miramar Sanitary Landfill 471 0.3%
Kettleman Hills -B18 Nonhaz Codisposal 69 0.0%
Mid-Valley Sanitary Landfill 69 0.0%
McKittrick Waste Treatment Site 50 0.0%
Azusa Land Reclamation Co. Landfill 46 0.0%
Olinda Alpha Sanitary Landfill 11 0.0%
Frank R Bowerman Sanitary LF 3 . 0.0%
Lamb Canyon Sanitary Landfill 2 0.0%
Simi Valley Landfill & Recycling Center 1 0.0%
Total 162,834 100.0%
Historically as much as 10% or more of the total tonnage assigned to the city that was reported
as disposed at the Otay Landfill was not reported as transferred through the PTS. As such, that
tonnage would have had to have been directly hauled to the Otay Landfill more than 50 miles
away. Going forward, it is suggested the city review the sources of city tonnage that is delivered
to the Otay Landfill but is not transferred through the PTS to confirm that it is being correctly
reported as originating from the city of Carlsbad.
4.5 Analysis of Additional Diversion
For purpose of gauging the potential impact of tlie various SMMP required and planned
actions, an analysis was conducted of the additional diversion Carlsbad may be able to achieve
through those required and planned diversion actions. The analysis calculated the additional
diversion associated with the following materials contained within the residential, commercial
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City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
and self-haul waste streams, assuming capture rates for the targeted materials of 10%, 25%,
75% and 100%:4
■ Recyclable materials;
■ Organic materials;
■ Household Hazardous Waste (HHW), Electronic waste (E-waste), Universal Waste (U-
waste);
■ Textiles;
■ Carpet;
■ Bulky Items;
■ C&D Debris; and
■ Tires.
The resulting additional diversion associated with the residential, commercial and self-haul
waste streams are shown in Table 4-6, Table 4-7, and Table 4-8, respectively, with
corresponding Figure 4-2, Figure 4-3, and Figure 4-4 providing a comparison of the potential
increase in the city's overall diversion rate. Each of these tables provides the city's current
"Baseline" with respect to the total tons generated, diverted and disposed that are attributed
to Carlsbad, and the associated city diversion rate, which was 53% in 2017. The Tables then
show the increase in the tons diverted, and decrease in tons disposed associated with
capturing 10%, 25%, 50% and 100% of the targeted materials listed above. The corresponding
figures show the related increase in the city's diversion rate associated with each of the noted
targeted material capture rates.
Table 4.9 and Figure 4-4 show the overall increase in the city's diversion rate accounting for
the combined impacts of the additional residential, commercial and self-haul diversionfor the
associated capture rates. As shown, were the city to recovery 100% of the targeted materials
from its those waste streams, the city's diversion rate would increase by 30%, from 53% to
83%.
It should be noted that this analysis is based on general statewide waste composition data and
is not specific to Carlsbad. Additionally, the self-haul analysis considers all self-haul tonnages,
including those that are not delivered to the PTS and over which the city has no contractual
control. With that said, the analysis shows that while there is potential for recovering
additional material from both the residential and commercial waste streams, the potential for
recovery of self-haul material exceeds the combined totals of both the residential and
commercial waste streams, with the majority of that self-haul diversion associated with C&D
debris, bulky items, and green waste.
4 Waste residential, commercial, and self-haul waste composition data was taken from CalRecycle's
2014 Disposal-Facility-Based Characterization of Solid Waste in California.
Section 4
Overview of
Solid Waste
Management
System
&
Service
Contracts
Section 4-7
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City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
4.6 Review of Service Contracts
4.6.1 Renegotiation of Service Contracts I Competitive Procurement of
Contract Service Providers
Carlsbad's collection contract with CWM expires on July 1, 2022, after SB 1383 commercial
organic compliance requirements begin to take effect on January 1, 2022. The PTS operating
contract with Republic expires on July 1, 2027. Changes to both of these contractual
arrangements will be required to support the city's sustainable materials management
objectives. It is the city's intention to hire a qualified contractor to assist with any necessary
contract negotiations or competitive procurement processes related to these two service
contracts.
4.6.2 Collection Contract
The city entered into its current contract with CWM on July 1, 2012. Due to the passage of
time, and new legislation such as AB 1826 and SB 1383, the terms and conditions of that
contract are now inadequate. Ultimately, a new collection contract will need to be drafted that
aligns with all relevant legislation. That new contract should include the following general
components and support the city's maximum diversion and sustainable materials
management objectives:
■ Clear and specific definitions applicable to new requirements;
■ Clear delineation of all regulatory, operational and financial responsibilities;
■ Clear, objective and quantifiable performance standards applicable to new
requirements;
■
■
■
■
■
■
Regular reporting of performance relative to each established objective and
quantifiable performance standard;
Indemnity/coverage for new regulatory requirements for which the contractor has
been assigned responsibility;
Diversion and sustainable materials management programs, services and standards;
How payments to the city are to be calculated-gross revenue, flat fee, etc.;
Recycled material contamination protocols and cart/container overage protocols
applicable to new requirements; and
An effective means for holding the contractor to its contractual obligations, short of
breach of contract (i.e., meaningful liquidated damages I administrative charges)).
4.6.3 Palomar Transfer Station Operating Contract
The city entered into its current PTS operating contract with Republic Services on June 1 2002
(Effective Date). The term of the contract was twenty-five (25) years, ending at midnight on
May 31, 2027. The initial ten years ofthat 25 year term, was the "PTS Initial Operation Period",
during which time the city agreed to direct all city contract hauler waste, and all other waste
it controlled to the PTS. Amendment No. 3 to the PTS operating contract, executed in February
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City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
2012, extended the Initial PTS Operating Period by ten (10) years and one (1) month to July 1,
2022. The PTS operating contract will also need to be revised to support the city's sustainable
materials management objectives. As with the city's collection contract, any new PTS operating
contract should include the general components listed above for the city's collection contract,
as applicable.
4.7 Rates and Rate Structure
Appendix 4A provides a review of the city's current residential and commercial rates and rate
structure.
Section 4
Overview of
Solid Waste
Management
System
&
Service
Contracts
Section 4 • 13
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Section 5
Upstream
Design and
Production
Section 5 - 2
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
5.2 City Ability to Influence Upstream Design and
Production I Summary of Required and Planned
Actions
Carlsbad has the ability to influence sustainable upstream design and production through the
following three (3) major types of actions, which are summarized below:
1. Sustainable Procurement
2. Material Bans I Disposal Bans
3. Product Stewardship I Take-back Ordinances
The specific upstream design and production actions that are covered in Sections 5.3, 5.4 and
5.5 are organized into one of the above major types of actions, as applicable.
5.2.1 Sustainable Procurement
City's Ability to Influence
As one of the largest purchasing entities in the city, Carlsbad's city government has significant
leverage to support the production of sustainably produced materials and demonstrate its
commitment to sustainability through its purchasing and procurement policies and practices.
Summary of Required and Planned Actions
The SMMP envisions Carlsbad's city government, residents, and businesses maximizing their
purchase and use of sustainable materials, thereby supporting the development of a local
market (demand) for sustainable materials, and "closing the loop". In this regard, Carlsbad's
city government will help lead the way, establishing a best practice Sustainable Materials
Purchasing and Procurement Policy under which the purchase of sustainably produced
products and materials by city government and contracted service providers is a requirement
not simply a preference.
5.2.2 Material Bans I Disposal Bans
City's Ability to Influence
The city can enact material bans (product bans) and disposal bans to accomplish the following:
• Material Bans -Prevent the generation of hard-to-recycle materials and/or materials
that have significant negative environmental impact.
• Disposal Bans -Ban the disposal of materials for which available recycling alternatives
exist (e.g., green waste, C&D debris).
Summary of Required and Planned Actions
The SMMP envisions the city establishing material bans for targeted materials (e.g., single use
plastics) that are costly or hard to manage and/or have a significant local negative
environmental impacts, as directed by the City Council.
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The SMMP also envisions the city establishing green waste and C&D debris disposal bans in
support of maximizing the diversion of those materials, and considering disposal bans for other
targeted materials in the future.2
5.2.3 Product Stewardship I Take-Back Ordinances
City's Ability to Influence
The city can continue and expand its support for regional, state, and national product
stewardship efforts. It can also require local retailers to take-back certain products that they
sell that are difficult or costly to manage (e.g., batteries, sharps, pharmaceuticals and personal
care products).
Summary of Required and Planned Actions
The SMMP envisions that the city will expand its support for product stewardship and will
incorporate extended producer responsibility (EPR) requirements into its Sustainable
Materials Purchasing and Procurement Policy. The city will also consider establishing take-back
ordinances for hard and/or costly to manage materials.
5.3 Required Phase 1 Actions
Sustainable Procurement
No action is required
Material Bans I Disposal Bans
No action is required
Product Stewardship I Take-back Ordinances
No action is required
5.4 Required Phase 2 Actions
The following upstream design and production actions will ensure the city's compliance with
SB 1383:
Sustainable Procurement
2
1. Annually procure a quantity of recovered organic waste products that meets or
exceeds the city's SB 1383 annual recovered organics waste product procurement
target.
2. Ensure at least 75% of city government's annual purchases of paper products are
recycled-content.
The intent of such bans, which are not uncommon, is to require generators to use available diversion
programs for the targeted material types or potentially face fines or penalties. SB 1383 effectively
bans disposal of green waste, as well as food waste.
Section 5
Upstream
Design and
Production
Section 5 - 3
August 20, 2019 Item #14 Page 58 of 129
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Upstream
Design and
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Section 5 - 4
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
Material Bans I Disposal Bans
No action is required
Product Stewardship I Take-back Ordinances
No action is required
A more detailed discussion of the above actions is provided below.
5.4.1 Sustainable Procurement
1. Annually Procure a Quantity of Recovered Organic Waste Products that Meets
or Exceeds Carlsbad's Annual Recovered Organics Waste Product Procurement
Target
Summary
SB 1383 requires California jurisdictions to procure compost and/or renewable transportation
fuel made from organic materials recovered from their waste streams. SB 1383 provides a
formula for calculating the recovered organic material targets for a jurisdiction, which works
out to the following annual targets for Carlsbad:
■ 4,700 tons of compost (~1g tons per day 5 days per week)3
■ 153,000 diesel gallon equivalents
Required Actions
• Establish "recovered organic waste product" purchasing guidelines as a component of
the city's Sustainable Materials Purchas ing and Procurement Policy that supports
. maximizing the productive use of recovered organic waste products in city government
functions.
• Annually procure a quantity of recovered organic waste product that meets or exceeds
the city's SB 1383 annual target.
2. Ensure At Least 75% of City's Annual Purchases of Paper Products Are Recycled-
Content
Summary
SB 1383 requires that at least 75 percent of a jurisdiction's paper products be recycled content
paper. Paper products include, but are not limited to paper janitorial supplies, cartons,
wrapping, packaging, file folders and hanging files, building insulation and panels, corrugated
boxes, tissue, and toweling.
Currently all printer paper supplied to city government machines is required to be at least 30%
post-consumer waste. The Purchasing Department is pursuing quotes for paper with a higher
Compost, mulch and other materials made from recovered organic waste products have multiple
uses, and applying compost (organic fertilizer) to land can increase the amount of carbon stored in
these soils and contribute to the reduction of greenhouse gas emissions in support of Carlsbad's
Climate Action Plan objectives.
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percentage of post-consumer recycled content percentage and is considering a pilot program
of using 100% recycled-content paper. The city is also pursuing enhanced access to other
environmentally friendly supplies from its contracted office supply vendor.
Required Actions
■ Establish recycled content paper product purchasing guidelines that meet or exceed
the SB 1383 requirements as a component of the city's Sustainable Materials
Purchasing and Procurement Policy.
5.5 Planned Phase 3Actions
The following upstream design and production actions will support the development of
sustainable materials management systems throughout Carlsbad's city government,
residential and commercial sectors, and public spaces and venues.
Sustainable Procurement
1. Adopt a city government best practices Sustainable Materials Purchasing and
Procurement Policy.
Material Bans I Disposal Ban
2. Material Bans -Evaluate and adopt appropriate material bans (e.g., single-use plastics).
3. Disposal Bans -Ban the disposal of green waste and C&D debris at the PTS, and through
the city's residential and commercial collection systems. 4
Product Stewardship I Take-Back Ordinances
4. Consider adopting take-back ordinances for products that are difficult or costly to
manage.
5. Advocate for product stewardship and EPR.
A more detailed discussion of the above actions is provided below
5.5.1 Sustainable Procurement
1. Adopt a Sustainable Materials Purchasing and Procurement Policy
Summary
Carlsbad's current purchasing policy is "to purchase and use recycled products except when
such use negatively impacts health, safety or operational efficiency." The Purchasing
Department grants "a 15 percent preference, not to exceed $1,000 per contract," for recycled
products, with "The preference percentage is based on the lowest bid or price quoted by the
vendor or contractor offering non-recycled products." 5
4 Under such a disposal ban, green waste and C&D debris would continue to be accepted at the PTS,
however facility users would be required to segregate those materials, and the PTS contract
operator would be required to process and divert those materials.
http://www.carlsbadca.gov/services/depts/finance/contracting/default.asp
Section 5
Upstream
Design and
Production
Section 5 - 5
August 20, 2019 Item #14 Page 60 of 129
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City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
While the current policy has moved the city in the right direction, there is a need to do more
than simply provide preferences for environmentally preferable materials if broader markets
for those materials are to be established. Establ ishing effective municipal s.ustainable
purchasing and procurement po licies is an important part of any comprehensive sustainable
materials management plan. Carlsbad's interest in environmentally preferable procurement
measures for both government operations and the wider community is forward-thinking and
has the potential to create a significant environmental impact both within and outside city
boundaries.
Enacting a city sustainable materials purchasing and procurement policy will improve the
efficiency by which public money is spent, while at the same time using market power to bring
about major environmental and social benefits. The impact of sustainable materials purchasing
and procurement policy measures extends beyond sustainable materials management and
supports overall sustainability by reducing waste, lowering carbon emissions, reducing energy
and water consumption, protecting biodiversity, and supporting fair and sustainable economic
growth, and will deliver social benefits within and beyond the city.
Appendix SA outlines a framework and best practices for a city government Sustainable
Materials Purchasing and Procurement Policy, and provides a summary of options for citywide
sustainable purchasing policies.
Planned Actions
• Draft, adopt and implement a city government Sustainable Materials Purchasing and
Procurement Policy.
5.5.2 Material Bans I Disposal Bans
2. Evaluate Material Bans
Summary
Material bans are very effective at preventing hard-to-recycle materials from winding up in the
waste stream or from becoming litter. Examples of products that the city could consider
targeting as part of a material ban include:
• Polystyrene Foam; and
• Single-Use Plastic Straws, Stirrers, and Cutlery.
A more detailed discussion of material bans (product bans) is provided in Appendix SA.
Planned Actions
• Develop a list of materials to be considered for bans along with the rational for banning
those materials and present to the city council for review.
• Implement city council approved material bans.
3. Adopt Green Waste and C&D Debris Disposal Bans
Summary
One of the most efficient and cost effective means for increasing diversion is to maximize the
recovery of materials through existing recycling programs. That is the rationale of SB 1383 as
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City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
it relates to organic material and its requirement that all commercial accounts must subscribe
to service and actively divert the targeted organic materials.6 This rational also applies to all
other materials for which there are existing recovery programs, and extends to PTS and other
facility recovery operations, as well as source separated collection programs.
Collection programs and PTS recovery operations exist for green waste and C&D debris
generated in Carlsbad. While some of that material is recovered, substantial quantities are still
being landfilled. To manage any material sustainably, efforts need to support maximizing the
diversion of that material.
Planned Actions
• Ban the disposal of green waste and C&D debris at the PTS, and throughout the city's
residential and commercial solid waste collection systems.7
• Implement additional bans for targeted materials as diversion programs are made
available (e.g., textiles, carpets, mattresses).
5.5.3 Product Stewardship I Take-Back Ordinances
4. Consider Adopting Take-Back Ordinances for Products that are Difficult or Costly
to Manage
Summary
Take-Back ordinances (mandatory retailer take-back programs) require local retailers to take-
back various materials (HHW, E-waste, batteries, sharps, fluorescent lights, and
pharmaceuticals and personal care products (PPCP)) from consumers at no charge. Many local
governments have passed take-back ordinances as one means for helping to manage problem
materials. Take-back ordinances are not EPR or product stewardship, since they do not directly
engage the producer, but they can place pressure on the retailers to pressure the producers
to change product design and packaging and to start EPR collection programs.
Planned Actions
7
• Develop a list of materials to be considered for a take-back ordinance along with the
rational for requiring retailers to take-back those materials and present to the city
council for consideration.
• Implement city council approved take-back ordinances.
Consistent with this requirement, the city plans to require that all commercial accounts subscribe
to, and actively participate in the city's existing commercial recycling program (see Section 7.4.1
#3).
Under such a disposal ban, green waste and C&D debris would continue to be accepted at the PTS,
however facility users would be required to segregate those materials, and the PTS contract
operator would be required to process and divert those materials.
Section 5
Upstream
Design and
Production
Section 5 - 7
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Section 5
Upstream
Design and
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Section 5 - 8
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
5. Advocate for Product Stewardship and Extended Producer Responsibility
Summary
Product stewardship is a strategy whereby manufactures and others along the product supply
chain share in the financial and physical responsibility for collecting and recycling products at
the end of their useful lives. When manufacturers share the costs of managing the materials
they produce they have an incentive to use recycled materials in new products and design
products to be less toxic and easier to recycle, incorporating environmental concerns into the
earliest stages of product design and effectively supporting sustainable materials
management.8
EPR is a mandatory type of product stewardship that includes, at a minimum, the requirement
that the manufacturer's responsibility for its product extends to post-consumer management
of that product and its packaging. There are two related features of EPR policy: (1) shifting
financial and management responsibility, with government oversight, upstream to the
manufacturer and away from the public sector; and (2) providing incentives to manufacturers
to incorporate environmental considerations into the design of their products and packaging.9
Planned Actions
8
9
■ Support the California Product Stewardship Council, Product Stewardship Institute
and/or other regional and national product stewardship organizations.
■ Advocate for statewide and national packaging and product design policies that
encourage items to be repairable, reusable, fully recyclable/compostable, and less
toxic.
■ Advocate for and support a regional initiative to encourage businesses to produce
sustainable materials, products, and packaging.
■ Consider providing sustainable materials management incentives to local
manufacturers, distributors, and retailers.
Source: Product Stewardship Recommendations Report, Minnesota Pollution Control Agency.
Source: Product Stewardship Institute.
August 20, 2019 Item #14 Page 63 of 129
Section 6
Consumption
& Use
Section 6 -2
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
6.2 City Ability to Influence Consumption and Use
Summary of Required and Planned Actions
Carlsbad has the ability to influence sustainable consumption and use of materials and
products that are generated in the city through the following three (3) major types of actions,
which are summarized below.
1. Waste Prevention I Source Reduction
2. Material Reuse
3. Sustainable Materials Market Development
The specific consumption and use actions that are covered in Sections 6.3, 6.4 and 6.5 are
organized into one of the above major types of actions, as applicable.
6.2 .1 Waste Prevention I Source Reduction
City's Ability to Influence
The city can take steps to reduce the amount of materials that are used throughout all city
government functions and operations, and provide waste prevention public education,
outreach and technical support to residents and businesses.
Summary of Required and Planned Actions
Sustainable Materials Management Plans will be developed for all city government
departments as part of the development of the SMMP's implementation plan. Those strategic
plans will include identifying waste prevention and source reduction opportunities in each city
department. The city will also develop a residential and commercial waste prevention
component of the city's Sustainable Materials Management Public Education, Outreach, and
Technical Assistance Program that supports waste prevention opportunities throughout
Carlsbad
6.2.2 Material Reuse
City's Ability to Influence
The city can take steps to maximize the repair, reuse and/or repurposing materials that are
used throughout all city government functions and operations, and provide material reuse
public education, outreach and technical support to residents and businesses.
Summary of Required and Planned Actions
The city will take a lead role with respect to material reuse by identifying and realizing material
reuse opportunities in all city government departments through the development and
implementation of department specific Sustainable Materials Management Plans. The city will
also actively support the expansion of a reuse economy in the city that will include establishing
a reuse component of the city's bulky item collection program, and working with the city's
repair community stakeholders to explore ways to create a permanent, sustainable repair
function in the city.
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City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
6.2.3 Sustainable Materials Market Development
City's Ability to Influence
The city can support the production of sustainable materials by purchasing sustainable
materials in place of virgin materials, and requiring all of its contracted service providers to do
the same. It can also provide sustainable purchasing related public education, outreach and
technical support to residents and businesses.
Summary of Required and Planned Actions
Carlsbad's city government will maximize it productive use of recovered organic waste
products in support of achieving the city's SB 1383 procurement target for those materials.
The city plans to also actively promote and support the use of recovered organic waste
products within Carlsbad's home gardening, small-scale urban farming, and agricultural
sectors.
While the city's sustainable materials market development and support efforts will initially
focus on recovered organic waste products due to SB 1383's associated procurement
requirements, the city intends to undertake a concerted effort to also maximize city
government's purchase of other sustainably produced materials, and support the expanded
use of sustainably produced materials citywide.
It is city government's objective to purchase materials that contain as much or more total post-
consumer content than the total quantity materials that are recovered from city government
operations through the city's end-of-life materials management system (i.e., a zero or net
positive sustainable materials management impact).
6.3 Required Phase 1 Actions
Waste Prevention I Source Reduction
No action is required
Material Reuse
No action is required
Sustainable Materials Market Development
No action is required
6.4 Required Phase 2 Actions
The following consumption and use action will contribute to ensuring the city's compliance
with SB 1383, effective as of January 1, 2022.
Waste Prevention I Source Reduction
No action is required
Material Reuse
No action is required
Section 6
Consumption
& Use
Section 6 - 3
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Section 6
Consumption
& Use
Section 6 - 4
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
Sustainable Materials Market Development
1. Develop markets for recovered organic waste products (compost and renewable
transportation fuel), and other recovered products within all city government
departments and throughout Carlsbad.
A more detailed discussion of the above action is provided below.
6.4.1 Sustainable Materials Market Development
1. Develop Markets for "Recovered Organic Waste Products" within all City
Government Departments and throughout Carlsbad.
Summary
One of the most significant challenges to the development of sustainable materials
management systems is developing markets for materials that have been sustainably
produced. In this regard, one of the most immediate challenges is developing practical markets
for the significant quantities of "recovered organic waste products" that will be generated as
a result of SB 1383.
Section 5.4.1 -.Item #1 addresses city government's procurement of quantities of recovered
organic waste products (compost and renewable transportation fuel) that meet or exceed its
calculated annual targets. To accomplish that objective and maximize its use of sustainable
produced material, the City needs to assess the opportunity for the use of sustainably
produced products in place non-sustainably produced products in each city government
department, operation and service.
Required Actions
• Evaluate opportunities for the use, or increased use of recovered organic waste
products and other sustainably produced materials by all city government
departments and realize available opportunities.
• Annually procure for Carlsbad city government's use, quantities of recovered organic
waste products that meet or exceed the city's SB 1383 procurement target. Require all
contract service providers to use recovered organic waste products, as applicable.
• Actively promote and support the use of recovered organic waste compost products
within Carlsbad's home gardening, small-scale urban farming, and agricultural sectors.
• Develop a Strategic Plan to Maximize Local Use of Recovered Organic Waste Products
that considers and provides a context for the above Required Actions, and any other
appropriate related actions.
6.5 Planned Phase 3 Actions
The city will pursue the following consumption and use actions to support the development of
sustainable materials management systems throughout Carlsbad's city government,
residential and commercial sectors, and public spaces and venues.
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Waste Prevention I Source Reduction
1. Identify and realize waste prevention opportunities in all city government
depa rtments.1
2. Support waste prevention opportunities throughout Carlsbad.
Material Reuse
3. Identify and realize material reuse opportunities in all city government departments.2
4. Support the expansion of a reuse economy in Carlsbad.
Sustainable Materials Market Development
5. Identify and realize opportunities for city government's use of sustainably produced
materials in place of products made from raw materials.3
6. Support the development of markets for sustainably produced products throughout
Carlsbad.
A more detailed discussion of the above actions is provided below.
6.5.1 Waste Prevention I Source Reduction
1. Identify and Realize Waste Prevention Opportunities in All City Government
Departments
Summary
Waste prevention, also known as source reduction, is the elimination of waste before it is
created. It is the most preferable option for managing waste. In making solid waste
management decisions consideration should be given to purchasing practices to determine if
materials can be moved "upstream" into the waste prevention and reuse categories instead of
focusing on recycling as the first and only materials management option. By minimizing the
volume of raw materials, supplies or packaging used, direct savings are realized.
Planned Actions
• Identify and realize waste prevention opportunities in all city government
departments.
• Develop, adopt, and implement a city government Waste Prevention and Reduction
Policy.
To be done in conjunction with the assessment that is undertaken in support of developing
Sustainable Materials Management Strategic Plans for all city government departments.
Ibid.
Ibid.
'
'
Section 6
Consumption
& Use
Section 6 - 5
August 20, 2019 Item #14 Page 68 of 129
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& Use
Section 6 -6
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
2. Support Waste Prevention Opportunities Throughout Carlsbad
Summary
As discussed above, waste prevention is the preferable waste management option, and the
city plans to support and promote waste prevention options citywide.
Planned Actions
• Develop a residential and commercial waste prevention component of the city's
Sustainable Materials Management Public Education, Outreach, and Technical
Assistance Program that includes food waste prevention.
6.5.2 Material Reuse
3. Identify and Realize Material Reuse Opportunities in all City Government
Departments
Summary
Reusing materials and/or re purposing them so that those materials do not end up in the waste
stream is the most preferable waste management action after waste prevention. Reuse
prevents material from entering the landfill, and has been an important way of getting needed
materials to disadvantaged populations. In many cases, reuse supports local community and
social programs, while providing donating businesses with tax benefits and reduced disposal
fees .
While reuse may be a foreign concept to those raised in the "disposable economy", it is a
concept that is very real in communities throughout the world. Reuse is gaining renewed
attention in California and nationally, and offers practical application to Carlsbad in support of
its sustainability goals and objectives.
The SMMP envisions Carlsbad undertaking a concerted effort to increase the reuse of materials
generated in the city, facilitate through the development and implementation of a Strategic
Plan to Maximize Material Reuse, as a component of the SMMP's overall Implementation Plan.
Planned Actions
■ Identify opportunities for reuse and repurposing of all materials used by all city
government departments with consideration for the following, in order or priority:
o Reuse by the same department;
o Reuse by another department;
o Reuse by a non-city governmental entity; and
o Repurposing.
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City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
4. Support the Expansion of a Reuse Economy in the City.
Summary
As discussed above, reducing the amount of waste generated is the most preferable waste
management activity, and the city plans to support and promote waste prevention options
citywide.
Planned Actions
• Develop Material Repair Capacity in the City -Work with repair community
stakeholders to explore ways to create a permanent, sustainable repair function in the
city.
■ Consider Incentives for the Reuse, Rental, Repair Industry -Explore the potential for
providing incentives for reuse, rental and repair through contract incentives, material
exchanges, and direct assistance.
• Establish Reuse Component of Bulky Item Collection Program -Establish material
reuse requirements as part of the city's contract hauler's bulky item collection
program.
• Support the Development of a Private Sector or Non-Profit Building Material Reuse
Center/ Reuse Exchange -Investigate the feasibility of creating a Building Material
Reuse Center in the region for the sale of salvaged building materials.
• Require Deconstruction and Source Separation of Construction Materials -Consider
the development of an ordinance to require deconstruction4 as a condition of
demolition permits.
■ Advocate for Statewide Packaging and Product Design Policies -Advocate for policies
that encourage items to be repairable, reusable, fully recyclable/compostable, and less
toxic.
6.5.3 Sustainable Materials Market Development
6. Identify and Realize Opportunities for City Government's Use of Sustainably
Produced Materials in Place of Products Made from Raw Materials
Summary
To be successful in its efforts to sustainably manage materials, Carlsbad plans to procure
significant quantities of recovered organic waste products, as discussed above. It also plans to
require that its suppliers to provide sustainable produced material options, and require its
contractors to purchase and use sustainable produced materials, as available.
Planned Actions
4
• Support Carlsbad's residents and businesses access to affordable sustainable materials
and develop a sustainable purchasing component of the city's Public Education,
Outreach, and Technical Assistance Program.
The selective dismantlement of building components, specifically for re-use, repurposing, recycling,
and waste management.
Section 6
Consumption
& Use
Section 6 - 7
August 20, 2019 Item #14 Page 70 of 129
Section 6
Consumption
& Use
Section 6 - 8
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
■ Identify and realize all opportunities for Carlsbad city government's widespread use of
sustainably produced materials.
7. Support the Development of Markets for Sustainable Products Throughout
Carlsbad
Summary
To achieve its overall sustainable materials management goals, Carlsbad plans to pursue the
widespread purchase and use of sustainably produced materials throughout the city.
Planned Actions
■ Support Carlsbad's residents and businesses access to affordable sustainable materials
and develop a sustainable purchasing component of the city's Public Education,
Outreach, and Technical Assistance Program.
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August 20, 2019 Item #14 Page 71 of 129
Section 7
End-of-Life
Management
Section 7 - 2
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
In support of the city's end-of-life management objectives, it will need to negotiate changes to
its existing collection contract and PTS operating contract, and/or draft new agreements and
conduct competitive procurement processes for collection and transfer station services when
the current contract terms expire.
7.2 .1 Diversion Programs
City's Ability to Influence
Collection Programs -The city has the ability to provide every residential and commercial
account in Carlsbad with comprehensive recycling and organic material collection services that
support maximizing the diversion of those materials.
Material Recovery Operations -The city has the ability to require the recovery of targeted
materials that are received at the PTS through the terms of the PTS operating contract, and to
establish supporting disposal bans on those targeted materials. The city also has the ability to
direct material that its contract hauler collects to the PTS and/or other facilities and to have
that material processed for diversion of targeted materials.
Summary of Required and Planned Actions
Carlsbad's residents and businesses will be provided with public education, outreach, and
technical assistance to support their efforts to maximize their recovery of the targeted
materials, and to produce high quality recyclable and organic material streams.
Carlsbad's end-of-life management actions include a focus on maximizing the diversion of all
materials for which current recovery programs exist. This will be accomplished by providing
every residential, commercial and city government account with comprehensive recycling and
organic material collection services (i.e., service subscription is not optional). These
comprehensive collection services will be supported by policies and regulations that require
residential and commercial generators to actively participate in the collection programs that
are provided, and produce quality recyclable and organic material streams, free from
contamination.
Carlsbad's end-of-life management actions also focus on maximizing the recovery of green
waste, and C&D debris, as well as other materials that the city may want ~o target in the future.
This will be facilitated through recovery of those materials at the PTS and/or other facilities
and will be supported by the city's adoption of green waste and C&D debris disposal bans that
require generators (including PTS residential and commercial self-haulers) to segregate those
materials to facilitate their recovery.
7.2.2 Regional Advocacy and Support
City's Ability to Influence
While there are many aspects of the city's end-of-life management system that the city has
control over, others require regional planning and coordination, which the city can advocate
for and support (e.g., regional material processing capacity).
Summary of Required and Planned Actions
In addition to the above efforts to maximize diversion, Carlsbad plans to advocate for and
support regional efforts to develop regional processing capacity for organic materials and to
August 20, 2019 Item #14 Page 73 of 129
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
expand regional markets for recovered organic waste products. Carlsbad plans to also
advocate for and support the development of regional capacity for hard to recycle materials
for which markets and processing capacity does not currently exist. Additionally, Carlsbad
plans to advocate for countywide and statewide bans on hard to manage materials and
materials that have a significant negative environmental impact. Finally, recognizing that
recovery and distribution of edible food to food insecure individuals and families is the highest
and best use of any material that is disposed, Carlsbad is committed to not only achieving the
20% edible food recovery goal of SB 1383, but to exceeding that goal.
7 .3 Required Phase 1Actions
In addition to taking all actions necessary to maintain compliance with AB 341 (Mandatory
Commercial Recycling), the city plans to also undertake the following end-of life management
actions to comply with all current state solid waste management regulations:
Diversion Programs
1. Compost the green waste that the city's contract hauler collects or deliver to an
anaerobic digestion facility for processing.
2. Process the C&D debris that the city's contract hauler collects for recovery of targeted
materials.
3. Provide AB 1826 commercial organic waste collection services to all commercial
covered generators.1
In addition to the above actions, the city should seek to increase the number of commercial
accounts that currently subscribe to commercial recycling services and the amount of
recyclable materials that are recovered from each account. Specific actions for maximizing the
diversion of commercial recyclables are discussed in Section 7.5.1.
Regional Advocacy and Support
No action is required
A more detailed discussion of the above actions is provided below.
7.3.1 Diversion Programs
1. Compost the Green Waste that the City's Contract Hauler Collects or Deliver it to
an Anerobic Digestion Facility for Processing
Summary
In 2017 the city's contract hauler delivered more than of 21,000 tons of city green waste to the
PTS. All of that green waste was used as alternative daily cover (ADC) and the city received
diversion credit for that material. The city's 2017 diversion rate was 53%. Had Carlsbad not
received diversion credit for that green waste its 2017 diversion rate would have been 44%,
lower than AB 939's 50% minimum diversion requirement. Assuming all other factors remain
the same, if the city's green waste continues to be used as ADC, as of January 1, 2020 the city
Covered generators are accounts that are subject to the regulations.
Section 7
End-of-Life
Management
Section 7 - 3
August 20, 2019 Item #14 Page 74 of 129
Section 7
End-of-Life
Management
Section 7 -4
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
will not be in compliance with AB 939's 50% minimum required diversion rate.2 The city has
two major options for processing its green waste, composting that material or sending it to an
anerobic digestion (AD) facility for processing. Composting and AD capacity is limited in the
region and the city will need to secure sufficient processing capacity for its green waste.
Required Actions
• Secure processing capacity for the city's green waste.
• Compost or anaerobically digest the green waste that the city's contract hauler
collects.
• Secure required commercial organics processing capacity through regional solid waste
management service providers.
2. Process the C&D Debris that the City's Contract Hauler Collects for Recovery of
Targeted Materials
Summary
CalRecycle notified the city in May 2017 that its C&D debris diversion program may negatively
impact its ability to meet the AB 939 requirement in the next jurisdictional review cycle. A small
portion of the C&D debris that is received at the PTS is currently being transferred to Republic's
C&D processing facility at its Otay Landfill in Chula Vista, however the vast majority of the C&D
debris received at the PTS is currently being landfilled. Additional recovery of materials from
C&D loads is one of the most cost efficient options the city has to increase its diversion rate,
and is necessary if the city is to sustainably manage C&D debris.
Required Actions
• Process all C&D debris collected by the city's contract hauler.
3. Provide AB 1826 Commercial Organic Waste Collection Services to all Commercial
Covered Generators
Summary
AB 1826 requires that multi-family accounts be offered green waste collection services, and
commercial accounts be offered organic waste collection services, with organics including food
waste. The city's contract hauler currently offers multi-family and commercial green waste
collection services. It does not however provide commercial organic waste collection services,
nor is it contractually obligated to do so. As such, the city is not in compliance with AB 1826 as
it relates to offering commercial organic waste collection service.
Required Actions
2
• Provide commercial organic waste collection services to all SB 1826 commercial
covered generators.
• Satisfy all other AB 1826 compliance requirements.
Note: A small portion of the city contract hauler's green waste is now being composted and qualifies
as diverted under AB 1594. That small portion, however, is not sufficient for the city to meet the
minimum 50% diversion rate requirement, all other factors the same as they were in 2017.
August 20, 2019 Item #14 Page 75 of 129
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
• Secure required commercial organics processing capacity through regional solid waste
management service providers.
7.4 Required Phase 2 Actions
As of the drafting of this SM MP, SB .1383 is the only new solid waste legislation that the city
will need to comply with that is not covered under the required Phase 1 actions above.
Therefore, the following items are all specific to SB 1383.
The city plans to undertake the following end-of life management actions needed to comply
with SB 1383 regulatory requirements:
Diversion Programs
1. Implement required residential and commercial organics collection services.
2. Develop required edible food recovery program.
Regional Advocacy and Support
No action is required.
A more detailed discussion of the above actions is provided below.
7.4.1 Diversion Programs
1. Implement Required Residential and Commercial Organics Collection Services
SB 1383 requires that jurisdictions adopt and implement residential and commercial organics
waste collection services. A three-container organic waste collection service is planned for the
city consistent with the existing three-container residential and commercial solid waste,
recyclables, and green waste collection systems that are now in place.
a. Residential Organics Collection Services
Summary
The city's contract hauler currently provides weekly residential collection of green waste. The
city can satisfy the residential organic waste collection requirements of SB 1383 by
incorporating food waste into the residential green waste collection program.
Required Actions
• Incorporate residential organic material into the current residential green waste
collection program.
• Provide for the transfer of residential organics to a city-approved organic material
processing facility.
b. Commercial Organics Collection Services
Summary
As discussed above, the city's contract hauler does not currently provide commercial organic
waste collection services. To comply with SB 1383, commercial organic waste collection
I
Section 7
End-of-Life
Management
Section 7 - 5
August 20, 2019 Item #14 Page 76 of 129
Section 7
End-of-Life
Management
Section 7 - 6
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
services must be provided to every commercial covered generator not just offered, which is all
that AB 1826 Phase lrequires.
Required Actions
• Provide commercial organics collection service to all commercial accounts, unless
granted a waiver by the city.3
• Provide for the transport of commercial organics to a city-approved organic material
processing facility.
■ Secure required commercial organics processing capacity through regional solid waste
management service providers.
2. Develop Required Edible Food Recovery Program
Summary
SB 1383 has a goal of recovering and distributing the equivalent of 20% of the total amount of
(recoverable) commercial edible food that is currently disposed to food insecure individuals
and families by 2025. In support of that objective, SB 1383 requires that jurisdictions
implement an edible food recovery program to achieve the 20% recovery goal.
Required Actions
• Develop and implement an edible food recovery program that complies with the
regulations.
7.5 Planned Phase 3 Actions
The city plans to pursue the following end-of-life management actions to support the
development of sustainable materials management systems throughout Carlsbad's city
government departments, residential and commercial sectors, and in public spaces and
venues.
Diversion Programs
1. Maximize the diversion of commercial recyclables.
2. Maximize the diversion of green waste.
3. Maximize the diversion of C&D debris.
4. Develop prioritized list of other materials to target for sustainable management.
Summarize recommended actions for managing those materials for review by the city
council, and implement approved management strategies.
5. Expand recycling and organic waste collection in city controlled public areas and
venues.
Regional Advocacy and Support
3 The city may grant exemptions to the requirements of SB 1383 for commercial accounts that
generate little or no organic materials.
August 20, 2019 Item #14 Page 77 of 129
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
6. Advocate for and support the implementation of the County's Food Donation Action
Plan for the San Diego Region, and pursue enhancements to Carlsbad's food security
infrastructure in conjunction with the development of the city's required SB 1383
edible food recovery program.
7. Advocate for and support the development of regional markets and processing
capacity for hard to recycle materials for which markets and processing capacity does
not currently exist.
8. Advocate for and support the development of additional local and regional organic
material processing capacity sufficient to manage all of the organic material generated
in Carlsbad and San Diego County.
A more detailed discussion of the above actions is provided below.
7.5.1 Diversion Programs
1. Maximize the D.iversion of Commercial Recyclables
Summary
Maximizing the diversion of the city's commercial recyclables (and all source separation
programs) requires:
1. Maximizing subscription to the diversion program; and
2. Maximizing the capture rate of targeted recyclable materials.
The city is currently in compliance with AB 341's mandatory commercial recycling
requirements, meaning that recycling service is available to all commercial accounts, education
and outreach information is being provided, and noncompliant covered generators are being
provided with followed up information. However, not all of the city's commercial businesses
are subscribed to commercial recycling services, and those that are subscribed are not
necessarily recycling all of the targeted materials. There is an opportunity to increase both the
number of commercial accounts that subscribe to commercial recycling services, and the
amount of recyclables recovered from those commercial accounts that subscribe to service in
support of maximizing the diversion of commercial recyclables from Carlsbad's waste stream.
Planned Actions
1. Establish property owner, and commercial account requirements for commercial
recycling that are equivalent to the SB 1383 commercial organic service requirements,
including but not limited to securing service, monitoring for contamination, and
educating employees.
2. Maximize the Diversion of Green Waste
Summary
To support sustainable management of green waste in the city and throughout the PTS service
area all green waste that is received at the PTS needs to be composted, not just that delivered
by the city's contract hauler.
Section 7
End-of-Life
Management
Section 7 - 7
August 20, 2019 Item #14 Page 78 of 129
Section 7
End-of-Life
Management
Section 7 - 8
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
Planned Actions
■ Adopt a city ordinance that bans the disposal of green waste in the city, or its use as
ADC.
3. Maximize the Diversion of C&D Debris
Summary
To support the sustainable management of C&D debris in the city and throughout the PTS
service area all C&D debris that is received at the PTS needs to be processed for material
recovery, not just that delivered by the city's contract hauler.
Planned Actions
■ Adopt a city ordinance that bans the disposal of C&D debris in the city.
4. Develop Prioritized List of Other Materials to Target for Sustainable
Management, Summarize Recommended Actions for Managing Those Materials
for Review by the City Council, and Implement Approved Management Strategies
Summary
To sustainably manage a material that material must be recovered when it comes to the end
of its useful life. It then needs to be processed, as necessary, to provide feed stock for the
subsequent production of new recycled content products. Materials that are not recoverable,
or for which no markets exists cannot be susta inably managed. The city has in place diversion
programs directed at many of the materials that are generated by residents and businesses,
however there are other materials that are currently disposed that have value (e.g., textiles),
and others that are problematic and may best be managed by material bans or other means
(e.g., single-use plastics, cigarette butts, non-compostable food ware).
Planned Actions
■ Develop a prioritized list of additional materials to target for sustainable materials
management. Present recommended actions for managing those materials to the city
council, and implement approved strategies.
5. Expand Recycling and Organic Waste Collection In Public Areas and Venues
Summary
The development of sustainable materials management systems in Carlsbad needs to consider
not only city government buildings, residences, and businesses but also public spaces and
venues. As part of the city's sustainable materials management efforts, Carlsbad needs to
determine how to best manage materials that are generated, and/or deposited in collection
receptacles in those public spaces and venues.
Planned Actions
• Evaluate and assess current public space and large venue material management
practices and develop plan for the implementation of sustainable material
management systems in public spaces and venues.
August 20, 2019 Item #14 Page 79 of 129
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
7.5 .2 Regional Advocacy and Support
6. Advocate for and Support the Implementation of the County's Food Donation
Action Plan and Pursue Enhancements to Carlsbad's Food Security Infrastructure
in Conjunction with the Development of the City's Required SB 1383 Edible Food
Recovery Program.
Summary
California's hunger relief and edible food recovery system is organized largely at the county
level, which is the case in San Diego County. That system is comprised of many dedicated
professionals and volunteers across a wide range of programs, services and organizations. A
fundamental weakness of that system, however, is the lack of overall coordination among all
stakeholders. San Diego County has been one of the most proactive counties in California with
respect to addressing food insecurity and yet and estimated 1 in 7 residents of the County are
food insecure.
Planned Actions
• Advocate for the ongoing implementation of the County's Food Donation Action Plan
for the San Diego Region. Specifically with respect to Carlsbad, advocate for and pursue
the enhancement of the city's food security infrastructure (organizations, programs
and services) to provide 100% food security to every resident of Carlsbad. This should
be done in conjunction with the development of the city's required SB 1383 edible
food recovery program, which presents a unique opportunity for supporting and
ultimately achieving 100% food security in Carlsbad.
7. Advocate for and Support the Development of Regional Markets and Processing
Capacity for Hard to Recycle Materials for which Markets and Processing Capacity
Does not Currently Exist
Summary
Absent the banning of materials that cannot be effectively recycled, or the manufacturer's
product stewardship of those materials, mat~rials for which there are no established markets
will continue to be landfilled.
Planned Actions
• Advocate for and support the development of regional markets and processing
capacity for hard to recycle materials (e.g., textiles, hard to recycle plastics like film
packaging and rigid plastic products) and other targeted materials.
8. Advocate for and Support the Development of Additional Local and Regional
Organic Material Processing Capacity Sufficient to Manage All of the Organic
Material Generated in Carlsbad and San Diego County.
Summary
It is e~timated that to achieve the targets outlined in SB 1383 California will need to recycle at
least 20 million tons of organic waste. Depending on facility size, Cal Recycle estimates the state
Section 7
End-of-Life
Management
Section 7 -9
August 20, 2019 Item #14 Page 80 of 129
Section 7
End-of-Life
Management
Section 7 -10
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
will need 50 to 100 new or expanded composting and AD facilities -at roughly $2 billion in
capital costs.
Planned Actions
• Advocate for and support the development of additional regional organic material
processing capacity.
August 20, 2019 Item #14 Page 81 of 129
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
SB 1383 Required Policies,· Ordinances and Other
Support Activities
SB 1383 includes the following requirements that the city will need to undertake and complete:
1. Conduct required organic waste and edible food recovery capacity planning;
2. Draft and adopt a required SB 1383 ordinance, and CALGreen ordinance;
3. Provide required organic waste and edible food recovery education and outreach;
4. Develop and implement required SB 1383 inspection and enforcement program;
5. Implement required SB 1383 reporting; and
6. Ensure compliance with required cart colors and cart labeling requirements.
A discussion of each of these activities is provided below along with the Required Actions the
City will need to take.
1. Conduct Required Organic Waste and Edible Food Recovery Capacity Planning
Summary
a. Organic Waste Recycling Capacity
SB 1383 requires counties, in coordination with cities and regional agencies located within the
county to estimate the amount of new or expanded organic waste recycling capacity that will
be needed to processing the additional organic waste. If a county determines that additional
organic waste capacity is needed, the county will notify the jurisdiction or jurisdictions that
lack sufficient capacity and each jurisdiction will be required to submit an implementation
schedule demonstrating how it will ensure there is enough new or expanded capacity to meet
the required demand.
b. Edible Food Recovery Capacity
SB 1383 requires counties, in coordination with cities and regional agencies located within the
county to identify the amount of capacity at edible food recovery organizations that is
necessary to recover 20% of the edible food that is estimated to be disposed. If a county
identifies that new or expanded capacity is needed then the jurisdiction or jurisdictions that
lack sufficient capacity will be required to submit an implementation schedule demonstrating
how it will ensure there is enough new or expanded capacity to meet the required demand.
Required Actions
• In conjunction with the County of San Diego, conduct the required organic waste
recycling capacity, and edible food recovery capacity planning.
Appendix 2A
SB 1383
Required
Policies,
Ordinances
& Support
Activities
2A-1
August 20, 2019 Item #14 Page 83 of 129
Appendix 2A
SB 1383
Required
Policies,
Ordinances &
Support
Activities
2A-2
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
2. Draft and Adopt Required SB 1383 Ordinance and CALGreen Ordinances
a. Draft and Adopt a SB 1383 Ordinance
Summary
By January 1, 2022, jurisdictions are required to adopt enforceable ordinances consistent with
SB 1383 requirements to mandate organic waste generators, haulers (including self-haulers),
and other applicable entities comply with SB 1383 requirements. Jurisdictions may designate
a public or private entity to fulfill responsibilities of regulations through a hauler contract or
memorandum of understanding, but the jurisdictions will remain ultimately responsible for
compliance.
Required Actions
• Draft the required SB 1383 ordinance.
a. Draft and Adopt a CALGreen Ordinance (SB 1383)
Summary
CALGreen is California's state-mandated green building code. The purpose of CALGreen is to
improve public health, safety, and general welfare through enhanced design and construction
of buildings using concepts which reduce negative impacts and promote those principles which
have a positive environmental impact and encourage sustainable construction practices. SB
1383 requires jurisdictions to adopt an ordinance or enforceable requirement that complies
with specific provisions of CALGreen that support the recovery of C&D debris.
Required Actions
• Draft the required CALGreen ordinance.
3. Provide Required Organic Waste and Edibl~ Food Recovery Education and
Outreach
Summary
Prior to February 1, 2022, and annually thereafter, a jurisdiction must provide residential and
commercial organic material generators with required public education and outreach. Self-
haulers and back-haulers must also be provided with information regarding SB 1383 self-haul
and back-haul requirements.
Required Actions
• Develop and provide required education and outreach.
4. Develop and Implement Required Inspection and Enforcement Program
Summary
By January 1, 2022, jurisdictions are required to implement an inspection and compliance
program for organic waste generators, edible food generators, and edible food recovery
organizations. If an entity is found to be in violation of the regulations, the jurisdiction shall
provide noncompliant accounts with education materials. On or after January 1, 2024,
August 20, 2019 Item #14 Page 84 of 129
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
jurisdictions shall take enforcement actions against noncompliant accounts, including
imposing established penalties on generators who fail to comply.
Required Actions
• Develop and implement required inspection and enforcement program.
5. Implement Required Reporting
Summary
SB 1383 requires all jurisdictions to:
• File an Initial Jurisdiction Compliance Report that contains the ordinance(s) adopted,
the date when containers will comply with the established standards, and other
required reporting items; and
• Report annually to CalRecycle on SB 1383 implementation and compliance starting on
August 1, 2022.
Required Actions
• Implement required reporting.
6. Ensure Compliance with Required Cart Colors and Cart Labeling Requirements
Summary
a. Container Colors
SB 1383 requires that a grey or black container shall be used for garbage, blue for recycling,
and green for organic waste by either year 2032 or the end of their useful life, whichever comes
first.
b. Container Labeling
Commencing January 1, 2022, a jurisdiction shall place and maintain a label on each new
container or lid provided to generators specifying what materials are allowed to be placed in
each container.
Required Actions
• Ensure that all containers conform to the SB 1383 color requirements, and container
labeling requirements by the specified dates.
Appendix 2A
SB 1383
Required
Policies,
Ordinances
& Support
Activities
2A-3
August 20, 2019 Item #14 Page 85 of 129
Appendix 2A
SB 1383
Required
Policies,
Ordinances &
Support
Activities
2A -4
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
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August 20, 2019 Item #14 Page 86 of 129
Appendix 2B
Public Education and Outreach
August 20, 2019 Item #14 Page 87 of 129
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
Current Public Education and Outreach
The City's solid waste management and sustainability public education and outreach program
includes both City efforts, and contractually required public education requirements specified
in the City's Collection Contract with CWM.
City Public Education and Outreach
Public education and outreach provided by the City specifically includes:
• A City website with solid waste information for residents and businesses;
• Recycling Champion Program for businesses (and Recycling Champion of the Quarter
in 2017), which includes a short video online that describes the program;
• Residential Recycling and Trash Guide;
• Multifamily Recycling Guide;
• Providing a customized tote bag for multifamily accounts;
• Solid waste signs available for customers to print from on line;
• Engagement of a contractor (reEarth Consulting) in 2019 to conduct a pilot program
for reducing plastic and single-use disposables in restaurants); and
• Engagement of a contractor in 2019 to provide elementary school education,
community workshops, creek and beach clean-ups, online updates and business
education.
CWM Public Education and Outreach
Per Section 6.06.1 of the Collection Contract, the contractor is required to create/implement
the following ongoing education and outreach related elements :
• Instructional/ How-to Packet to new customers;
• Container labels and hot stamps on recycling and green waste containers;
• Corrective Action Notice for addressing contamination;
• Website (with City-specific information);
• Attendance and promotion at City community events;
• Performance of commercial waste audits; and
• Assistance with the Green Business Program (including promotion of businesses).
In addition to what is contractually required of CWM, CWM also provides the following related
education and outreach services, as reported in the 2018 Annual Report to CalRecycle:
• Production, printing and distribution of a City Commercial Recycling Guide;
• Sponsorship of at least two articles and four ads in the Carlsbad Business Journal
targeted at AB 341 and AB 1826;
• Tracking of businesses that refuse recycling service (where three attempts and a site
visit have been executed) to the City;
Appendix 2B
Public
Education
&
Outreach
2B -1
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Appendix 2B
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Education
&
Outreach
2B-2
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
■ Contact three to five multifamily dwellings each moth to increase diversion and
participation in a recycling program; and
■ Assistance with distribution of guides, posters, and reusable bags to HOAs and MFDs
property owners.
Recommendations for Improvement I Expansion of
City Public Education and Outreach Efforts
1. Request more effective data: In order to better assist planning, enforcement, and/or
evaluating the effectiveness of education and outreach program(s), the City should
collect data from residential and/or commercial customers. Obtaining this information
will specifically help in understanding challenges, opportunities, and strategies for
effective waste systems. Such information may include waste characterization
information, infrastructure details (space constraints), purchasing protocol, staff
feedback and/or questions, suggestions to the program, etc. The waste hauler may be
able to collect this information on the City's behalf. Likely this information will come
from in-person site-visits and interviews with in-house staff. Check-in/ follow-up with
property managers to confirm whether they have shared information that was
provided for their tenants. Understanding the unique and specific situations that
customers are faced with will help the City and waste hauler develop more effective
program(s).
2. Create printed media as a resource toolkit: Go above and beyond what the State
requires cities to provide businesses by developing a more comprehensive packet of
helpful information and resources for businesses. The goal of the resource guide would
be to educate and train staff how to properly manage their facility's waste. This could
include information related to reduce, reuse, recycling, organics recycling, and the
proper source separation of materials at the bin. This could also include information
on green purchasing polices (see Section 8 -City Government and Community
Purchasing Polices). Staff often want to do the "right thing" in their workplaces but
simply don't know how. A resource guide would help with this.
3. Online updates: More and more, people are turning to internet and social media
platforms to find information, inspiration, and learn. It is important for the City to focus
on the development of its online presence and provide information in an easy-to-
understand, visual way. There are existing on line resources like on line quizzes, games,
and other waste trivia that could help in educating the community about proper source
separation. The City may also want to include more information on its social media
pages, or consider creating a dedicated page (on Facebook, lnstagram, etc.) for
information related to sustainability and solid waste. Examples of content online
include virtual campaigns, online games, resource sharing, video series, commonly
asked questions, etc. The possibilities for engaging people digitally/online are vast and
due to its accessibility, convenience, and visual nature, can be a very effective
educational tool.
4. In-person site visits: The value of conducting in-person site visits for setting up
programs that work efficiently, and for providing training to staff, goes far beyond the
impact of print or on line material. Although this method of conducting education and
outreach takes more time to do than most other elements of an education and
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City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
outrea_ch plan, and the amount of people reached is less than other methods, the
impact is far-reaching. The City should consider conducting (or contract the service
out) site visits to generators to inform them of regulatory requirements, available
programs and services, and provide technical assistance and support with efforts to
maximize diversion and implement sustainable business practices. Waste
Management may currently do this for some business, but the efforts could be
expanded to reach more businesses, and/or provide more visits to the same business
for consistency and follow-up.
5. Update to City resource documents: The City may want to consider updating its
existing resource documents to include information related to proper waste
management within a facility. Some documents to consider are the City's "Guide to
Opening an Eating Establishment", any internal event planning or purchasing
documents that may exist, etc. Documents should be revised to include information
about food donation, food waste reduction, diverting recyclable material and organic
waste, and education about proper source separation and contamination.
6. Promote City-wide diversion opportunities: Increase promotion of existing events /
opportunities not specifically limited to City or franchised events such as green events,
community green events, forums, conferences, etc. The City may consider developing
ways to more actively promote reuse stores, thrift stores, bottle-refilling stations, and
other businesses that are rooted in reducing waste such as with a "green shopping
passport", promotion in local media, social media platforms, etc.
7. More publicity for diversion opportunities: There are opportunities currently
available to Carlsbad's residents that they may not be aware of. The City may want to
consider including information on such opportunities in public education and outreach
media. Examples include drop-off sites for mattresses, carpet, paint, HHW, plastic
bags, batteries, etc. Although some if not most of these diversion opportunities may
be organized and operated by entities other than the City or its contractors, they are
opportunities nonetheless and more publicity could only better help the cause.
8. Promote successful businesses: In order to strengthen the incentive for businesses to
participate in a waste reduction program, the City can promote the efforts of the City's
Recycling Champion, the San Diego Green Business Project, 1 the California Green
Business2 program(s), etc. Promotion may come in the form of stickers, advertisement
in local print media or the City's website, award/certification forms for businesses to
display, etc. Additionally, the City may want to reach out to businesses and survey
what would motivate them to participate and use that information to develop an
incentive strategy.
The San Diego Green Business Program encourages businesses in the region to be more sustainable
by offering tools and resources, and may be referenced in developing education and outreach
and/or providing a participatory incentive to businesses. More information can be found here:
https://www.sandiegocounty.gov/deh/doing_business/chd_greenbus.html
The California Green Business Program is a recognition program for businesses that take steps to
operate more sustainably, which includes elements like energy, water, waste; transportation, etc.
This opportunity is not readily available in San Diego County but may be a good reference in the
future. More information can be found here: https://greenbusinessca.org/
Appendix 2B
Public
Education
&
Outreach
2B-3
August 20, 2019 Item #14 Page 90 of 129
Appendix 2B
Public
Education
&
Outreach
2B-4
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
9. Better record keeping / reporting: Some self-haulers may not be aware of the
necessity of diverting their collected material. In order to provide more information to
this group of the community, the City may want to create or revise existing documents
for self-haulers to document origin of material, material type, where it is being
delivered, etc.
10. Emphasize transparency: Transparency of the City's status with this legislation may
incentivize parts of the community to increase their efforts. The City may want to
consider sharing their covered generator compliance percentage (while maintaining
confidentiality of individual businesses) to demonstrate what additional efforts are
needed as well as highlighting the participation of those businesses that are
incompliance. This may be advertised in conjunction with the City's Recycling
Champions program.
11. Debunk misconceptions / shift public perception: Common misconceptions in the
waste industry include the idea that "people don't care", that "our waste gets
separated anyway" or that "my decisions don't matter anyway". There are surely other
mis perceptions about waste that deeply affect one's behavior towards waste disposal,
and may be effecting decision making at the community level. This recommendation
is an attempt to better understand the community-at-large, and even specific
community groups' misconceptions about waste so that the City and/or Waste
Management can better understand the viewpoints of its customers, the level of
interest, the perceptions, etc. and perhaps address such misconceptions in
programming. The City can take the pulse of the community by conducting polls, case
studies, focus groups, and/or interviews. With this information, the City can develop
informational sheets, communication campaigns, and other educational pieces that
address the public's perception of recycling, food recovery, and other elements of
correct source separation. Additionally, by sharing publicly how the .community feels
and thinks about various waste topics, the City can shift the collective perception. The
idea is to show the level of interest/ support from the community, and what people
want to see or support. For example, many event planners over-plan on meal
preparation because they don't want to run out of food, but perhaps if they knew that
event .attendees were ok with other options, they may order less. Additionally,
restaurants may consider reducing the size of their portions or offering a discounted
price for a smaller portion ifthey knew customers would approve of the change.
One big misconception that food-generating facilities have is the possibility of legal
issues resultant in donating food. Two state laws have been codified that protect the
rights of these businesses and further encourage the donation of edible food: The
Good Samaritan Act, and AB 1219 the California Good Samaritan Act. Providing
information about these laws and encouraging businesses to donate may help to
change the inaccurate perception that it may lead to lawsuit.
12. Promote private resources: There are lots of great waste-saving resources, apps, and
technology developed by private companies that are available to residents and
customers. Some examples include food recovery apps, event planning apps to help
determine the amount/type of food needed, reuse apps for finding donation items,
and more. The City could promote these resources online, in printed media, during in-
person site visits, etc.
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City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing
Materials
13. Regularly scheduled community events: Meeting with organizations in-person to
discuss new laws, strategies, and other elements of proper waste management
programs can be a helpful education and outreach strategy. Although time consuming,
it provides the opportunity to strengthen relationships, collaborate, share resources
and educate people. The City may want to consider hosting quarterly meetings with
umbrella organizations such as the following:
. o Chamber of Commerce;
o Largest waste-generating businesses; and
o Self-haul companies/ landscapers.
Examples of Other Jurisdictions' Successful
Education and Outreach Programs
1. San Francisco -San Francisco Department of Environment developed a custom
Signmaker Tool to help businesses, schools and homes sort materials accurately.
Users can customize the size as well as the items that should go into each ,bin.
2. Emeryville -Similarly, the City of Emeryville offers free stickers, recycling and
compostable containers to Businesses. The City also provides free compost and
recycling training to businesses upon request.
3. Sonoma County -Sonoma County aims to enhance their technical assistance
services by providing bilingual education to support all residents and businesses.
'rhe City partners with their waste hauler to provide on-site education on recycling
and composting as well as best practices for source reduction in Spanish.
4. Baltimore -Mr. Trash Wheel of Baltimore uses the power of nature to keep their
water front clean. The river's current provides power to turn the water wheel,
which collects trash and debris from the water and deposits it into a dumpster
barge. Residents follow Mr. Trash Wheel's Twitter for quirky, yet informative
updates on material bans, statistics on trash collected and tips for waste
prevention.
5. State of Oregon -The state of Oregon implements Sustainable Consumption
Curriculum for grades 6-12 as a subset of Education for Sustainable Development.
Learning outcomes can be categorized as attitudes, knowledge, skills and behavior
leading to ecological responsibility, social responsibility, global solidarity as well as
action and involvement.
6. Boulder, CO -High school students in Boulder, Colorado tour Zero Waste
businesses to see firsthand that business as usual can mean more than profit
maximization. They tour ice cream shops powered by wind, zero waste hotels and
Google's campus that features collection bins for hard-to-recycle items that are
sent to CH a RM for recycling.
7. Boulder, CO Eco-Cycle's Green Star Schools program has more than 80 schools and
21,000 students enrolled in the Boulder County. Eco-Cycle provides ongoing
projects and training to increase recycling, reduce plastic consumption and
provide hard-to-recycle disposals on campus. Green Star Schools also have zero
Appendix 2B
Public
Education
&
Outreach
2B-5
August 20, 2019 Item #14 Page 92 of 129
Appendix 2B
Public
Education
&
Outreach
28-6
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing
Materials
waste lunch programs which allows students to sort their food waste, recyclable
cartons and deposit their reusable plates and utensils into wash stations.
8. Los Angeles -In the City of Los Angeles, the California Department of Conservation,
Division of Recycling sponsors a program to provide at-risk young adults and school
aged youth opportunities for success through job skills training, education and
work experience with an emphasis on conservation and service projects that
benefit the community. These young people develop and service recycling
accounts, set up recyding campaigns and partners with non-profits to deliver
recyclable materials to recycling centers.
August 20, 2019 Item #14 Page 93 of 129
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
Procurement Metrics1
✓ City Department Non-Virgin Material Procurement Rates -The percentage of
materials, by major material type, that are reused or have post-consumer content.
o Proposed Targets:
• 50% by 2022
• 100% by 2025
✓ Percentage of paper products from post-consumer content
o Proposed Targets:
• 100% by 2022
✓ Percentage of paper with 100% post-consumer content
o Proposed Targets:
• 50% by 2022
• 100% by 2025
✓ Tons of Recovered Organic Waste Product utilized
o Proposed Targets:
• 1,000 tons by 2022
• 5,000 tons by 2025
Diversion Metrics
✓ Individual City Department Diversion Rates
o 50% Diversion Rate by 2022
o 75% Diversion Rate by 2025
✓ Designated Hauler Diversion Rate
o Proposed Targets:
• 50% Commercial Diversion Rate by 2025
• 75% Commercial Diversion Rate by 2030
✓ PTS Diversion Rate
o Proposed Targets:
• Green Waste -100% by 2022
• Construction and Demolition Debris -100% Processed by 2022
• Self-Haul Loads -50%+ Targeted Material Capture Rate by 2025
✓ City's CalRecycle (Disposal Based) Diversion Rate
o Proposed Targets:
• 75% by 2025
• 90% by 2030
By individual City department and for City-government overall.
Appendix 2C
Performance
Metrics
Appendix 2C - 1
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Appendix 2C
Performance
Metrics
Appendix 2C -2
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Appendix 2D
U.S. EPA Sustainable Materials Management Program
Strategic Plan
August 20, 2019 Item #14 Page 97 of 129
EPA's Mission
To Protect Human Health and the Environment
Sustainable Materials Management (SMM) Program Vision
Protecting human health and the environment by advancing the sustainable use of
materials throughout their lifecycle to minimize waste and environmental impacts
SMM Program Objectives
Objective 1: Decrease disposal rate -This objective focuses on tracking and reducing the overall amount of materials
disposed, which would encompass activities targeting source reduction, reuse, recycling and prevention.
Objective 2: Reduce environmental impacts of materials -This objective focuses on reducing the environmental
impacts of materials across their life cycle, including greenhouse gas emissions and reductions in water and energy use.
Objective 3: Increase socio-economic benefits -This objective focuses on tracking and reporting material impacts on
the economy as well as social aspects.
Objective 4: Increase capacity of state and local governments, communities and key stakeholders to adopt
and implement SMM policies, practices and incentives -This objective involves increasing the number of states
and communities where SMM capacity has been expanded as a result of EPA' s technical assistance. and support. This
objective also involves increasing the per capita quantity and/or quality of recyclables recovered for manufacturing and
increasing the number of households with access to organic collection and recycling.
SMM Strategic Priorities
The Built Environment
Sustainable Food Management
Sustainable Packaging
Additional Emphasis Areas
Sustainable Electronics Management
Life Cycle Assessment and SMM International Efforts
Overarching Measurement Efforts
August 20, 2019 Item #14 Page 99 of 129
implementing sustainability across the Agency.
Sustainable Food Management continues to be
recognized by the Administrator, across the Agency and
with outside stakeholders as an area of significant
importance. The White House Council on Environmental
Quality recognized and supported SMM Program efforts
around the Federal Green Challenge and continues to
recognize EPA's leadership role across federal agencies
in the National Strategy for Electronics Stewardship.
SMM Program efforts also are aligned with international
priorities and efforts aimed at managing our global
resources. SMM is recognized internationally and EPA
is collaborating with partners and stakeholders in a variety
of initiatives such as: the UNEP 10 Year Framework of
Programme Consumption and Production, efforts led by
the Organization for Economic Cooperation and
Development, and the development of the United
Nation's Sustainable Development Goal for the U.S. that
addresses food loss and food waste, among others. Most
recently, EPA represented the U.S. Government in the G7
Resource Efficiency area and saw its recommendations
on materials management and life cycle-based decision
making reflected in the G7 Declaration and Annex that
resulted from the G7 Summit of world leaders in June
2015. Significant follow-up efforts are underway related
to the G7 Alliance formed that will continue to progress
SMM approaches and concepts at home and abroad.
The SMM Program Strategic Plan specifically builds on
efforts initiated in 2010 when the Office of Resource
Conservation and Recovery (ORCR) and the EPA
Regions shifted program emphasis from a broad array of
resource recovery initiatives to sustainable materials
management. The current SMM Program has
demonstrated measureable results in its efforts in
sustainable food management, sustainable electronics
management and the federal government leading by
example (which include the Food Recovery, Electronics
and Federal Green Challenges); measurement, state
capacity, and local government zero waste efforts; and
efforts to support evaluating the beneficial uses of
industrial materials. Much has been learned from the
current SMM Program and EPA has received and will
continue to seek input on its SMM initiatives both
informally and formally ( e.g., Packaging Dialogue
(2012), Electronics Forum (2014), Sustainable Food
Management Summit (planned for November 2015), and
various discussions at the EPA regional level.
In FY 2017-FY 2022, EPA will continue to invest in
improving measurement systems that can be used to track
and evaluate trends associated with prevention, reuse,
recycling, disposal, processing capacity, feedstocks for
markets, and public access to recycling or reuse options.
In addition, EPA will maintain and improve the analytical
tools and methods for quantifying the environmental and
economic impacts of SMM efforts. Work will build on the
current three SMM Challenges to better support the
strategic priorities. The beneficial use evaluations for
industrial materials and C&D materials will be completed
and shared and will serve as the foundation for future
efforts. Finally, collaboration with stakeholders at the
national and international levels will continue and be
strengthened.
SMM Program Objectives & Strategic
Priorities
The three strategic priorities chosen as the focus of the
SMM Program from FY2017 to FY2022 present
significant opportunities for environmental, economic,
social (and program performance) results. The Strategic
Priority Areas are: 1) The Built Environment; 2)
Sustainable Food Management; and 3) Sustainable
Packaging. Work under each of these areas will support
the four primary SMM Program objectives to:
1. Decrease the disposal rate, which includes source
reduction, reuse, recycling and prevention;
2. Reduce the environmental impacts of materials
across their life cycle;
3. Increase socio-economic benefits; and
4. Increase the capacity of state and local governments,
communities and key stakeholders to adopt and
implement SMM policies, practices and incentives.
The specific activities provided as examples under each
Strategic Priority Area in this Strategic Plan are only a
sampling of potential efforts and might evolve based on
program transition efforts in FY2016 and early FY2017.
These example activities also represent a continuum;
different parts of the country have different needs relative
to materials management. It also is important to leverage
existing stakeholder relationships, and EPA expertise and
capacity that varies from Region to Region and in
Headquarters. Thus, not every EPA Region will engage
in every activity being proposed under this Strategic Plan;
there is a flexible yet focused package of recommended
core elements and action areas that are measurable,
scalable, and when combined, enable us to implement a
cohesive national SMM Program focused on management
of materials throughout their life cycle. EPA will
continue to commit to achieving specific goals within the
recommended national program priority areas. Greater
emphasis will be placed on targeting, measuring and
reporting environmental outcomes to augment the current
targeting of specific numbers of SMM Challenge
participant recruitment and retention.
August 20, 2019 Item #14 Page 101 of 129
The Built Environment:
1. Incorporate lifecycle SMM concepts into the built
en vironment marketplace.
Anticipated Outcomes by 2022:
• Increase safe reuse and recycling of C&D materials.
• Increase the safe beneficial use of high priority
industrial byproduct materials.
2. Advance climate adaptation and community
resilience efforts.
Anticipated Outcomes by 2022:
• A national data tracking approach to begin to measure
amounts of debris generated and how it is managed.
• Decreased disposal of debris (measured by new
national tracking system).
• Improved disaster debris management plans in
communities to enhance resilience to disasters.
• Improved building codes and ordinances in
communities to reduce disaster debris.
3. Improve and enhance data & measurement of C&D
and industrial byproduct materials.
Anticipated Outcomes by 2022:
• A national baseline and trend data for generation,
reuse, recycling and disposal of C&D materials
(based on methodology implemented in FY16).
• A national, replicable methodology to provide
baseline and trend data for generation, reuse,
recycling, and disposal of high-priority industrial
byproduct materials; and
• Improved and expanded WARM and other tools and
calculators to allow quantification of environmental
and economic benefits and impacts related to C&D
materials management and industrial byproduct
materials.
Sustainable Food Management:
1. Develop an infrastructure to support alternatives to
landfill disposal of wasted food.
Anticipated Outcomes by 2020:
• Increase the number of new and existing composting
and anaerobic digestion facilities that accept wasted
food.
2. Promote opportunities across the entire food life
cycle to reduce wasted food from landfills, with a
\ preference for those approaches higher up on EPA 's
food recovery hierarchy.
Anticipated Outcomes by 2022:
• ·. Make progress towards the U.S. 50% reduction of
food loss and waste 2030 goal by decreasing the
amount of wasted food from retail to consumer, as
well as the amount of food waste ultimately disposed
of in landfills.
3. Improve and standardize measurement of wasted
food.
Anticipated Outcomes by 2022:
• Quantify the number of composting and anaerobic
digestion facilities that accept wasted food.
• Align EPA's measurement with other national and
international protocols to create uniform methods;
and
• Develop a comprehensive report on food loss that
identifies key opportunities to target source reduction
and diversion activities within the food life cycle and
capture the environmental, social and economic
impacts from wasted food.
Sustainable Packaging:
1. Convening and Partnerships: Infrastructure.
2. Work Across EPA and with Other Federal Agencies
as Strategic Partners.
3. Research, Data, and Measurement for Packaging ..
Anticipated Outcomes by 2022:
• Increase per capita quantity of recyclables collected.
• Increase yield rates of recyclables collected,
processed and made available to the secondary
materials market (quality).
• Increase average household lbs/year of recyclables
collected.
• Increase access to and participation in recycling
collection.
Additional Emphasis Areas: Work will also be
conducted in the area of Sustainable Electronics
Management ( e.g., SMM Electronics Challenge and
National Strategy for Electronics Stewardship). There are
Life Cycle Assessment (LCA) efforts involving the
development of tools, SMM indicators and work to
develop a Federal LCA Commons (a network of
interoperable data, databases and models that facilitate the
ability to conduct LCAs). In addition, SMM international
efforts and overarching measurement and analysis that
support the SMM Program will continue.
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City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
Introduction
Rates and rate structures play an important role in sustainable materials management
systems. Rates must be set so that the haulers', and processing facility operators' additional
costs for diversion programs are fully funded. Additionally, rate structures should be designed
to incentivize the generator (i.e., residential and commercial accounts, and self-haulers) to
divert the targeted materials.
Residential Rates
Background
Jurisdictions use a range of residential rate structures. In California, variable can rates are
common. The term "variable can rate" (or "pay-as-you-throw") refers to the structuring of
garbage collection rates so that different sized containers are charged different rates, as
compared to a "flat rate" where the price is the same regardless of service volume (e.g., the
cost for a 64-gallon container is the same as a 90-gallon container).
There are four general types of variable can rate pricing structures:
1. Regressive: The per-unit cost of the container decreases as container size increases.
2. Volume-based: The per-unit cost is the same for all container sizes.
3. Progressive: The per-unit cost of the container increases as the container size
increases.
4. Cost of Service: The price is set based on the actual cost to service the different
container sizes.1
A major objective of variable can rates is to provide an economic incentive for residents to
participate in recycling programs, which were typically provided at no additional cost (i.e., built
into the solid waste rate and not visible to the customer on the rate sheet). Under this system,
a resident that actively recycles can potentially reduce their solid waste service level (e.g., from
90-gallons per week.to 60-gallons per week), and realize an associated cost savings.
While variable can rates have supported jurisdictional diversion efforts by providing a financial
incentive to residents to recycle and reduce their solid waste service level, significant
differences in the cost between 30, 60 and 90 gallon carts has been cited as a contributing
factor to the contamination of residential recyclables, which has contributed to China's current
ban on contaminated recyclables. Some jurisdictions that had more aggressive variable rates
have moved toward "cost of service" rates to eliminate the financial subsidies among 30, 60
The cost to collect a 20-gallon container is largely the same as a 90-gallon container, the only major
cost differences are the cost of the container and the disposal cost. This translates into a difference
of perhaps $5+/-dollars per month (i.e., the cost of service differential).
Appendix 4A
Rates and
Rate
Structure
Appendix 4A -1
August 20, 2019 Item #14 Page 107 of 129
Appendix 4A
Rates and
Rate
Structure
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
and 90 gallon accounts that are inherent to variable can rate structures, and potential
Proposition 218 issues, and/or to attempt to reduce recyclable material contamination.2
Residential Rate Structure
Carlsbad's monthly residential rate for a 64-or 96-gallon cart is $21.55, while the cost of a 35-
gallon cart is $19.51 per month; $2.04 less that the 64-96 gallon rate. An extra trash cart costs
$2.48 per month. The current rate structure provides a backyard service option at a monthly
rate of $27.57.
Residential Rate Structure Analysis
Carlsbad's residential rate structure is a reasonable representation of a Cost of Service rate
structure, which we is consistent with Proposition 218 and should be maintained. The current
rate for backyard service is well below the actual cost of that service.
Rate Structure Recommendations
■ Maintain the current residential rate structure;
■ Eliminate the option for backyard service, except for accounts were there is no able
bodied person in the house, and they provide a doctor's note. 3
■ Explore mechanisms to "incentivize" increased residential recycling, green waste, and
organics diversion, including prohibiting the disposal of residential recyclables, green
waste, and organics (i.e., mandatory residential recycling and organics diversion
ordinance), and establish a fee for recyclables and organics placed in the solid waste
container.4
Commercial Rates
The city's commercial rate structure will need to be redesigned under a universal collection
system. As part of that redesign process, consideration should to be given to opportunities to
incentivize commercial accounts to fully participate in the commercial recyclable material (AB
341) and commercial organic waste (AB 1826 and SB 1383) diversion programs.
Background
Subsidized Recycling and Organic Rates
Fully Subsidized (Bundled) Rates -It has been the common practice of many jurisdictions to
offer commercial recycling service at no additional cost to the account, with a single solid waste
rate that includes commercial recycling service (and in some cases organic service). Under this
4
It can also be argued that any variable can rate structure other than cost of service rates penalizes
larger families who may generate less trash per family member than smaller families, but due to
the larger number of family members generate more trash overall.
If Carlsbad wishes to maintain backyard service it is recommended that the rate be set to at least
cover the cost of service, which is likely at least double the existing monthly rate.
E.g., The city of Watsonville has a "Recycle Items in Garbage Cart" fee of $24.75.
Appendix 4A -2
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City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
rate structure there is significant financial incentive for commercial accounts to participate in
the recycling programs as doing so can enable them to reduce their weekly solid waste service
level and their monthly rate.
While this type of rate structure provides a significant incentive to commercial accounts to
participate in commercial recycling programs, it has the exact opposite impact on the private
hauler. The more commercial accounts that subscribe to the commercial hauler's recycling
program the more it costs the hauler, as they have to provide additional services. This creates
a significant financial disincentive for haulers to actively increase commercial recycling
. participation or recyclable material capture rates. In addition, as commercial accounts increase
their recovery of recyclable materials, they can reduce their solid waste service levels, which
results in lower net revenues to the private haulers. This results in a second negative financial
incentive for haulers to actively increase commercial recycling.
Partially Subsidized Rates -It is becoming more common for jurisdictions to set a rate for
commercial recycling and commercial organic services that is less than the cost of solid waste
service (e.g., 50% of the solid waste rate). Under this type of rate structure there is still a
financial incentive for businesses to recycle materials, although less than the financial incentive
that a fully subsidized rate provides, and revenue is generated for the hauler to offset at least
some of the associated cost of providing recycling and organic services. The extent to which
the recycling rate (or organic rate) covers, or does not cover the actual cost of providing
recycling service determines if there is still any level of financial disincentive for the hauler to
increase its commercial recycling efforts.
Cost of Service Rates
From the hauler's perspective, the "breakeven" rate for providing recycling and organic
services is a "cost of service rate". A cost of service rate fully covers the cost to the hauler of
providing the service, without surplus or subsidy. The "problem" with cost of service
commercial recycling rate is that the cost of commercial recycling is approaching the cost of
solid waste disposal and as such there is little if any financial incentive for accounts to actively
recycle. There is even more of a "problem" with commercial organics recycling cost of service
rates, since the cost of commercial organic service is often as much, or more than the cost of
solid waste disposal. This results in a negative financial incentive to the generator to participate
in the program.
SB 1383 Food Recovery Funding
SB 1383, as currently drafted, requires that Carlsbad implement an edible food recovery
program. Food recovery is a waste management activity, as that material would otherwise
enter the waste stream. As such, some level of SB 1383 food recovery funding through the
commercial rates is not unreasonable. In fact, SB 1383 specifically provides for funding
required food recovery operations through "franchise fees, local assessments, or other funding
mechanisms",5 and requires that a jurisdiction obtain funding for and additional required
edible food recovery infrastructure (Section 18992.2(b) -Page 26).
The SMMP envisions establishing a funding mechanism through the solid waste rates that not
only covers the cost of additional food recovery infrastructure (e.g., edible food recovery and
distribution costs), but also the cost of the existing edible food recovery infrastructure. In doing
Section 18991.l(b) -page 23.
Appendix 4A
Rates and
Rate
Structure
Appendix 4A - 3
August 20, 2019 Item #14 Page 109 of 129
Appendix 4A
Rates and
Rate
Structure
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
so, it is Carlsbad's objective to provide a sustainable funding source for all edible food recovery
and distribution operations in the city, which is a Best Management Practice.
Commercial Rate Structure
The city's commercial rate structure establishes solid waste rates for varying bin sizes from 2
to 5 cubic yards, and varying weekly collection frequencies of from one to six times per week.
There are separate rates for commercial recycling and commercial yard waste cart and bin
service. There is also a commercial 3-yard split bin rate.
Rates for 35, 64, and 96-gallon commercial cans collected up to three times per week are also
set. Those can rates include one 96-gallon recycling cart for the same rate.
Commercial Rate Structure Analysis
The city's commercial rate structure is broken into separate commercial solid waste, recycling,
and yard waste rates. A comparison of those rates is provided in Attachment 1. As shown,
commercial recycling rates are set at between 45% and 72% of the associated solid waste rate
depending on the size of the container and frequency of collection, while commercial yard
waste rates are effectively the same as the solid waste rate (99%-102%) for the same level of
service.
Rate Structure Recommendations
The commercial rate structure should be redesigned with the implementation of universal
commercial organic recycling (Phase 1), and universal commercial recycling (Phase 2). The new
rate structure should include a base rate tied to the solid waste service volume, which covers
the cost of the solid waste service level, plus a minimum weekly commercial recycling service
level (e.g., 90-gallons), and a minimum weekly commercial organic collection service volume
(e.g., 90 gallons).6 Charges for additional recycling collection and organic collection service
levels should be set based on the actual incremental cost to provide that additional service
volume.7
Roll-Off Rates
Roll-off rates are comprised of a cost per pull regardless of the size of the debris box8 with the
processing or disposal tip fee charged directly to the customer based on the number of tons
and per ton processing or disposal rate. This is a cost of service rate structure. The SMMP
envisions maintaining the current roll-off rate structure, with requirements for processing of
loads with targeted materials (e.g., construction and demolition debris).
6 To maximize diversion, all commercial accounts, not just AB 341 covered generators should be
provided with commercial recycling service.
Under this rate structure there may be a need to adjust rates and hauler compensation after the
roll-out of universal services to reflect actual versus projected service levels.
The rational is that it costs effectively the same to deliver and collect a 20 yard debris box as it does
a 10, 30 or 40 yard debris box.
Appendix 4A - 4
August 20, 2019 Item #14 Page 110 of 129
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
Construction & Demolition Rates
Amendment 3 to the Palomar Transfer Station operating contract established a "PTS
Construction and Demolition Fee" of $55.00 per ton, as compared to the PTS Solid Waste Fee
of $39.00 per ton. This rate applies to the city's contract hauler, as well as self-haulers. The
higher fee for C&D debris is to compensate Republic for the additional cost associated with
processing C&D debris at its Otay C&D/lnert Debris Processing Facility.
On of the issues that CalRecyle raised with respect to the city's C&D diversion program was
that:
The cost of the franchise hauler C&D recycling service is far more than disposal services.
This significant price difference is compelling disincentive for smaller projects -that
· tend to not self-haul their recycling -to recycle
It is not clear what the above statement was referring to, as the city's approved rate schedule
includes 3-, and 4-yard temporary C&D Recycling Bins at a rate less than the associated Special
Haul Bin Rates.
CalRecycle could have raised a similar "concern" with respect to the PTS rate for C&D debris,
which as discussed above, is significantly higher than the associated solid waste rate. As such,
there is a financial disincentive for users delivering C&D debris to the PTS to have that material
handled as C&D debris. Unless there is a need for the entity that is delivering C&D debris to
have that material classified as C&D debris and processed {e.g., for purposes of supporting
LEED certification), or C&D debris received at the PTS is required to be processed that material
would continue to be received as solid waste and landfilled.
The bottom line is that it costs more to process C&D debris than it does to landfill that material.
As such, unless the city's contracted hauler and PTS contractor are compensated for that
additional cost through the rates or other means {e.g., subsidized by the overall residential or
commercial rates), it is not reasonable to require them to absorb that additional cost.
Comparative Rate Survey
Attachment 2 provides the results of a residential and commercial rate survey that was
completed by CWM in 2018, and accounts for differences in the following components of those
rates:
■ Hauler compensation;
■ Franchise fees;
■ AB 939 fees;
■ Stormwater fees;
■ HHW fees; and
■ Other fees.
As shown, the hauler compensation portion of the city's residential rate is among the lowest
in San Diego County, and the hauler compensation portion of the city's commercial rate for a
3-yard container collected one time per week is the lowest in the County.
Appendix 4A
Rates and
Rate
Structure
Appendix 4A - 5
August 20, 2019 Item #14 Page 111 of 129
Appendix 4A
Rates and
Rate
Structure
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
Attachments:
1 Commercial Solid Waste, Recycling and Yard Waste Rate Comparison
2 Rate Survey
Appendix 4A - 6
August 20, 2019 Item #14 Page 112 of 129
Commercial Solid Waste Commercial Solid Waste
Frequency (times/week) Frequency (times/week)
1 2 3 4 5 6 1 2 3 4 5 6
;:;;-2.0 $ 82.03 $ 144.42 $ 206.83 $ 269.15 $ 331.59 $ 393.99 "C .?) 3.0 $ 111.47 $ 203.31 $ 295.1 2 $ 386.94 $ 478.76 $ 570.60 QI .!:! 4.0 $ II) 148.66 $ 277.66 $ 406.71 $ 535.71 $ 664.73 $ 793.75
;:;;-2.0 $ 82.03 $ 144.42 $ 206.83 $ 269.15 $ 331.59 $ 393.99 "C .?) 3.0 $ 111.47 $ 203.31 $ 295.12 $ 386.94 $ 478.76 $ 570.60 QI .!:! 4.0 $ II) $ 148.66 277.66 $ 406.71 $ 535.71 $ 664.73 $ 793.75 C: iii 5.0 $ 185.85 $ 352.08 $ 518.29 $ 684.50 $ 850.73 $ 1,016.95
C: iii 5.0 $ 185.85 $ 352.08 $ 518.29 $ 684.50 $ 850.73 $ 1,016.95
Commercial Recycling Commercial Yard Waste
Rates Rates
Frequency (times/week) Frequency (times/week)
1 2 3 4 5 6
;:;;-2.0
"C .?) 3.0 $ 80.56 $ 136.29 $ 192.01 $ 247.73 $ 295.69 $ 354.61 QI .!:! II) 4.0 $ 81.87 $ 138.49 $ 195.11 $ 251 .72 $ 300.46 $ 360.33 C: iii 5.0
1 2 3 4 5 6
;:;;-2.0
"C .?) 3.0 $ 11 3.76 $ 201.27 -~ II) 4.0
C: iii 5.0
)>
6f (') :::r
3
(I)
::::s .... -
Percent of Solid Waste Rate Percent of Solid Waste Rate
Frequency (times/week) Frequency (times/week)
1 2 3 4 5 6 1 2 3 4 5 6
;:;;-2.0
"C ;:;;-2.0
"C .?) 3.0 72% 67% 65% 64% 62% 62% .?) 3.0 102% 99% QI N in 4.0 55% 50% 48% 47% 45% 45%
QI .!:! II) 4.0
C: C: iii 5.0 iii 5.0
August 20, 2019 Item #14 Page 113 of 129
Rate Survey
City
Carlsbad
Oceanside
Escondido
San Marcos
Chula Vista
Santee
La Mesa
Solana Beach
Encinitas
Lemon Grove
Poway
Del Mar
Imperial Beach
Coronado
El Cajon
Vista
National City
Q.3
Page 2
Attachment 2
City of Carlsbad I Sustainable Materials Management Plan I From Managing Discards to Managing
Materials
Table 2
Commercial Rate Comparison (3 yard bin - 1 time per week)
Hauler Franchise AB 939 Storm HHW Other Total Effective Date Compensation Fee Fee Water Fee
$84.10 $8.83 $0.00 $18.54 $0.00 $111.47 Effective 7/1/18
$86.75 $8.36 $0.00 $3.16 $0.00 $5.26 $103.53 Effective 7/1/18
$92.78 $10.31 $0.21 $0.00 $0.52 $103.82 Effective 1/1/18
$92.78 $21.20 $0.00 $0.00 $0.00 $113.98 Effective 7/1/17
$92.98 $18.60 $4.64 $0.00 $0.00 $116.22 Effective 7/1/17
$94.13 $11.36 $2.27 $0.00 $0.00 $107.76 Effective 7/1/18
$94.99 $3.93 $4.12 $0.00 $0.59 $103.63 Effective 7/1/17
$95.15 $7.81 $1.09 $10.25 $0.00 $114.30 Effective 7/1/17
$95.86 $5.05 $0.32 $0.00 $0.00 $101.23 Effective 7 / l/ 17
$98.14 $12.25 $0.97 $0.00 $0.00 $111.36 Effective 7/1/17
$99.02 $11.00 $0.00 $0.00 $0.00 $110.02 Effective 7/1/17
$99.73 $12.43 $0.00 $0.00 $0.00 $12.16 $124.32 Effective 7/1/18
$100.44 $56.50 $0.00 $0.00 $0.00 $156.94 Effective 7/1/17
$101.42 $0.00 $7.67 $0.00 $0.00 $109.09 Effective 7 /1/17
$10i.95 $18.55 $3.17 $0.00 $0.00 $123.67 Effective 7/1/18
$103.09 $11.45 $0.00 $0.00 $0.00 $114.54 Effective 7/1/17
$103.51 $10.57 $3.38 $0.00 $0.00 $117.46 Effective 7/1/17
August 20, 2019 Item #14 Page 115 of 129
Appendix SA
City Government and Citywide Sustainable Purchasing
Policies and Practices
August 20, 2019 Item #14 Page 116 of 129
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
City Government Sustainable Purchasing Policies
Overview
When local governments commit to purchasing sustainable products, more responsibly-
sourced goods, buying less and adopting strong and clear policies around these practices, they
can save money, protect human and environmental health, improve the availability of green
products in the marketplace, conserve resources, and lead by example. Local governments are
often the largest consumer of commodities and services in any community, a fact which gives
them significant leverage to promote better purchasing. What's more, when governments
demonstrate that committing to environmental purchasing is possible within their own
operations, it gives them the credibility to ask businesses and residents in the wider community
to follow suit. Sustainable procurement can be best achieved by adopting a strong, clear,
streamlined procurement policy that acknowledges local context, includes best practices, and
has an accompanying plan for implementation (often in the form on regulations). The best
sustainable procurement policies will not only be effective in achieving purchasing goals, but
will also send a signal -both internal and external -that sustainable purchasing is an integral
part of a community that has committed to reducing its negative impact on the environment.
Current Carlsbad Purchasing Policy
Carlsbad's purchasing policy is "to purchase and use recycled products except when such use
negatively impacts health, safety or operational efficiency." The Contracting and Purchasing
Department grants "A 15 percent preference, not to exceed $1,000 per contract," for recycled
products, with "The preference percentage ... based on the lowest bid or price quoted by the
vendor or contractor offering non-recycled products." 1
While this language is an excellent starting point, Carlsbad's commitment to adopting a
Sustainable Materials Management Plan is an opportunity to look at sustainable purchasing in
a more holistic way and codify an unrivaled green purchasing policy that will establish the best
possible building blocks for a first-class program. The following two sections describe various
regional, state and federal policies related to green purchasing to inspire an updated policy as
well as tested recommendations to consider when shaping an updated sustainable purchasing
ordinance.
State and Federal Policies and Commitments to Sustainable Purchasing
There are a variety of federal, state and regional policies and commitments that outline or
require environmentally preferable purchasing practices. While most of these do not impose
requirements specifically on Carlsbad, they can be valuable guidelines; key initiatives are listed
below:
1) SB 1383 (Article 12) -While still in regulatory development phase, the current
proposed procurement regulations of SB 1383 (Article 12) would require California
jurisdictions to procure finished compost and recycled paper products that meet
certain minimum requirements. 2
http://www. ca rlsba d ca .gov/ services/de pts/fi na nee/ contracting/ d efa u It. asp
https ://www. ca I recycle. ca .gov/docs/ er /I aws/ ru I em a king/ slcp/ pro posed regu I ati ons. pdf
Appendix SA
City
Government
and
City-Wide
Sustainable
Purchasing
Policies and
Practices
SA-1
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Appendix SA
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Government
and
City-Wide
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Purchasing
Policies and
Practices
SA-2
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
It is highly recommended that any purchasing policy adopted by the City includes a
reference to and is consistent with, or exceeds, SB 1383 requirements.
2) EPA's Comprehensive Procurement Guidelines (CPG) -Since the first guidelines were
issued in 1983, the CPG of the Resource Conservation and Recovery Act (RCRA} have
been a go-to resource.3 4 Though more than three decades old, the CPG still proves to
be an effective tool. The federal government and jurisdictions across the country use
these guidelines to require minimum levels of recycled content for 61 commonly
purchased product categories. Many jurisdictions have formally integrated the CPG
int.a a local ordinance. While these guidelines only relate to recycled content and are
not considered the most progressive, requiring the purchase of CPG recycled levels at
a minimum is an easy starting point.
3) Executive Order 13693: Planning for Sustainability in the Next Decade -Executive
Order 13693 is a policy that focuses on reducing the federal government's greenhouse
gas emissions by at least 40 percent over the next decade, relative to 2008 levels.5 It
recognizes that the products we purchase, at all points in their lifecycle, can have an
impact on the climate. Included in the policy is a wide range of sustainability
purchasing commitments, from buying Energy Star electronics and appliances, to post-
consumer recycled paper, to water conserving building materials, to less-toxic
chemicals. This policy is inspirational, and many commitments can easily be adapted
for Carlsbad and included local ordinance or goals.
4) World Environment Day's Urban Environmental Accords-In 2005, mayors across the
world committed to 21 actions recognized as the Urban Environmental Accords.6 One
of these actions was to commit to enacting citywide policies reducing the use of
disposable, toxic and non-renewable products by at least 50%. Carlsbad might consider
adopting a similar goal.
5) Green Cities California -By becoming a member of Green Cities California, Carlsbad
could join 17 other jurisdictions that have pledged to purchase only 100% post-
consumer recycled content, eliminate the use of bottled water, address
overconsumption, purchase climate friendly foods, and share resources and best
practices.7
Green Purchasing Policy Framework
Even the most forward-thinking and well-intentioned sustainable purchasing programs can be
ineffective if the foundational poli cy lacks certain key elements. The report by the Urban
Sustainability Director's Network and the Responsible Purchasing Network outlines excellent
recommendations in, The Buck Starts Here: Sustainable Procurement Playbook for Cities by
Alicia Culver of RPN and others.8
3
4
5
https://www.epa.gov/smm/comprehensive-procurement-guideline-cpg-program
https://www.epa.gov/rcra
https ://www.epa.gov/ green i ngepa/ executive-ord er-13693-pl an n i ng-f edera 1-s usta in a bi I ity-next-
d ecad e
https://sfenvi ron ment.org/sites/ default/files/ editor-
u ploads/in itiatives/uea _Urban_ Envi ronmenta I_ Accords.pdf
http://www.greencitiescalifornia.org/
http://www. responsiblepurchasi ng.org/pu rchasing_gui des/playbook _for_ cities/rpn_ usd n_
playbook_for_cities.pdf
August 20, 2019 Item #14 Page 118 of 129
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
Many guidelines below are adapted from pages of this report and from first-hand experience
with green purchasing for local government by Cascadia Consulting Group. The best
sustainable purchasing policies include key elements such as aggressive but achievable goals,
requirements for measuring progress, commitment to source reduction, clear delineation or
roles and responsibilities and more. As they say, the devil is in the details. Carlsbad should
consider incorporating some or all of the following best practices into a new sustainable
purchasing policy:
1) Establish sustainable procurement goals. By establishing clear goals, staff will be held
accountable to measure sustainable procurement and continuously improve the
program. Goals can be part of a city resolution, an executive order, or an overarching
comprehensive purchasing ordinance. The City might consider committing to
increasing the amount of environmentally preferable products by a certain percentage
every year, or to decreasing the amount of harmful products purchased. Another
strategy is to set measurable goals for certain product categories or for the entire
profile of products purchased. To determine where best to start, it would be beneficial
to conduct a baseline analysis of current purchases, identify priority product
categories, and develop goals from there. Goals should be specific, measurable,
achievable and time-bound.
2) Delineate staff roles and responsibilities. Key staff should be identified and held
accountable to meeting policy goals. It is critical that the appropriate departments
and people are responsible for administration and enforcement of the ordinance.
These staff should have authority over citywide purchasing decisions, such as the
department head and employees of the Contracting and Purchasing Division. Other
jurisdictions have made the mistake of giving an environmental department exclusive
responsibility for overseeing the purchasing program, only to find later that their work
lacks effectiveness and has fostered a tense relationship with purchasing staff.
Consider designating a supporting role to Environmental Management staff, such as
requiring regular research of sustainable products, making recommendations for
targeted product categories, product specification guidelines, and updating
recommendations regularly.
3) Identify products to target and prohibit during the regulation process and review
regularly. It is difficult, and in most cases, impossible, to review every purchase by City
staff to determine if requested products have sustainability attributes. By prioritizing
product categories through regulation and updating this list regularly so, staff can
focus their efforts where they count. Factors to consider when identifying priority
categories could be quantity purchased, dollars spent, impacts on human health (food,
chemical cleaners, batteries), green product availability and price (compared to the
more harmful products), and promotion of waste prevention or more composting (for
example, electric hand dryers, compostable bags, etc.). Carlsbad might also consider
developing a prohibited products list which could include committing to banning the
purchase of bottled water, polystyrene foam, plastic products labeled "biodegradable"
or virgin office paper to name a few options.
4) Require development of sustainable procurement tools. Because many procurement
-employees lack expertise around environmentally preferable products, access to tools
and resources will support contracting staff with making easy, informed decisions and
Appendix SA
City
Government
and
City-Wide
Sustainable
Purchasing
Policies and
Practices
SA-3
August 20, 2019 Item #14 Page 119 of 129
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City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
increase the likelihood that they will fully integrate green purchasing into their regular
operational procedures. A few resources that may be helpful to develop are below:
■ Authorization of the use of third-party certification labels. For example,
Cradle to Cradle for consumer goods,9 Energy Star for appliances, 10 EPEAT for
electronics,11 or Green Seal for cleaning products or paper.12 Carlsbad might
consider requiring the Environmental Management division to vet third-party
certifiers and develop a list of labels that are stringent and not backed industry
groups.
■ Model contract specifications for priority product categories. Many
jurisdictions from around the country with green purchasing programs are
willing to share their research and contract language, and much is available
online. There is no need to reinvent the wheel but the Environmental
Department might consider designating a staff person to conduct this research
task once per year. The employee should consolidate this information and
recommend certain model contracts to use as templates. Staff might even
recommend "piggybacking" off of certain contracts with open agreements.
■ Summarize preexisting guidelines. Such as the EPA's Comprehensive
Procurement Guidelines for city staff and highlight the most relevant for
Carlsbad.
■ Develop a green contracting process checklist and provide this resource to
purchasing agents. Environmental and Contracting staff could collaborate to
develop this resource. This checklist will help remind the purchasing division
all the important steps to follow and ensure targeted product bids only allow
for products that meet minimum requirements and prevent unwanted
products from being included at all.
5) Make sustainable procurement the default action for all major purchasing decisions.
If those who are making purchases need to take a variety of extra steps to determine
how and where to purchase sustainable products, they are less likely to make the right
choice. Sustainable purchasing can be made easy through a variety of methods. Staff
could be required to go out to bid for targeted product categories, include green
products specifications in RFPs and only make contracted products available that meet
sustainable specifications. They could consider upgrading their purchasing software
interface to only allow certain products to be purchased or work with their vendors to
design custom catalogs for green products and prohibit the purchase of unwanted
products where available.
6) Incorporate life-cycle costing (LCC), total cost of ownership (TCO), or other best value
assessment methods when making purchasing decisions. According to the
Responsible Purchasing Network, "using LCC or TCO, rather than relying only on initial
cost as the basis for making purchasing decisions, offers the most economic value over
the lifecycle of the product.
9 https://www.c2ccertified.org/
10 https://www.energystar.gov/
11 https://greenelectron icscouncil .org/ epeat/ epeat-overview /
12 https://www.greenseal.org/
August 20, 2019 Item #14 Page 120 of 129
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
Sustainable products and services can reduce costs associated with energy and water
consumption, waste disposal, etc. or yield other benefits (such as improving air quality
or helping a municipality meet its water quality goals). However, they can have a
higher initial price. Conversely, some less sustainable purchases with lower initial price
tags may cost the jurisdiction additional funds through their useful lives (e.g.,
additional energy costs, hazardous waste removal costs, etc.). In order to be able to
guard against unwanted additional costs from less sustainable products, and also
justify sustainable products and services in the procurement decision making process,
staff may need to be expected to account for these total costs and benefits in all
relevant purchases."13
7) Avoid being too prescriptive. It is generally not practical to develop sustainability
standards for all products, especially since environmental attributes evolve over time.
Making policies that are too prescriptive or that do not allow for future flexibility can
lock a jurisdiction into addressing only certain product types, focus staff on evaluating
products in a narrow way and prevent evolution of the sustainable purchasing
program. It is recommended that any future procurement policy adopted by the City
be flexible and adaptable to a changing marketplace.
8) Include waste prevention as part of the mandate. The most environmentally
responsible product is one that is never purchased. Many communities have
committed to buying less as part of their purchasing policy. To do this, the policy can
consider including a variety of source reduction mandates such as requiring a program
that makes City-owned furniture, electronics, equipment and supplies available to
other City offices for reuse (through redistribution) before buying new. The City and
County of San Francisco has an excellent "Virtual Warehouse"14 and the template
online materials exchange platform is available at no charge to other jurisdictions.15
Carlsbad might also consider measuring waste reduction as part of tracking
requirements and rewarding those agencies that have reported fewer purchases over
time with public recognition or awards. Finally, Carlsbad could consider removing any
penalties associated with not using budget funds for commodities purchasing (doing
away with use-it-or-lose-it budgeting). Practicing effective source reduction will
eliminate impacts associated with entire product lifecycles such as mining, water use,
chemicals, GHG emissions and resource consumption -and doing it well will eliminate
the need to spend time determining which product is the right one.
9) Include tracking and reporting requirements. In order to determine if a program is on
track to meet its goals, program performance must be measured. All vendors selling
to Carlsbad should be obligated to submit regular purchasing reports which includes
product information, data around products sold with required environmental
attributes and those that do not. Vendors should be required adhere to a standard
reporting formats in order to make it easy for city staff to consolidate numerous
reports and track city wide performance.
13 http://www.responsiblepu rchasi ng.org/purchasi ng_gu ides/playbook _for_ cities/rpn _ usd n _
playbook_for_cities.pdf
14 https:/ /warehouse.sfenvironment.org
15 https:/ /sites.google.com/a/sfenvironment.org/virtual-warehouse-template
Appendix SA
City
Government
and
City-Wide
Sustainable
Purchasing
Policies and
Practices
SA-5
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Appendix SA
City
Government
and
City-Wide
Sustainable
Purchasing
Policies and
Practices
SA-6
City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
Four excellent examples of green purchasing policies from around the country that are
innovative and include many of the above best practices are:
• The City of Portland's Sustainable Procurement Policy -While some consider it
excessively long and complex, the City of Portland's 2018 policy is without a doubt,
one of the premier sustainable procurement policies.16 It aims to integrate fiscal
responsibility, social equity, and community and environmental stewardship into its
purchasing practices, clearly delineates roles and responsibilities, calls for the
development of sustainable procurement tools, includes clear vendor reporting
requirements and more. "The City [of Portland] recognizes that the types of products
and services the City buys have inherent social, human health, environmental and
economic impacts, and that the City should make procurement decisions that embody
the City's commitment to sustainability."
• The District of Columbia's Environmentally Preferable Purchasing Policies -This set
of policies has fostered the development of a comprehensive suite of resources for
those making purchasing decisions including environmental specification guidance for
90 product and service types across 14 categories.17 The policies also include clear
tracking and reporting requirements and makes sustainable procurement the default
action for contracts over $100,000.
• Alameda County's Environmentally Preferable Purchasing Policy -Alameda's policy
embodies best practices by clearly delineating County roles and responsibilities,
requiring staff to consider the total lifecycle of products purchased, prioritizing waste
prevention by identifying alternative options to purchasing new products, and
requiring the County to share key learnings with businesses and the public.18
• King County's Sustainable Purchasing Ordinance, Executive Order and related
policies -Long recognized as one of the strongest green purchasing programs in the
country, King County in Washington State's policy has been in place since 1989.19
However, in 2018, it passed an improved policy that redefines "sustainable" as more
than just environmental, clarifies agency responsibilities, and uses ecolabels and
environmental certifications as minimum requirements. It also aligns the County's
purchasing with other relevant policies, including King County's Strategic Climate
Action Plan (SCAP), Green Building Ordinance, and Equity & Social Justice initiatives.
Green Purchasing Implementation Best Practices
It is important that every sustainable procurement policy is accompanied by certain practices
to ensure full implementation and impact. Some of these best practices include:
• Train employees responsible for departmental purchases annually. Contracting and
Environmental staff alone cannot be expected to make sure all products purchased by
City employees are the right ones. It is important to conduct regular training,
preferably annually or more frequently, for key departmental liaisons who sign off on
purchases.
16 https://www.portlandoregon.gov/brfs/article/695574
17 https://ocp.dc.gov /page/about-sustainable-purchasing-program
18 https://www.acgov.org/sustain/what/purchasing/policy.htm
19 https://www.kingcounty.gov/depts/finance-busi ness-operations/procu rement/fo r-
govern ment/ environ menta 1-pu rchasi ng/pol icies.aspx
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Regular training should cover where and how to buy green products, the newest
products available, why green purchasing is important, and how to help prevent City
staff from doing the wrong thing. Educating these employees could lead them to
become green purchasing champions and provide a check on the daily government
purchases.
■ Promote successes. Promoting program successes can bring a coalition of support for
any future purchasing policies Carlsbad might consider for the greater community. To
promote the program, the City might consider developing case studies, sharing annual
reports that track green purchases, sharing contract language, conducting workshops
for local businesses to share their product research, and developing a new public-
facing green purchasing website.
• Survey end-users regularly. Make it a practice to survey end-users on the
performance and their perception of green products. This will provide opportunity to
change course if the selected product is simply disliked by users or if there are any
valid concerns about product performance. Conducting regular surveys also presents
an opportunity for purchasing staff to teach end users about the benefits of green
products, allay any misconceptions, and train staff on the proper usage of these
products.
• Test all new products before making them required. Always engage end users to test
any proposed new products before making them a requirement for the larger
government audience. It is important to do this to prevent requiring the purchase of
products with unforeseen performance issues and to make sure that one green
product that no one likes does not result in a bad reputation or distrust for the entire
sustainable purchasing program.
City-Wide Sustainable Purchasing Policies
The City can have a large impact on purchasing within the community by implementing
strategies such as material bans, incentives, disincentives, surcharges, and extended producer
responsibility policies. In addition to conserving resources and reducing waste generation,
these types of measures may reduce litter and prevent litter impacting the nearby marine
ecosystem. The City should consider targeting products that have a known impact on the
environment or human health or products that are expensive for the City to manage.
Background
Carlsbad is a medium-sized coastal city in San Diego County, and is part of the San Diego
metropolitan area. The City's population was estimated at approximately 115,000 in 2017 and
it has exhibited modest, continuous growth.20 Tourism is a major industry for the City: a 2015
report for the City found that upwards of 3 million tourists visit the City each year, and that
number has been growing.21
20
21
https://www.census.gov/quickfacts/carlsbadcitycalifornia
http://carlsbadlifeinaction.com/wp-content/uploads/2015/05/SAG-Tourism-lndustry-Study-
Report-FINAL-012815.pdf
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With the City's prominent coastal location nearby San Diego and Los Angeles, its growing
population, and its rising rates of tourism, any forward-thinking City-Wide policies that reduce
or improve purchases of consumer goods within the City will have a significant impact beyond
Carlsbad's borders. Policies implemented in the City could support marine protection, reduce
negative environmental impacts, as well as inspire visitors and neighboring communities to
follow suit.
Material Bans
Cities across the world have implemented various material (product) bans, which are very
effective at preventing hard-to-recycle materials from winding up in the waste stream or from
becoming litter. While material bans are sometimes politically difficult to enact, the idea is
becoming increasingly familiar as cities ban a wide array of plastic products. Here are some
examples of products that the City could consider targeting as part of a material ban.
• Polystyrene Foam -The reasons to target polystyrene, often referred to as Styrofoam,
are many. Studies have shown that polystyrene is "reasonably anticipated to be a
human carcinogen;" it can break into small pieces, making it hard to collect and dispose
of properly; and it is very expensive to recycle.22 According to Californians Against
Waste, 120 cities or counties in California have adopted some form of local ordinance
banning polystyrene for uses including coffee cups, bowls, plates, and clam shell
containers.23 By banning polystyrene, the City would join a national trend.
• Single-Use Plastic Straws, Stirrers, and Cutlery -Though they may be made of
recyclable plastic, these small plastic items are very difficult to capture at recycling
facilities because they fall through the sorting equipment and can't be captured easily.
Because these items are small they also easily end up as litter and many ocean-side
communities are banning these items as a measure to keep their beaches and ocean
ecosystems free from debris. In 2018, Malibu, CA imposed a ban on all of these items.24
Seattle, WA has banned plastic utensils and straws.25 In January 2019, Berkeley, CA
passed a "Disposable-Free Dining" ordinance banning the use of all single-use non-
compostable dining ware.26
Incentives
Community-Based Social Marketing research recognizes that incentives can nudge people's
behavior toward environmentally preferable options. Small changes, such as charging a low
fee for a single-use cup, can create a change in purchasing for businesses who distribute these
products and change in product use habits, such as encouraging people to use a reusable drink
container. Imposing a charge (legally different from a fee or a tax -money collected is kept by
the business) on an unwanted product incentivizes source reduction and can be just a small
amount compared of the overall cost of an item, but it can drastically alter people's
perceptions of the necessity of the consumer product.
22
23
24
25
26
http://www8. nation a lacadem ies.org/ on pinews/newsitem.aspx?Record I D=18725
https://www.cawrecycles.org/polystyrene-local-ordinances/
https ://www. I ati mes. com/I oca 1/1 an ow /I a-me-In-ma Ii bu-pl asti c-ba n-2018022 6-story. htm I
https://www.cbsnews.com/ news/ seattl e-beco m es-fi rst-u-s-city-to-ba n-p I astic-utensi ls-and-
straws/
https ://www.breakfreefromplastic.org/2019/01/17 /berkel ey-city-cou nci 1-ordina nee-to-curb-
d isposa ble-foodwa re/
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This technique is often used to transition a community towards a material ban or in
conjunction with a ban, to encourage sustainable behavior when a ban alone is not practical,
and to increase access to sustainable alternatives to environmentally harmful products.
27
28
29
30
• Charge on Disposable Cups: Not only has Berkeley, CA recently banned all to-go cups
that are not compostable, the city has also imparted a 25-cent fee on any to-go cups
that customers request. One benefit of Berkeley's law is that businesses keep each 25-
cent fee that they charge, which can cover the cost of compostable cups or go toward
their bottom lines.27 This incentivizes businesses to comply with the law.
• Tap Water at Food Service Businesses -Simply requiring food service establishments
to make tap water accessible to their customers can act as an incentive to nudge
behavior towards choosing tap water over bottled water. Requiring foodservice
businesses to make tap water easily available to patrons, even in the form of a simple
pitcher by the door, can allow community members easy and free access to municipal
water. This can lead to fewer purchases of bottled water and other drinks, which are
less efficient, less regulated, and more wasteful than tap water. According to the
Pacific Institute:
o Producing the bottles for American consumption required the equivalent of
more than 17 million barrels of oil, not including the energy for transportation
o Bottling water produced more than 2.5 million tons of carbon dioxide
o It took 3 liters of water to produce 1 liter of bottled water28
It may be beneficial to enact this policy in conjunction with a ban on bottled water,
create an incentive to promote bringing your own bottle or require durable water
glasses be provided by food service establishments in the City.
• Small Homes Building Incentives: Smaller homes create a range of environmental
benefits compared to large homes: they often use fewer materials, which translates
into fewer resources spent and less construction and demolition waste generated;
their smaller envelopes require less energy for heating, cooling, and appliances; and
they contain less storage space, encouraging people to buy only essential items.29
Portland, Oregon has pioneered an incentive system to promote building houses of
500 square feet and smaller. The program waives development fees that homeowners
normally pay to city bureaus, which can total up to $15,000. It requires property
owners to not use the new unit as a short-term rental. In the years since the program
began, the number of applicable permits granted has risen from 24 permits in 2009 to
615 in 2016.30 The City can consider this type of incentive to indirectly influence
residents' purchasing habits.
https :// sa nfra ncisco. cbsl oca I. com/2 019 /01/22/be rkel ey-pass-ord in an ce-food-conta in er-ban-
pa per -cup-fee/
https://pacinst.org/publication/bottled-water-and-energy-a-fact-sheet/
https ://www. psycho I ogytod ay. com/ us/bl og/1 if e-si m pl ifi ed/201305 / creati ng-sm a 11-
envi ron me nta I ly-fri end ly-l ivi ng-spaces
https://expo.oregonlive.com/news/erry-
2018/06/16ffe297a74289/portland_council_enshrines_inc.html
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. City of Carlsbad I Sustainable Materials Management Plan I From Managing Waste to Managing Materials
■ Incentives to Reduce Microplastic Pollution -Microplastics, defined as pieces of
plastic debris less than 5 millimeters in diameter, originate from synthetic materials,
such as synthetic textiles, food packaging, and health and beauty products.
Microplastics are a major source of water pollution globally.31 In December 2015,
President Obama signed the Microbead-Free Waters Act of 2015, which bans plastic
microbeads in cosmetics and personal care products, but microplastics from synthetic
textiles and other sources remain prevalent in the United States.32 In 2018, the
European Parliament voted in favor of banning microplastics because of concern for
the harm they cause to marine ecosystems and to humans.33 While banning
microplastics would be an unprecedented step for a US city and would position the
City as a sustainability leader, especially in its coastal location, a ban may not yet be
practical. Instead, Carlsbad may consider creating polices that require education of
residents about the problem and encouraging residents to purchase clothing made
with natural fibers such as wool, cotton, or hemp. Some options are:
o Require clothing vendors who sell synthetic textiles to educate customers
about the benefits of machine washing less frequently or handwashing
synthetic fibers.
o Require clothing vendors impose a small charge on synthetic textiles.
Any of these incentives will signal that Carlsbad is at the forefront of microplastics
issues.
Extended Producer Responsibility and Product Stewardship
According to CalRecycle, Extended Producer Responsibility (EPR), also known as Product
Stewardship, is a "strategy to place a shared responsibility for end-of-life product management
on the producers, and all entities involved in the product chain, instead of the general public;
while encouraging product design changes that minimize a negative impact on human health
and the environment at every stage of the product's lifecycle".34
Since product lifecycles tend to cross jurisdictional boundaries, it is most important for
communities to advocate for strong EPR policies at the County, State, and Federal level.
Although cities have had some success enacting EPR policies locally, regional policies benefit
from economies of scale and can more effectively develop product take-back programs.
Carlsbad staff might consider becoming involved with non-profit EPR advocacy groups such as
the California Product Stewardship Council, Upstream or the Product Stewardship Institute.
By partnering with these groups, Carlsbad officials can stay apprised of trends and proposed
State and Federal policies and can advocate for impactful EPR laws by sending support letters
or speaking at Legislative Hearings.
County governments have also successfully adopted EPR policies. As these County policies
become more numerous, they have been shown to move the State to act and have encouraged
manufacturer support of State-mandated EPR laws.
31 https://storyofstuff.org/wp-content/uploads/2017 /02/1 UCN-report-Prima ry-m icroplastics-in-the-
ocea ns.pdf
32 https://www.fda.gov/Cosmetics/GuidanceRegu1ation/LawsRegulations/ucm531849.htm
33 https:// ch em icalwatch .com/register?o= 70327 &prod uctl D= l&layout=ma in
34 https://www.calrecycle.ca.gov/epr
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For example, in the case of pharmaceuticals, after 11 California counties adopted or publicly
considered EPR Drug Take Back laws35, the State of California subsequently adopted the
manufacturer-supported SB 212 -Pharmaceutical and Sharps Waste Stewardship law.36
Carlsbad might consider convening a working group with other cities in San Diego County to
urge the County government to act on EPR by considering these important policies. Given its
location along the coast, Carlsbad may consider pushing for the County to adopt policies for
the product that always tops the list of the Ocean Conservancy's International Coastal Cleanup
most littered item --cigarette butts,37 or for a commonly discarded yet toxic household item -
-batteries.
35
36
37
38
39
40
41
42
• Cigarette Butts: Up to two-thirds of the nearly 5.6 trillion cigarettes with filters
manufactured each year are discarded irresponsibly, according to the Cigarette Butt
Pollution Project.38 For Carlsbad, a tobacco product litter fee can decrease how often
these items end up in storm drains, the municipal water system, or the environment.
The journal article Tobacco Industry Responsibility for Butts: A Model Tobacco Waste
Act39 describes how national and subnational jurisdictions may adopt a policy to
address the environmental impacts of tobacco-related litter. The model policy can be
easily be adapted for county jurisdictions.
Carlsbad might also consider supporting a local or county vote for a cigarette litter
abatement fee. In 2009, San Francisco's Tobacco Litter Abatement Ordinance40 was
adopted and established an $0.85/pack fee on cigarettes sold in San Francisco --the
money collected helps fund the City and County's litter abatement costs. California's
Proposition 26, passed after the San Francisco ordinance took effect, now makes fees
more difficult to adopt due to the 2/3 voter approval requirement, but many
communities have floated the idea of putting these litter fees before voters. Most
recently, in 2016, Richmond, CA41 considered a ballot measure to request voter
support for an additional fee on cigarette purchases that would go towards their litter
clean-up costs. While a litter fee it may not be considered "true EPR" because it does
not directly require manufacturers to take responsibility for the end-of-life
management oftheir products, a policy of this sort certainly has indirect manufacturer
impacts. When retailers and consumers bear the management cost, instead of general
taxpayers, manufacturers are eventually impacted. It would be a bold move for the
City of Carlsbad to ask voters to support a fee of this kind. A seaside community taking
a stance on the littering of this harmful product - a plastic filter that tests at levels
meeting the thresholds of hazardous waste42 -would send a strong message to
cigarette manufacturers, smokers and retailers to take more responsibility for their
harmful product at the end-of-life.
https://www.calpsc.org/city-county-ordinances-for-safe-dis
https:/ /legi nfo. legislature.ca .gov /faces/bi I ITextClient.xhtml ?bil l_id=201720180S8212
https:/ /oceanconservancy.org/blog/2018/08/31/tobacco-butts-pack-poisonous-punch-people-
ocean/
https://www.nbcnews.com/news/us-news/plastic-straw-ban-cigarette-butts-are-sing1e-greatest-
source-ocean-n903661
https:/ /tobaccocontrol.bmj.com/content/26/1/113
https:/ /sftreasurer.org/sites/ default/files/Documents/Business_ Zone/ 00173 _ 09 .pdf
https: // cou n ci I ofi n du stri es. org/w p-co nte nt/ up I oads/2016/06/Litter -Tax-Agenda-Re port. pdf
https:/ /www.ncbi.nlm.nih.gov/pmc/articles/PMC2697937 /
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• Batteries: Improper battery disposal can cause human health issues and
environmental pollution.43 Additionally, lithium ion batteries are the largest source of
reported fires at waste management facilities in California.44 While Carlsbad currently
has a program in which community members can drop off batteries at the Oceanside
or Vista Household Hazardous Waste drop-off locations, by adopting a County law that
would require battery manufacturers and retailers to fund and manage a more
expansive battery collection program, Carlsbad could reduce the possibility that this
problem product winds up in the trash, recycling or environment.
In 2008, San Luis Obispo County adopted an ordinance that requires all retailers of
household batteries to establish a program to properly collect them45• This innovative
law expands battery recycling convenience in San Luis Obispo County. Over 14 million
pounds of batteries were recycled by this program in 2016 alone46. If Carlsbad worked
with other Cities to push for a San Diego County Ordinance, modeled after San Luis
Obispo County, and included a requirement that manufacturers participate in funding
and designing such a program, it can significantly reduce the possibility that hazardous
alkaline and lithium ion batteries wind up in the trash or recycling.
Conclusion
Sustainable procurement policy is part of the future, not only locally in the Carlsbad, but
worldwide, With its growing population, steadily burgeoning tourist industry, and progressive
outlook, Carlsbad is in a uniquely favorable position to implement both City government and
Citywide purchasing policies. Enacting a City government environmentally preferable
purchasing policy will improve the efficiency by which public money is spent, while at the same
time using market power to bring about major environmental and social benefits. Citywide
purchasing policy measures can have an even greater impact by reducing waste, lowering
carbon emissions, reducing energy and water consumption, protecting biodiversity, supporting
fair and sustainable economic growth, and delivering social benefits throughout, and even
beyond, the City. These best practices and new ideas can act as a launching pad for Carlsbad
to signal its commitment to environmental and social responsibility to its residents, visitors,
and the wider world.
43 · https:// calpsc.org/mobius/ cpsc-content/uploads/2015/01/life _ cycle_im pacts_ of_ alkaline_
batteries_ 2011_02.pdf
44
45
46
https: // ca I psc. org/ mo bi us/ cpsc-conte nt/ u ploa ds/2018/04 /CPSC-S u rvey-Resu Its-Rega rd i ng-Fi res-
in-the-Waste-Man agem e nt-1 n du stry-F I NAL-4-9-18. pdf
https: //www. iw ma .com/wp-co nte nt/ up I oads/ recycl ist/ use rfi I es/ Ord in an ces/O rd in an ce%202 008-
1. pdf
https://www.iwma.com/guide/batteri es-single-use/
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Materials
■ Batteries: Improper battery disposal can cause human health issues and
environmental pollution.43 Additionally, lithium ion batteries are the largest source of
reported fires at waste management facilities in California.44 While Carlsbad currently
has a program in which community members can drop off batteries at the Oceanside
or Vista Household Hazardous Waste drop-off locations, by adopting a County law that
would require battery manufacturers and retailers to fund and manage a more
expansive battery collection program, Carlsbad could reduce the possibility that this
problem product winds up in the trash, recycling or environment.
In 2008, San Luis Obispo County adopted an ordinance that requires all retailers of
household batteries to establish a program to properly collect them45• This innovative
law expands battery recycling convenience in San Luis Obispo County. Over 14 million
pounds of batteries were recycled by this program in 2016 alone46• If Carlsbad worked
with other Cities to push for a San Diego County Ordinance, modeled after San Luis
Obispo County, and included a requirement that manufacturers participate in funding
and designing such a program, it can significantly reduce the possibility that hazardous
alkaline and lithium ion batteries wind up in the trash or recycling.
Conclusion
Sustainable procurement policy is part of the future, not only locally in the Carlsbad, but
worldwide. With its growing population, steadily burgeoning tourist industry, and progressive
outlook, Carlsbad is in a uniquely favorable position to implement both City government and
Citywide purchasing policies. Enacting a City government environmentally preferable
pu rchasing policy will improve the efficiency by which public money is spent, while at the same
time using market power to bring about major environmental and social benefits. Citywide
purchasing policy measures can have an even greater impact by reducing waste, lowering
carbon emissions, reducing energy and water consumption, protecting biodiversity, supporting
fair and sustainable economic growth, and delivering social benefits throughout, and even
beyond, the City. These best practices and new ideas can act as a launching pad for Carlsbad
to slgnal its commitment to environmental and social responsibility to its residents, visitors,
and the wider world.
43
44
45
46
https :// ca I psc. org/ mob i us/ cpsc-co ntent/ up I oa d s/2 015/01/1 if e _cycle _impacts_ of_ a I ka Ii n e _
batteries_ 2011_02.pdf
https :// cal psc. org/ m obi us/ cpsc-conte nt/u p I oa ds/2 018/04/CPSC-Su rvey-Resu I ts-Rega rd i ng-Fi res-
in-the-Waste-Ma nagement-lndustry-FI NAL-4-9-18. pdf
https :/ /www. iw ma. com/wp-conte n t/ up I oads/ recycl ist/ userfi I es/ a.rd in an ces/O rd in an ce%202008-
l. pdf
https://www.iwma.com/gu ide/batteries-single-use/
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