The many recycling programs within Santa Cruz County are
managed by public, profit-making and non-profit organizations. Several of these
were investigated by the Grand Jury to see if improvements could be made in
areas of public awareness, efficiency and consolidation. A review of these
programs indicated that through creative methods, landfills in the county were
within state guidelines of 50 percent for solid waste reduction by 2000.
In 1989, California state legislators recognized that
landfill capacities were in a crisis. As a result, recycling of virtually all
materials had become more critical to preserving the quality of the
environment. The policy of “reduce, reuse, recycle,” environmentally sound land
filling and transformation became the desired approach to solid waste
management.[1]
Recycling became a serious subject for California cities and
counties as well as the public with the passage in 1989 of Assembly Bill 939.
The passage of this bill established the following:
·
The current organization, structure and mission of the
California Integrated Waste Management Board (CIWMB).
·
Mandates that all cities and counties reduce the amount
of waste entering their landfills by 25 percent in 1995 and by 50 percent in
2000. This is referred to as the waste diversion rate.[2]
·
An integrated framework for program implementation,
solid waste planning and solid waste facility and landfill compliance.
·
Encouragement of resource conservation.
·
Consideration of the long-term effects of waste
management operations.
Local governments, through CIWMB regulatory oversight,
implement the diversion goals and program compliance. This is accomplished by
monitoring landfill utilization through a disposal based reporting system.[3]
Since the passage of AB 939 in 1989, California landfill
capacity has increased. Although capacity is currently not considered the
statewide crisis it once was, there are still problems regionally.
Recycling does not come without a price. The CIWMB 21st
Century Policy Project was concerned that maintaining the year 2000 goals of AB
939 could be very difficult for some of the cities and counties within the
state. However, as a result of the passage of AB 939 significant progress was
achieved in:
·
Waste diversion.
·
Program implementation.
·
Solid waste planning.
·
Protection of public health and safety and the
environment through the improved operation of landfills and solid waste
facilities.
An important aspect in the surge of involvement with
recycling continues to be public awareness. Each of the recycling facilities
visited by the Grand Jury recognizes the need to publicize its activities. Many
forms of literature are distributed throughout the county in both English and
Spanish. The public awareness of recycling is an ongoing challenge considering
the volume of advertising inundating our society. As with any message aimed at
the public, success depends on its being remembered, which is a result of
attention-getting creativity. Promotional information on recycling takes a
variety of forms, such as:
·
School programs.
·
Bill inserts.
·
Flyers.
·
Pamphlets.
·
Stickers.
·
Television public service messages.
·
Posters on collection trucks.
Separate messages target specific items such as household
batteries, motor oil and computer printer cartridges. Public awareness is an
investment in recycling efforts that can pay off with increased public
participation.
This investigation examines the operations of the various
organizations and agencies in the county involved in recycling. Outreach
programs to increase public awareness are also looked at for each of the
groups. The organizations include:
·
County of Santa Cruz Department of Public Works.
·
City of Santa Cruz Public Works Department.
·
City of Watsonville Department of Public Works.
·
Valley Women’s Club (of San Lorenzo Valley).
·
California Grey Bears, Inc.
·
Waste Management, Inc. of Santa Cruz County.
·
Ecology Action, Inc.
Interviewed:
Santa Cruz County Officials.
Santa Cruz City Officials.
Watsonville City Officials.
Santa Cruz County recycling organizations.
Santa Cruz County landfill organizations.
Reviewed:
Nevada County Grand Jury 2002-2003 Report
California Integrated Waste Management
Board 21st Century Policy Project,
www.ciwmb.ca.gov/2000Plus/Events/FutureMar99/issues1.htm.
Recycling Today, Enforcement of Commercial Recycling,
www.recyclingtoday.com
Darryl Young, Director of the California Department of Conservation,
KGO radio interview May 27, 2004.
Richard Anthony, California Resource Recovery Association Board member,
cited in
Mandatory Summary, www.greenyesgrrn.org/1997/0206.html.
Information in findings 1 - 26 is taken from interviews with
various local recycling and landfill organizations.
1.
County landfills are reaching maximum capacity,
requiring that new sites be identified, licensed and built.
2.
It takes approximately ten years to get a permit for a
new landfill.
3.
The average lifespan of California landfills is about
15 years.
4.
The remaining lifespan for the City of Santa Cruz’s
landfill (Dimeo Lane) is about 34 years, if carefully used.
5.
The remaining lifespan of the Santa Cruz County
landfill (Buena Vista) is about 15 years.
6.
Santa Cruz County Code 7.20.110 states that garbage can
be held no longer than seven days.
7.
The county contracts with a private company for its
garbage and recycling pickup.
8.
The cities of Santa Cruz and Watsonville provide their
own garbage and recycling trucks and pickup.
9.
Currently the county has no mandatory garbage or
recycling service in the unincorporated areas. Garbage pickup is mandatory in
all four of the county’s incorporated areas. Separate garbage and recycling
containers are distributed in the cities of Capitola, Santa Cruz, Scotts Valley
and Watsonville. Using the recycling containers is optional.
10. Approximately
65 percent of residents in the unincorporated areas of the county use garbage
and recycling curbside pickup.
11. Approximately
55 percent of San Lorenzo Valley residents use curbside pickup.
12. Mandatory
garbage and recycling pickup in the unincorporated area of the county could
result in less illegal dumping and a reduced amount of recyclable materials in
the landfill, some officials said.
13. If
all recyclable materials were recycled, officials say that the Buena Vista
landfill could have at least a 30 percent additional reduction in material.
14. Some
recycling officials said that Buena Vista landfill workers need a better understanding
of California’s recycling laws (AB 939 and the appropriate California Public
Resources Code sections) in order to inform customers who arrive at the
landfill with recyclable materials.
15. Some
people think recycling is free but because of the expenses involved it is not.
Volume is the key to making a profit in recycling: the greater the volume, the
greater the profit.
16. The
City of Santa Cruz routinely uses the same customers for its sale of recyclable
materials. The City of Watsonville aggressively negotiates with brokers using
high dollar items (white paper and cardboard) to obtain the best price.
17. Each
recycling entity that collects materials usually makes its own arrangements to
sell its products to companies outside of the county.
18. The County of Santa Cruz's Ben Lomond Transfer Station has
a limited area to collect recycling materials.
19. Interactions among various coordinators of the various
recycling organizations within the county are informal.
20. Some recycling officials are concerned about the idea of
consolidation recycling activities that involve information and public
awareness. They feel the money might not be wisely spent.
21. The City of Santa Cruz has won awards for its public
recycling information.
22. The
county’s informational materials on recycling were criticized as poor and
unimaginative.
23. Some
recycling groups in the county believe they do not get adequate exposure to
inform the public of proper recycling procedures and the availability of local
resources.
24. Ecology
Action is a Santa Cruz based non-profit informational organization that uses
grants from federal, state and county governments to promote recycling. Ecology
Action works with the county on some recycling projects.
25. Some
cities and counties get state and federal grants to run special recycling
programs. Examples are programs to recycle motor oil and batteries.
26. As
of 2003, 22 of the 58 counties in California have met the 50 percent solid
waste diversion requirement specified by AB 939.[4][4] In 2001, Santa Cruz County had a 53
percent diversion rate.
27. Each
day 2.5 million glass bottles are discarded in landfills in California.
Commercial customers, such as restaurants and apartment complexes, are large
users and therefore large contributors to the problem in California.
28. Several
communities across the U.S. have adopted programs of mandatory recycling with
excellent results. (This does not include mandatory garbage pick-up). An
example is San Diego where mandatory separation saw participation jump from
30-40% up to 80-90%. They used a coordinated approach of public awareness,
slogans, media press releases, press conferences and special events to enlist
public understanding of the advantages of recycling.
29. The
key element of mandatory recycling is to make participation “convenient.”
30. Other
communities have seen increased cooperation by use of economic incentives along
with comprehensive education and promotion activities. Although the word
“mandatory” initially raises concerns, communities have found little need for
it. With convenient home and commercial pick up service, plus vigorous
inspection at the landfill entrance for drive up loads, people are more
inclined to recycle willingly.
31. Enforcement
programs vary tremendously throughout North America.
1.
At the present rate of intake, the county will need to
close the Buena Vista landfill in 15 years and move to a new location.
2.
Reducing the amount of recyclable materials that go
into the county landfill could lengthen the site’s life by five years.
3.
The increased amount of solid waste generated by
requiring mandatory garbage and recycling pickup could fill the county’s
landfill sooner than its currently projected lifetime. The increased amount of
recycling might not be enough to offset the extra volume.
4.
The quality of public information on recycling varies,
depending on which agency produces it.
5.
Some buyers pay more than others for specific recycled
materials.
6.
Consolidating the contracts to sell specific materials
from the various county recycling entities offers the potential for higher
prices for the different categories of materials.
7.
Santa Cruz County exceeded the state mandate for the 50
percent solid waste diversion requirement in 2001.
8.
While recycling efforts throughout Santa Cruz County
have enabled the landfills to surpass the minimum goals, there is still more to
do. The ideal goal would be to capture 100% of the recyclable materials being
generated in the county. Practicality dictates that such a goal is not entirely
realistic. However Santa Cruz County can do better.
9.
“Educate, encourage, enforce” is an approach that has
proven to help increase recycling efforts.
1.
The County of Santa Cruz should examine its operation
of the Buena Vista landfill. Close monitoring and enforcement of recycling
practices could reduce the amount of recyclables entering the landfill. This
could include positive incentives for proper disposal and citations for
improper disposal of recyclables.
2.
The county, the cities of Santa Cruz and Watsonville
and other local agencies involved in recycling should be more cooperative among
themselves. For maximum public exposure and fiscal efficiency, they should
coordinate printed recycling information and media coverage.
3.
Local recycling entities should take a regional
approach to obtain countywide contracts in order to combine and sell together
each category of recycled materials to the highest bidder. They should total
the volume at the various locations, rather than collect the material at a
central station.
4.
Local recycling agencies should consider the experience
of other communities and decide whether mandatory recycling would be
beneficial.
5.
Cardboard and office paper are the focus when landfills
ban commercial waste. These are high dollar items for re-sale. To enforce these
bans, landfill operators should:
·
Refuse loads of cardboard and office paper.
·
Impose fines on haulers of cardboard and office paper.
·
Track down offending customers and fine them.
·
Place a significant amount of responsibility on haulers
to force customers
to comply.
6.
The City of Santa Cruz Public Works
Department and in particular the Waste Reduction Coordinator should be
commended for its excellent work in public awareness through its publications
and media coverage. It should be commended for winning the 2004 Award of
Excellence in Writing for the statewide competition conducted by the California
Public Information Officials (CAPIO).
7.
The Valley Women’s Club should be commended for using
recycling revenues to finance its charitable services to the community.
8.
The California Grey Bears should be commended for its
service to the seniors of Santa Cruz County and for using recycling as one
means to raise money.
9. The
County of Santa Cruz should be commended for exceeding the state mandate of 50
percent solid waste diversion in 2001.
Entity
|
Findings
|
Recommendations
|
Respond Within
|
|
Santa Cruz City
Council |
1- 4, 6, 8, 9, 15 - 17, 19 - 21, 23, 25, 27 - 31 |
2 - 6 |
90 days (September 30, 2004) |
|
Santa Cruz County Board of
Supervisors |
1- 3, 5 - 7, 9 - 15, 17 - 20, 22 - 31 |
1 - 5, 7 - 9 |
90 days (September 30, 2004) |
|
Watsonville City Council |
1 - 3, 6, 8, 9, 15 - 17, 19, 20, 23, 25, 27 - 31 |
2 - 5 |
90 days (September 30, 2004) |