HomeMy WebLinkAboutCOUNCIL - AGENDA ITEM - 05/13/2014 - DISPOSABLE BAGSDATE:
STAFF:
May 13, 2014
Susie Gordon, Senior Environmental Planner
WORK SESSION ITEM
City Council
SUBJECT FOR DISCUSSION
Disposable Bags.
EXECUTIVE SUMMARY
The purpose of this work session is to review a proposal for a Merchant Regulation ordinance that would prohibit
grocers from giving single-use disposable bags to customers at checkout free of charge. The proposed Merchant
Regulation would require grocers to apply a cost (5 or 10 cents) on both single-use disposable plastic and paper
bags. All revenues from the sale of bags would be retained by the grocery store.
GENERAL DIRECTION SOUGHT AND SPECIFIC QUESTIONS TO BE ANSWERED
1. Would Council prefer the merchants charge 5 cents or 10 cents per disposable bag?
2. Does Council wish to set a requirement for merchants to apply some portion of the revenue from disposable
bags to specific purposes such as education and information?
BACKGROUND / DISCUSSION
Last year, the proposal for a disposable bags fee ordinance received a split vote by City Council (3-3). The 2013
proposed ordinance would have required grocers to charge a fee of 10 cents per single-use disposable plastic or
paper bag, with the revenue to be evenly split between grocers and the City. Prescribed uses of the money
included education and signage, staff training, program funding and cleanup events, etc.
This year, staff has developed a similar proposal for a merchant regulation ordinance prohibiting grocers from
giving customers free single-use disposable plastic and paper bags at checkout. The difference this year is that
the City would not receive a share of the revenues from sales of bags. The proposal is to:
Require grocers to apply a minimum cost (5 or 10 cents) per single-use disposable plastic or paper bag
All revenue would be retained by merchants; a specified portion (to be determined) must be used to post
signage about disposable bag issues and other educational materials, provide low-cost/free durable bags to
customers, enhance their store’s plastic bag recycling, etc.
A number of US communities have enacted a fee on plastic and paper bags, including Washington, D.C., Austin,
TX, Basalt, CO, Boulder, CO, San Jose, CA, Montgomery County, MD, and most recently, Dallas, TX. Reports
show that usage of disposable bags drops dramatically after local restrictions are adopted. Boulder’s 10-cent/bag
ordinance has reportedly resulted in a 63% reduction in single-use bags since it went into effect in July 2013.
In Fort Collins, negative impacts from single-use bags include the following:
Contributing to the volume of discarded material that enters landfills, albeit a nominal amount of about 220
tons per year in Fort Collins
Climate change: a source of 772 metric tons of carbon dioxide equivalent (CO2e) emitted from Fort Collins
Litter and habitat degradation, including in natural areas and water conveyances
May 13, 2014 Page 2
Reduction in value of single-stream recyclables (plastic bags are considered contamination when mixed with
single-stream items such as paper, cans and bottles) and excessive maintenance costs at recycling plants,
where plastic bags routinely tangle up conveyer belts and equipment.
An estimated 50 million disposable bags are used in Fort Collins each year, representing an average 342
disposable shopping bags per citizen each year. Finding alternatives to single-use products and merchandise is
an important objective of Fort Collins’ 2013 Road to Zero Waste Plan and adopted Zero Waste goals for the
community.
Changing shoppers’ use of single-use disposable bags is a key to showing how residents can personally engage
in Zero Waste strategies. It reinforces Fort Collins’ commitment to achieving Zero Waste goals in addition to
supporting the community’s greenhouse gas reduction goals. Learning new habits to use durable bags is the first
step toward other new “reuse” patterns that become incorporated into people’s daily lives
Adoption of the ordinance is expected to have the following results:
Encourage source reduction and re-use, which are the most effective actions that can be taken to manage the
waste stream (through use of reusable/durable bags at stores to carryout purchases)
Serve as a “gateway habit”, reinforcing people’s willingness to expand re-use efforts to other products
Increase the Fort Collins community’s ability to meet the goal of diverting its trash from landfill disposal
Help meet the community’s goals for reducing greenhouse gas emissions
Reduce “life-cycle” impacts of single-use bags - which include impacts from material extraction and
production - and disposal of plastic bag use by transitioning to a bag type that has lower life cycle impacts
Reduce stray litter and pollution in the community, and globally, including plastic bags in trees and waterways.
Financial / Economic Impacts
A cost of 10 cents per shopping bag in Fort Collins will create a new income stream for grocery stores. It will cost
the average citizen $34 per year in new charges if they do not switch to using durable shopping bags. As seen in
Washington DC, a five-cent charge can produce strong results, but 10 cents would create more incentive for
getting shoppers to switch to using durable bags.
Charges for disposable bags will not be applied to grocery shoppers who use food stamps, to minimize the impact
on low-income citizens.
The benefits of having fewer disposable bags to clean up in public areas will save the City money; however, staff
was not able to quantify the costs savings to overall litter programs from a reduced number of disposable bags.
Having fewer disposable bags will also save money at recycling plants in Denver, where Fort Collins’ recyclables
are taken for processing, and will improve their efficiency and profit margin.
Environmental Impacts
An ordinance restricting the use of single-use disposable bags will have a small but measurable impact on the
community’s waste stream. According to Brendle Group, a local consulting firm hired by the City to evaluate
options for reducing consumption of single-use bags in October 2012, an estimated 220 tons/year of plastic bags
from Fort Collins are sent to landfills for disposal, which represents 0.2% of the waste stream that Fort Collins
sends for landfill disposal (no data were available for disposable paper bags).
Both single-use plastic and paper bags cause other types of environmental damage. Plastic is a very visible
problem in maritime states and communities, where a serious consequence of plastic bag pollution is lethal harm
to marine life that ingests bags or get tangled in them, and plastic litter can float around (for example, in large
garbage “patches” that have now been found in all the world’s oceans) and wash onto shores. For landlocked Fort
Collins, plastic bag litter may disappear with the wind or be broken down by sunlight and weather into smaller
pieces. These bits of plastic are still pollutants, even if they don’t resemble the bags they started off as; however,
the magnitude of environmental problems caused by plastic particulates in the soil and other substrates are poorly
understood.
May 13, 2014 Page 3
On the other hand, critics of restrictions on bags will point out that replacement bags, such as cotton fabric bags,
create their own carbon footprint and may not be environmentally sustainable because of reliance on fertilizer,
pesticides, and herbicides. The report by Brendle Group concluded that reusable bags made from cottons or
non-woven plastic have lower life-cycle impacts across these categories than any single-use bag (assuming the
bag is used many times). According to a 2007 report by Sustainability Victoria (Australia), which compared life
cycle analyses of shopping bag alternatives, reusable, non-woven plastic (polypropylene) bags were found to
achieve the greatest environmental benefits. That study reported that “reusable bags have lower environmental
impacts than all of the single-use bags; a substantial shift to more durable bags would deliver environmental gains
through reductions in greenhouse gas, energy and water use, resource depletion and litter.”
While plastic “film” bags and paper shopping bags are both recyclable, there is insufficient data on bag
consumption and recycling quantities to estimate their current recycling rate in Fort Collins. There are at least 19
sites where plastic bags are locally accepted for recycling, including all grocery stores in town. Paper bags are
widely recyclable, not only at public drop-off locations but also in single-stream curbside collection programs
offered by residential haulers.
Enforcement
A violation of the proposed ordinance will constitute a misdemeanor. In the first few months of implementation, it
would be appropriate to apply an educational approach; followed later by enforcement (citations) if/when
compliance is not achieved.
Board / Commission Recommendation
At its April 16, 2014 meeting, the Natural Resources Advisory Board (NRAB) unanimously recommended that
Council move forward with an ordinance regulating single-use disposable bags.
Public Outreach
A variety of public engagement methods were used to obtain comments about the proposal to limit disposable
bags. On four occasions, letters and e-mail messages were sent to grocery store representatives to inform them
of the City’s re-investigation into local restrictions on disposable bags. Two press releases were issued and a
“soapbox” article was published in the Coloradoan, as well as e-newsletter articles. An Open House was held on
April 3 to allow the public to discuss their comments directly with staff. A dedicated web page was maintained
that allowed people to enter comments on-line (see Attachment 2) and comments were also received through
Twitter and Facebook messages.
ATTACHMENTS
1. Natural Resources Advisory Board memo, April 18, 2014 (PDF)
2. Community Comments (PDF)
3. Triple Bottom LIne (TBL) Analysis (PDF)
4. Powerpoint presentation (PDF)
1
MEMORANDUM
FROM THE CITY OF FORT COLLINS
NATURAL RESOURCES ADVISORY BOARD
DATE: April 18, 2014
TO: Mayor and City Council Members
FROM: Joseph Piesman on behalf of the Natural Resources Advisory Board
SUBJECT: Disposable Shopping Bags
The Natural Resources Advisory Board (NRAB) heard a presentation from staff regarding
disposable shopping bags. Several approaches were discussed for reducing the use of disposable
shopping bags in Fort Collins.
The following motion was proposed:
The Natural Resources Advisory Board recommends that Council move forward with an ordinance that
would serve to reduce the number of disposable bags used in this community.
The motion passed unanimously on a vote of 6-0 in favor.
Please feel free to contact me regarding this recommendation.
Respectfully Submitted,
Joseph Piesman
Chair, Natural Resources Advisory Board
691-6697
j.piesman@comcast.net
cc: Darin Atteberry
Susie Gordon
ATTACHMENT 1
ATTACHMENT 2
1
May 13, 2014 Council Work Session - Disposable Bags: Merchant Regulation Ordinance
Public Comments
Community Comments & Questions
Carol Newland
Phone message
Will ordinance actually increase sales of plastic bags for people who use them for
waste baskets – can you use compostable bags – she likes the current system with
bag credit because reward is better than punishment.
Mary Lou Thomas
Phone message
If people have to buy plastic bags they will stop picking up their dog’s poop because
they are currently using them for free.
Suzie McIlroy
3/10/14
I actually agree with the charge for plastic bags to reduce use. Especially in Walmart
I feel they use a LOT of plastic bags and I often move contents into one bag and
return the extra. However, I have one major comment. Will plastic bags still be free
for covering items such as raw chicken? I saw a documentary on TV regarding
reusing bags for grocery purchases and there was salmonella and other germs in the
bags where people had not separated such items.
It seems unfair if a plastic bag was not provided for some items that really need to be
wrapped for health reasons.
Ann Wagner
3/11/14
This email is to express my strong support for a fee to be applied to plastic or paper
bags obtained at Fort Collins stores. My husband and I have been using reusable
cloth bags for many years, and figure we have probably saved hundreds or even
thousands of plastic or paper bags in that time. There is no reason that the entire
population can't be "trained" to use reusable bags, and the fee for single-use bags is
probably the best way to do that.
I hope the Council will implement some type of fee system to discourage single-use
bags.
Dave Mitchell
3/11/14
I haven’t heard anyone address the resulting increase in plastic kitchen trash bags?
Like most people, we use the shopping bags in lieu of kitchen and bathroom trash
bags. Obviously, if you ban the shopping bags then we have to buy kitchen trash
bags…Are those better for the environment?
Don Whitson
STOP TRYING TO BOULDARIZE this community. Enough is enough. The proposed
prohibition on single use plastic bags is going too far; AGAIN. The so-called
independent consulting report is like reading a report on global warming written by
second graders who had just been told by their teacher the world is coming to an end.
I can rebut every so-called benefit from banning single-use plastic bags. Every plastic
bag we receive is re-used for secondary purpose that would otherwise require
a plastic bag from another source, unless the City is suggesting we re-use bags to
pick up dog poop and empty cat litter boxes; among a hundred other things.
This idea is poorly conceived, based on others of the most liberal cities in the
country and was already defeated here. I deplore your staff's strategy to put forth the
issue until you simply wear down the council members and their constituents. You will
not wear me down. I am taking a stand finally.
First, we will not shop in Fort Collins if this passes. We have the capacity to make a
stand and shop outside the city limits.
We don't need another attempt to make us politically correct like some other city. The
City might well find itself with a very large unfunded mandate when KFCG does not
get extended if you keep this up.
Ed Armintrout
People being forced to leave the city because of high housing costs. I can afford this
ATTACHMENT 2
2
bags, which can be unsanitary if something leaks in them; packers at the stores use
their options and can put leaking groceries into plastic bags and then put them in the
reusable bags (should shoppers then be charged because the packer did the right
thing to protect health?). Additionally, the cost of groceries is soaring and allowing
merchants to pocket a “bag fee” is just another way for them to make money—and
most of these plastic bags are so shoddy that they can’t be reused at all! Let our
citizens make their choices. This is NOT Boulder North.
Kathleen Maloney
About twenty years ago, I made a set of reusable, cotton, grocery bags. I switched to
reusable bags for three reasons. My homemade bags are much stronger than the
bags I receive at the store. Most importantly, my homemade bags reduce the number
of plastic bags that accumulate at my house.
An added bonus I was unaware of when I made my bags, is that many stores would
refund 5 cents per bag for each reusable bag I used. Obviously, I am a big fan of
reusable bags. I do have to question, however, why we can’t use reward and patience
to make this change in our society instead of punitive measures. More and more
people are making the switch to reusable bags every day. These folks are making the
switch because they have discovered it is nice using a bag that won’t fall apart and
leave their groceries rolling down the driveway. These people also want to do what
they can to help our environment.
Since reusable bags have become more popular, most stores have abandoned their
nickel per bag refund policy. It is interesting how people view a "refund" more
positively than they do a "fee". The results are the same but it feels better to think one
is getting a "refund". I would like to encourage Fort Collins to try a little patience and
positive reinforcement in their attempt to change the behavior of our community.
Instead of adopting a punitive system like Boulder, Fort Collins could show the world
that her well-educated, environmentally conscious citizenry can achieve similar
results without legislation.
Let’s see if we can get some results with the carrot before we turn to the stick.
Les Hammer
Only rich environmentalists dispose of plastic grocery bags after one use. Everyone
else I know of uses them for waste basket liners and pet clean-up bags (rather than
getting special bags for that purpose).
Marilyn Nierman
I applauded that change and the recycling initiative. As for myself I re-use my plastic
and paper bags and would not like these feed. I admit that I don't understand the total
environmental impact of single-use paper and plastic bags in FC, and were a plastic
bag fee approved, because of cost I would purchase plastic for my re-use needs
rather than pay a fee per bag.
Environmentally, I can appreciate a fee on plastic (NOT paper) and would support
such a measure.
Maybe there should be a city tax (or higher city tax) on citizen activities that affect
environmental resources more, like: restaurant waste, soda/pop dispensers, toilet
flushes, etc.
Mike Schwab
Why would the city create a system that mandates these corporations to make a huge
profit off a plastic bag? They buy them for around $0.01 and sell them for $0.10.
Does this help the working class in Fort Collins? The fee will have no real impact on
anyone but the poor.
If you don’t like plastic bags just ban them rather that adopt some policy meant to
enlighten us foolish peasants who are not smart enough to think for ourselves.
Tim Sutton
I strongly oppose this fee. My family uses cloth bags for groceries whenever we can,
but sometimes we get our groceries in the plastic bag. We fill our recycle can to the
brim every two weeks and have the smallest trash can. We NEVER throw away the
plastic bags unless they are used for something----garbage, dog feces, etc. If plastic
bags are not available from the grocery store, we will just have to purchase them
somewhere else.
ATTACHMENT 2
3
done independently, I might believe it. But at this point, I wouldn’t put much stock in
the study.
Marybeth Snyder
I totally and completely reject the idea that our city government has ANY involvement
in the grocery bag issue. I firmly believe that the role of government does NOT
include telling a business what they can and cannot offer their customers. Please let
private enterprise prevail. If people don't like a store that offers plastic bags as a
courtesy to their customers, they should not shop there.
People bringing their own bags has its risks as well: bags that are reused eventually
become quite dirty and are sliding along the checkout stand surface where my food
purchase now sits. These bags have been on the ground, on the dog blanket,
stained by food spills, been around sick people; heaven only knows where they have
been.
Bill and Carol Evans
I urge the city to "educate, not legislate" in regards to the use of disposable "one time
use" plastic bags. The study paid for by the city about 2 years ago indicated that
education was minimally effective. Perhaps there needs to be more effective
education programs regarding the use of bags, rather than establishing a fee. Years
ago there was a policy at some grocery stores that they would pay the customer 5
cents a bag if the customer brought in their own bags to use. This small incentive
appealed to some, though it was often overlooked by the cashiers (in our experience).
You want to encourage a positive behavior, then BE positive about it, rather than
taking a negative (fee, penalty) approach.
Work with the local retail community to determine how they can work together with
the marketplace/business community to encourage use of reusable bags. As an
example, if you make a purchase at the GoLite store and need a bag for your
purchase (but don't have one with you), the retailer provides you with a reusable bag
(at no charge-- guess what? It's got their name on it and will get re-used and serve as
a constant advertisement wherever it is seen!).
Ray Martinez
3/15/14
I’m in favor of getting rid of plastic bags in the grocery stores that council is proposing
(10 cent fee to the customers), but the biggest nuisance is the news source
(newspaper bags). Maybe the news media should be charged a dime a bag as
well…but I don’t think we are better off with doing away with them all together,
including door hanger plastic bags and the news media’s plastic bags. This wouldn’t
be a bad idea for Loveland City Council to do as well. A joint venture with the two
cities may help get the county on board too….
I don’t think the store should keep the money, but the City should retain the funds for
education, and maybe providing free non plastic bags for consumers…it could have
some inserts with educational material about easy ways to recycle as well.
Linda Stanley
3/16/14
I'd like to urge you to adopt a fee for plastic bags. Approximately, 150 communities
around the country have adopted either bans or fees, and there is significant
evidence that these work. The Denver Post today had an interesting editorial about
bag fees:
http://www.denverpost.com/opinion/ci_25344676/plastic-bag-bans-and-fees-work-so-
whats?IADID=Search-www.denverpost.com-www.denverpost.com
A bag fee is an example of what economists call a Pigouvian tax. A Pigouvian tax is a
tax that is applied to a market activity that is generating negative externalities, in this
case an environmental cost that is not being accounted for in the market. The cost is
borne by those who did not choose to incur the cost. When there are externalities,
markets are inefficient, and Pigouvian taxes are commonly recommended by
economists as a remedy for this inefficiency. So let's make the marketplace more
efficient by adopting the bag fee.
Cari Brown
3/21/14
ATTACHMENT 2
4
$1 for a bag? If this fee isn't to be capped, then I believe that language needs to be
added requiring stores to clearly mark the price per plastic bag at the store
entrance. Without this, customers can discover a nasty surprise at the cash register.
Third, I do wish that the fees collected wouldn't stay with the stores entirely. I think
that some of the fees should go to help people of lower income purchase good quality
reusable bags. Otherwise, I fear that this fee could put a burden on families who are
living on the brink of poverty. It's not unreasonable that families will need to purchase
at least $20 worth of reusable bags (cheaper ones just don't last more than a trip or
two). For some families, this cost will be a great burden.
Fourth, I do believe that this fee should be kept small - at least in the first
months. Assuming that this passes, I believe that any amount over 5 cents for the
first 6 months is a little much. Families will take time to adjust. A smaller fee is easier
to swallow during a transition time.
Deb Ham
(Facebook)
I think that recycling by carrying your own bags to the store, having recycled bags for
people to use as they come in the door and not totally banning the bags, but
reducing the use of the bags is the right thing to do. There’s no way around the fact
that the bags are needed to disposed of dirty diapers, elderly’s briefs and doggy poop
disposal. What else can people do in the case of those needs. They’d be singled out
as outcasts for the needed use of these bags. Perhaps someone wants to make a
cheap waterproof cloth bag for disposals.
Judee N Kent Robinson
(Facebook)
I think it is a bunch of crap The poor will get poorer…the middle-class will get poorer I
personally WON’T pay extra…I will just have the cashier put all the stuff in another
empty cart or I will just shop in Loveland If this is to sell reusable bags…I think there
should be a tag attached to the bag that says “wash me after every use”.
Krystle Schaneman
(Facebook)
Unless you can regulate that all people enter the store with freshly cleaned bags, and
this goes into effect, I will not shop in Fort Collins! I am in favor of recycling and being
conscious of the environment but I am NOT in favor of enforcing the spread of
bacteria, e-coli and any other harmful bacteria that will be spread onto shopping carts,
produce and groceries! Because let’s face it people carry these unwashed breeding
grounds(reusable bags) in their bare hands, push a cart, pick up fruit and vegetables,
open freezer and cooler doors all while leaving behind these nasty bacteria…This is a
big health risk waiting to happen!
Marsha Lehr
(Facebook)
I would really encourage the charging of fees for plastic bag use. As I see them
hanging from trees and fences, it makes me even more aware of the problem locally,
not to mention landfills and water debris that is making it hazardous for our wildlife.
Photogenix,etc
(Facebook)
I reuse my bags either by lining a trash can or emptying the litter boxes into them. I’d
be willing to use paper bags for the litter which break down in the dumps much
quicker than plastic. I’m really on the fence because I do have the reusable bags, but
I forget to bring them. I do not know if I’d wash the reusable bags…but if I’m
forced/encouraged to bring my reusable bags I don’t see how e-coli would get on
them in my house. Best scenario for reusable is to unpack groceries & immediately
put back in your vehicle for next time.
Rebecca Rambo-Greene
(Facebook)
Just bring your own bags. It’s so simple. In fact, it’s so simple that I think plastic bags
shouldn’t even be an option.
Scott Thomas Holmes
(Facebook)
ATTACHMENT 2
5
(to be recycled) in a location by checkout lanes (or even by the carts) - a person could
put one in a grocery cart to put their groceries in.
Do NOT charge more than 5 cents / bag...after all, groceries are a necessity.
Susan Atkinson Glenn
4/3/14
Absolutely! My family and I endorse the ordinance of a mandatory fee per bag. This is
an important first step toward completely banning the disposable bag. Everyone
should be using reusable shopping bags, but that habit doesn't kick in easily,
especially when the majority is not doing it. Part of developing a new shopping habit
is monetary incentive, the other is social pressure. This kind of social change &
acceptance of a new standard across ALL SHOPPERS will be needed in order to
achieve next steps toward zero waste.
Ian Beaney
4/3/14 Open House
Every molecule of plastic ever made is still on the earth today. I don’t see how we
could keep this going without having one-use bags around the earth.
Georgia Locker
Open House
I want the city to ban plastic bags, also water bottles. Both use too many resources
Myrne Watrous
4/3/14 Open House
I am in favor of banning plastic bags at the checkout counter.
I would like to have access to the brown paper bags at the checkout counter.
Garry Otto
Open House
Fees on bag = less money to give to the Food Bank. Fees on bag – less money to
pay rent and mortgages. So much for affordable housing.
Educate about how/why to recycle. Don’t impinge on our freedoms!
Eugene H. Boorte
Open House
I am against charging for plastic bags, plus it is a health issue. I am for encouraging
recycling of plastic bags through an education/information program.
Mike Proznick
Open House
100% opposed to any fee going to business. Need data and systems approach; if
these bags are so bad, then ban them.
Which is better - to reuse grocery bag for trash or my tall kitchen bags for trash? What
is impact of driving durable bags in my car so I have them when I go to store? What is
added water use of washing durable bags? What is added landfill use of durable
bags? Why not require BIO Bags? Do Super Target/Walmart get competitive
advantage?
Asma K. Henry
Open House
All plastic bags should be banned. Using cloth bags is easy and there is no evidence
of infection is transmitted by reusable bags.
Bags made with petro chemicals hurt all of us.
Erin Reichert
Open House
I’ve been using my own bags for about 5 years. It’s a habit to grab grocery list and
grab my bags. No foodborne illness for me
Jim Wade
Open House
NO! SILLY!
Meg Dunn
Open House
Vitamin Cottage is great example of a local working model. I heartily support more
stores going toward similar model.
Joseph Piesman
ATTACHMENT 2
6
want to have your produce run over the same checkout counter as the person that
used a reusable bag that carried a leaky package of ground beef two months ago?
In addition to potential medical consequences of food borne infections, there are
economic costs. Although I'm sure you believe your regulations are well meaning I
believe they will lead to increasing health care costs or worse.
Currently there is a little allowance for free will here; I can choose the more sanitary
option and you can choose the reusable option. What's wrong with that? You don't
have to use your power to take away the free will of those with different priorities.
Plastic bags don't get recycled and paper bags presumably do so why are you asking
to restrict both-or are you?
Economics 101 would tell you that the price of any product is already in its price at the
checkout including the cost of production, transportation, labor, facilities and, yes, the
bag it goes out in. So my question is why do we need another law?
Lindsay Morgan
If we can send people to the moon why can’t we produce a bag that can be saved,
collected and returned to be remade into new bags over and over? Or a bag that
eventually breaks down and dissolves, like paper only not paper from trees?
I know all of us who reuse these plastic bags to line our in-home garbage bins are
going to miss them and start buying plastic bags off the store shelves to avoid
garbage messes in their kitchen and bathroom bins. This doesn’t help the plastic bag
solution much.
How about the stores charging patrons for plastic bag use? Let’s see…when “making
money” is involved, corruption is often a result. Will the stores toss fewer items in
each bag, so the patron uses more bags and the store makes more money?
There needs to be a reward of some kind for those who bring their own bags, which
might generate a stigma on those who don’t. It could be a cumulative thing/a punch
card for “bag bringers”/ and a reward or discount of some kind for 25 or 50 punches.
Something that encourages people to think environmentally and be rewarded for their
efforts will be a much more successful plan.
Bevin
4/30/14 (AQ forum)
I am totally for it! We must do this now.
Kate Rentshlar
(AQ forum)
I think this is a great idea
Bob Bach
(AQ forum)
Plastic bag fee good idea; good to know that plastic bags can be recycled.
Carrie Watkins
(AQ forum)
Love and support this idea. Really hope this passes.
Greg McMaster
(AQ forum)
I think we need to proceed quickly in implementing a 10-cent per bag fee. Make the
fee sufficient to catch the public’s attention and switch to using reusable bags. In the
meantime people can afford a dollar or two to learn.
David Dietrich
(AQ forum)
I am totally in favor of breaking the bag habit in Fort Collins. I have visited a number
of areas that have bag bans and it causes no problems. Please pass he proposed
Fort Collins bag ban.
Project/Decision: Disposable Shopping Bags (Merchant Regulation) Ordinance Evaluated by: Susie Gordon (Environmental Services); adapted from 2012 Brendle Group TBL Analysis
SOCIAL ECONOMIC ENVIRONMENTAL
Workforce Community
Strengths
Creates new manufacturing opportunities
for durable bags to replace single-use
bags, thereby employing more workers
Reduces requirement for City staff to
provide street sweeping and litter
cleanup
Strengths
Confirms direction set by Council in
adoption of Zero Waste goals by creating
new reuse habits that will change
“throwaway society” patterns
Retains customer choice compared to
creating bans on plastic or paper bags
Residents have quickly adapted to charges
for bags in other communities by reducing
consumption of shopping bags
Has been preferred option for larger
retailers in other communities compared to
ban options
Less opposition from paper and plastic
industries compared to bans
Addresses interest expressed by citizens for
reducing environmental threats posed by
plastic bags, including children exposed to
vivid images of marine wildlife that ingest
plastic bags, and ocean garbage “patches”
Enables citizens to put into practice beliefs
expressed in Fort Collins surveys, which
show respondents feel personal obligation
to environmental stewardship; 38 percent
strongly agreed and 32 percent somewhat
agreed to support government intervention
to address air pollution and climate change
Strengths
Grocery stores save on costs of free shopping bags to
customers, and, depending on what percent of
revenue City specifies must be used for specific
purposes, may allow them to pass along savings to
their customers
Grocers may be able to retain some portion of revenue
to offset implementation and administration costs
Effective financial incentive to change behavior
compared to education only or no action
Several grocers in Fort Collins have adopted similar
policies voluntarily without noticing fewer numbers of
customers
Reduces municipal costs for street sweeping and litter
cleanup efforts
Reduces operation and maintenance costs that
increase as a result of “contamination” at recycling
facilities from plastic bags; few bags in the system will
improve productivity of plants as well as value of
recyclable commodities
Reduced number of stray plastic bags loose in the
environment means less aesthetically impactful litter
that may contribute to lower real estate values in the
processing plants, thereby causing programs
for recycling to become more costly and less
effective
Limitations
Fewer plastic bags that get loose in the
wind reduces number of jobs for laborers
employed to pick up litter, for instance
the workforce used by Larimer County to
regularly collect plastic bags from landfill
premises
Industrial plants that manufacture single-
use paper and plastic shopping bags
(none in Colorado) will experience loss
in sales that could potentially lead to a
reduction in their work force
Limitations
Some citizens feel their right to make
consumer choice will be violated if bag
charges are applied
Concerns have been expressed about
increased risks to public health if shoppers
bring unwashed durable bags that may be
carrying bacteria into grocery stores
Creates new expense (as much as
$34/year) for citizens who have been
accustomed to getting free shopping bags
at grocery stores, if durable bags do not
become part of new shopping habits
May negatively impact low-income
households who are not on food stamps
more than others
Requires consumers to purchase more
expensive reusable bags (greater up-front
costs)
Creates need for Food Bank to identify
substitute for plastic shopping bags
currently used to distribute food to low-
income residents if fewer bags are being
donated to the program
Forces consumers to find substitute
products for use in lining trash cans, picking
up animal feces, and other functions that
disposable bags provide or to pay for bags
at check-out
May not reduce bag use as much as
options with bans – not as significant a
behavior change lever
Education will be required to communicate
bag charges at grocery stores to community
Possible opposition from the general public
Limitations
Increased costs at grocery stores for bag charges may
disproportionately affect low-income households
negatively, if change to using durable bags doesn’t
occur
New costs to grocery stores associated with employee
training, point-of-sale system upgrades, annual or
biannual reports to City on bag usage, etc.
Revenues received by grocery stores steeply drops off
as shoppers adopt new habits for using durable bags
by residents to meet needs for trash can
liners, pet waste disposal bags, etc.
If residents want plastic or paper bags for
use in carrying their groceries or as trash
can liners etc., they would have the option
to purchase those bags at the checkout.
Threats
Threats
Threats
Threats
Notes:
1
Disposable Bags – Merchant
Regulation
City Council May 13, 2014 Worksession
Susie Gordon, Sr. Environmental Planner
Attachment 4
2
Overview
• Background
• Proposed Ordinance
• Bag Restrictions around the World
• Environmental Impacts
• Financial Considerations
• Concerns about Health & Sanitation
• Questions and Discussion
3
Background
• Staff directed to revisit options for bag restrictions
– Fulfills re-use concepts inherent in Zero Waste
goals adopted December 2013
– Citizens’ continued interest in bag restrictions
– 2013 proposal received split (3-3-0) vote by
Council
• 2014 proposal for merchant regulation ordinance
– Retains requirement for grocers to charge for
disposable plastic and paper bags at checkout
– Change: revenue from bags not split with City
4
Elements of Proposed Ordinance
• Requires grocers to apply minimum cost (5 or 10
cents) per shopping bag at the check-out register
– Does NOT include produce bags
• Grocers must submit data to City on bag usage
• Revenue retained by grocery store
– removes suggestion of City financial “windfall”
and avoids City having to run more programs
• Half or 2/3 must be spent by stores to provide:
– signage and other educational info
– low-cost/free durable bags, etc.
5
Environmental Impacts of Bags
• 50 million disposable bags used in Fort Collins, an
average 342 bags / citizen each year
~220 tons plastic at landfills (no paper bags data)
• Regulation can avoid 772 metric tons of carbon
emissions/year
• Causes litter and habitat degradation for City
natural areas and water conveyances
• Reduces value of recyclable commodities and
impairs function of recycling processing plants
• Plastic bags broken down into smaller particles by
sunlight and weather pollutes soil and waterways
6
Environmental Impacts, cont.
• Wind-blown plastic bags pollute marine
ecosystems, cause lethal impacts to marine life,
and form garbage “patches” in all the world’s
oceans
• Both plastic bags and paper bags create their own
types of emissions, resource consumption impacts
• Standard for durable bags; life span of >100 uses
– Woven plastic bags have lowest life-cycle
impacts (cloth OK but impacts include use of
fertilizers/chemicals to cultivate cotton crops)
7
Over 133 City or County Bag
Regulations Adopted in US
Key Ordinance Details Results
Austin, TX
2013
Bans single-use disposable
plastic & paper shopping bags
90% reduction single-use
disposable bag waste
Boulder, CO
2013
Charges 10¢ / disposable plastic
or paper grocery bag
68% reduction in use of plastic &
paper grocery bags since
ordinance effective July, 2013
San Jose, CA
2010
Bans single-use disposable
plastic bags in all retail stores,
charges 10¢ / paper bag
Reduced plastic bag litter 89% in
storm drain systems, 60% in
creeks and rivers, and 59% in
streets and neighborhoods
Washington,
D.C.
2010
5¢ / disposable plastic & paper
bags (food or alcohol stores)
80% reduction in usage of plastic
and paper bags
8
Dozens of Bag Restrictions in Other
Countries Throughout the World
Key Ordinance Details Results
Denmark
1993
$3.97 / kg of plastic & paper
bags (retailers, not shoppers)
60% reduction in usage of plastic
and paper bags
Hong Kong
2007
6¢ / plastic bag in major
supermarkets and chain stores
75% reduction in usage of plastic
bags in affected stores
Ireland
2002
20¢ / plastic bag
Greatly reduced litter & 90%
reduction in plastic bags within 5
months of implementation
South Africa
2003
Bans thin plastic bags, set
charge for thicker plastic bags
90% reduction in usage of plastic
bags
9
Economic Impacts of Ordinance
• New income stream for grocery stores but declines as
customers learn to bring durable bags
– New costs to: train employees to apply bag charges;
provide annual or biannual reports to City; develop
signage, educational material; better recycling options
• Average $34/year for citizens if no change in bringing
durable bags
– Charges won’t apply to shoppers using food stamps
• Decreases cleanup costs in public areas
• Improves efficiency and profit margin of regional
recycling facilities & value of single-stream recyclables
10
Grocery Store Sanitation Concerns
• Institute for Law & Economics article, Dec. 2012, cited 46%
increase in San Francisco rate of E. coli-related illnesses as a
result of their ban on disposable bags
– San Francisco’s Communicable Disease & Control Prevention
Division:
• Did not substantiate the data
• Doubted if strains of E. coli in bags would be the kind to
make someone sick
• Solution is to wash reusable bags more often
• Food Protection Trends, Aug. 2011, reported E. coli bacteria
present in half of 84 reusable bags tested from consumers
entering grocery stores
– Hand or machine washing reduces bacteria in bags by >99.9%
11
Results of Bag Restrictions
• Local “culture” of waste reduction and re-use
– Motivates virtually everyone who shops, leads to
further interest in exploring and adopting reuse habits
• Increases ability to meet goal of diverting trash from
landfills
• Helps meet goals for reducing GHG emissions
• Reduces life-cycle impacts of single-use bags from
material extraction, production, and disposal
• Reduces stray litter and pollution in the community, and
globally, including plastic bags in trees and waterways
12
Public Outreach in Fort Collins
• Multiple communiques to grocery corporations
• Press releases
• Soapbox article published in Coloradoan
• E-newsletter articles
• Open house April 3
– Attended by 30 citizens
• Dedicated web page
– “Submit comments” section
• Messages on Twitter and Facebook
13
Questions for Council Consideration
• Would Council prefer the merchants charge 5
cents or 10 cents per disposable bag?
• Does Council wish to set a requirement for
grocers to apply some portion of the revenue
from disposable bags to specific purposes
such as education and information?
Requires City resources to implement, administer, and
enforce compared to no action
Some citizens may shop for groceries outside of Fort
Collins rather than switch to durable bags or be willing
to pay for shopping bags
No revenue stream generated for City that would help
offset increased enforcement and education costs
Limitations
Does not decrease bag use as dramatically as
bans
Durable bag standards are inconsistent; some
types are less effective at achieving reduced
life-cycle impacts as others (e.g., water for
growing cotton as well as fertilizers and
pesticides used in cultivation must be factored
into life-cycle analyses)
Opportunities
New durable bag manufacturing that
could be developed (e.g., cottage
industry for custom-made bags) in local
or regional vicinity
Durable bag manufacturing that enables
advertisers to print long-lasting
messages on bags that are reused
extensively
Opportunities
Reuse habits gained by successful change
to durable shopping bags may increase
citizens’ confidence in their ability to adopt
other reuse habits, such as using refillable
water bottles.
Disposable bags used in non-grocery
establishments are not included in the
ordinance, and may be put to greater use
Opportunities
Helps reinforce the culture of sustainability that has
become established in Fort Collins, which has been
effective in drawing “green” businesses to locate in the
community.
New durable bag manufacturing could be developed
(e.g., cottage industry for custom-made bags) in local
or regional vicinity
Opportunities
Long-term benefit of reducing materials
deposited in landfills, thereby extending landfill
life spans
community
Strengths
Rapid reduction in use of disposable bags
documented in other communities when
restrictions are put in place, thereby
conserving raw materials, including petroleum
and natural gas ingredients used for making
plastic bags, as well as forest products used in
making paper bags (life-cycle impacts of
plastic and paper shopping bags are similar in
terms of energy, water, fossil fuels, and GHG
emissions)
Supports overall shift away from disposable
bag use and may lead to other reuse habits
citizens learn to apply in their daily lives that
conserve other resources, water, energy, etc.
Reduces up to 50 million disposable bags
used in Fort Collins, an average 342 bags /
citizen each year, which creates ~220 tons
plastic at landfills and 772 metric tons of
carbon emissions that contribute to climate
change
Fewer disposable bags used in Fort Collins will
help to reduce: litter and habitat degradation
for City natural areas and water conveyances;
the amount of plastic particles from bags
degraded by sunlight and weather, which
pollute soil and waterways; and the number of
wind-blown plastic bags that may end up in
marine ecosystems, causing lethal impacts to
marine life, and forming garbage “patches” in
the world’s oceans
Reduces the number of plastic bags likely to
enter the single-stream recycling system,
where the bags devalue other recyclable
commodities and impair functions of recycling
Triple Bottom Line Analysis Map Attachment 3
ATTACHMENT 3
Open House
I am in favor of charge of 5¢ per plastic bag. City could make reusable bags available
for general public at various events.
Lynn Lutkin
Open House
Education to whole community on pro’s of recycling. Get students and news outlets
involved. Then have a trial period to try this and then vote on it. Need more research
on facts pro and con.
Make merchants use specific education, etc. There has to be rules for the good of
the public.
Vivian Armendanz
Open House
Citizens already do our BEST to “recycle”. NOT in favor of “charge/fee”. Citizens
DESERVE the FREEDOM OF CHOICE. Charging citizens who are low-income etc.
this is going to affect us.
Phil Rozenski
4/9/14
. I work with Hilex Poly, an industry leading manufacturer and recycler of plastic bag
and film products. I want to reiterate that there remains a viable alternative to bag
fees that should be considered: recycling. We remain eager to work with policy
makers to design effective solutions that maintain a healthy environment without
bans, fees or taxes, which all hurt consumers and put manufacturing jobs at risk.
Gene Locken
4/14/14
Sustainability is a factor but other factors come into play for me as well. As a
pharmacist, I feel more than a little sensitive to this issue. I feel it has been well
documented that reusable bags are a bacterial cesspool. While it is true that I can
wash my reusable bag between every use, for this to be effective you would have to
be guaranteed that every other customer did the same thing. If not, the grocery cart,
the counter, the scanner and the grocery clerk would have to be disinfected. Do you
Oppose
Skye Autumn
(Facebook)
Down with the plastic bags!!!
Vivian Armendariz
(Facebook)
I think it SUCKS!!! NOT in favor of this ordinance.
Casey Malsam
(Facebook)
3/24/14
Awesome!
Gary Otto
(Twitter)
3/25/14
City Government proposing a tax on plastic bags. They don’t care they are taking
food away from the hungry. Shame on them!
Rene Olms
(Twitter)
So you are going to FORCE the grocer to charge for a bag and make them keep the
profits? Sounds like our federal government…
Marian Romero
3/26/14
A plastic bag fee seems a punitive action; start out on a positive note by encouraging
people to bring in reusable bags with a bag credit (like Sprouts) - at least for a
promotional time period (3 - 6 months) to get people in the habit. Please encourage
recycling with "rewards" of some kind. Grocery stores could put some of their boxes
I would like to voice my support and concern over the proposed single use grocery
bag fee. First, I think it is a wise move to help greatly reduce a massive amount of
trash. My family is very careful to collect plastic bags when we forget to bring
reusable ones for recycling; however, I believe we are the exception rather than the
rule. I can personally say that this fee with GREATLY motivate me to remember my
reusable bags more often.
Second, I am concerned that this fee is a "minimum." I do believe that any fee
imposed should be strictly regulated. Otherwise, what is to stop a store from charging
As far as the study in Boulder that showed 68% less bags in the trash----studies that
are done by city staff often are slanted to support their position. If this study had been
fee but I won't unless absolutely necessary. Just across I-25 is a Walmart
Supercenter in Timnath and a Costco under construction. Centerra is eating the lunch
of local retailers and Longmont isn't that far away. Apparently our local leaders slept
through their economics classes in college. This constant nannying by our local
government simply has to stop.
Edwin Neset
I am totally against a fee for the use of plastic bags. We never take a bag unless
needed and when we do we use them to pick up dog waste when walking. We also
use reusable bags as much as possible and I don’t see why we should have to pay
extra for the plastic bags when buying something where a bag is needed.
Joyce Oppenheimer
Too many choices are now being taken away from our citizens. Responsible
individuals reuse bags, plastic or paper. Others choose to bring their own reusable