HomeMy WebLinkAboutCOUNCIL - AGENDA ITEM - 01/26/2016 - COMMUNITY RECYCLING ORDINANCEDATE:
STAFF:
January 26, 2016
Caroline Mitchell, Environmental Planner
Jeff Mihelich, Deputy City Manager
Lucinda Smith, Environmental Sustainability Director
Susie Gordon, Senior Environmental Planner
WORK SESSION ITEM
City Council
SUBJECT FOR DISCUSSION
Community Recycling Ordinance.
EXECUTIVE SUMMARY
The purpose of this item is to provide additional information and seek feedback from Council regarding specific
aspects of the Community Recycling Ordinance, which was last discussed by Council at its work session on
October 13, 2015. The topics for discussion will be:
Percentage price difference between sizes of trash cans in single-family trash and recycling (otherwise known
as the Pay-As-You-Throw Ordinance)
Options for collection of organics (yard trimmings and possibly food scraps) from single-family home residents
Phase-in options for all elements of the Community Recycling Ordinance (the collection of organics from
single-family home residents, collection of food scraps from restaurants and grocers, and for bundling trash
and recycling for multi-family and commercial locations in Fort Collins).
GENERAL DIRECTION SOUGHT AND SPECIFIC QUESTIONS TO BE ANSWERED
1. Does Council have feedback regarding the:
1) Price differential between trash cans sizes?
2) Organics collection service?
3) Ordinance implementation timeline?
BACKGROUND / DISCUSSION
In 2013, City Council adopted a goal of recycling or composting 75% of the material generated by the community
by 2020, 90% by 2025, and a zero waste goal by 2030. As an implementation step to these goals as well as the
Climate Action Plan goals, staff undertook the Community Recycling Ordinance project in 2015. This project has
included substantial outreach with the community and stakeholders, including working closely with Fort Collins’
trash haulers. Staff discussed the elements of the Community Recycling Ordinance with City Council at a work
session on October 13, 2015.
In the recently released 2015 Citizen Survey, 68% of Fort Collins residents expressed support for prohibiting the
landfill disposal of recyclables. Additionally, 60% of residents supported prohibiting yard waste from being sent to
the landfill. Banning materials from the landfill is a step further than actions being proposed in the Community
Recycling Ordinance, but these results reflect the interest in the community for additional recycling and
composting opportunities.
Progress since Work Session on October 13, 2015
During the work session on October 13, Council specifically asked staff to work closely with Fort Collins
trash/recycling haulers to arrive at a fully considered recommendation regarding the percentage price
difference between sizes of trash cans for single-family residential customers under the existing Pay-As-You-
Throw ordinance.
January 26, 2016 Page 2
o Staff met with the haulers in early and late November to discuss this topic, and notes from those meetings
were shared with Council via memo (Attachment 1).
Staff developed draft code language for the Community Recycling Ordinance.
o Draft Code language was shared with the trash/recycling haulers and the public on December 4.
A public meeting was held on December 17, 2015.
o Attendees were highly engaged and in discussion expressed overall support for the project.
o Discussed the draft Code language and the project overall
Staff held a third meeting with Fort Collins’ trash haulers to discuss the draft code language in great depth
(notes from that meeting were shared with Council via memo; see Attachment 1).
As a result of this work, staff is seeking additional feedback from City Council regarding the following three
specific implementation decision points for the Community Recycling Ordinance.
1) Percentage price difference between sizes of trash cans for single-family residents
The existing Pay-As-You-Throw (PAYT) ordinance:
Applies only to single-family homes
Bundles together trash and recycling service and cost
Requires that a resident’s trash bill is based on the volume of trash service to which they subscribe
o Requires a 100% price difference between sizes of trash cans.
For example, if the smallest trash cart (32 gallons) were $15 / month, the medium cart (64 gallons)
would be $30/month, and the largest (96 gallons) $45 / month. (These are round numbers meant for
illustration – the haulers set their own rates and the numbers listed here aren’t meant to represent the
actual rate charged by local haulers.)
Changes to the price difference between trash cart sizes
Over time, Fort Collins’ PAYT ordinance has been updated to provide further refinement or to adapt to changes.
Recent local changes include:
In 2015, changes in the contract at the Larimer County Recycling Center have resulted in charges to haulers
when delivering recyclables (for which they were paid in the past).
Rising landfill “tipping” fees
o Costs at Larimer County are going up 4% in 2016 and will continue to climb as the facility’s
closure date nears.
Haulers are likely to raise rates for customers in 2016 due to reasons listed above.
Given that over 9,000 communities in the U.S. have PAYT ordinances, staff now has access to substantial
research into what characterizes the “ideal” PAYT ordinance.
Optimal price difference between trash cart sizes to motivate waste reduction and recycling is 80%1.
o For example, if a small trash cart were $15, a medium would be $27, and a large $39
1 EPA webinar regarding Pay-As-You-Throw http://www2.epa.gov/sites/production/files/2015-
09/documents/skumatz.pdf (Price differentials highlighted on slide19) ; Pay As You Throw (PAYT) In the US:
2006 Update and Analysis http://archive.epa.gov/wastes/conserve/tools/payt/web/pdf/sera06.pdf (Price
differentials on page 15)
January 26, 2016 Page 3
o Same research shows the minimal price difference to still provide motivation for people to reduce their
trash volumes is 50%
Example trash rates would be $15 (small cart), $22.50 (medium cart), and $30 (large cart).
Staff recommendation: 80% price difference between trash cart sizes
Maintains the excellent recycling habits already established by Fort Collins residents
Minimizes the impact of potential future rate increases on 64- and 96-gallon customers
SERA analysis notes that an 80% price differential is likely to encourage greater participation in new organics
collection programs also being considered as part of the Community Recycling Ordinance (see models for
pricing with bundled organics collection in Attachment 2)
Hauler preference: 50% price difference between trash cart sizes
50%-differential may be anticipated to reduce participation in recycling by 4%, thereby actually reversing the
trends in Fort Collins that have contributed to reaching community goals. Staff does not recommend adopting
a 50% difference in prices per can
2) Options for organics collection from residents of single-family homes
Compost collection programs are an area of great opportunity for waste diversion and greenhouse gas reduction
from Fort Collins:
Over 50% of the material generated by Fort Collins that is sent to landfill for disposal could be composted;
New infrastructure in Northern Colorado now allows for the composting of food scraps collected separately or
together with yard trimmings.
o There has been strong interest from Fort Collins residents during public outreach in having more options
for organics (food scraps and yard trimmings) collection.
Four options for collecting compostable yard trimmings and potentially food scraps have been identified for the
Community Recycling Ordinance. All options listed:
Would require a separate cart be provided to residents (likely 96-gallons) for collecting compostable materials
curbside.
Would be embedded in the cost of basic residential service (along with trash and recycling).
Modeled pricing for organics collection options are included in Attachment 2.
Table 1: Modeled results from percentage price difference options in the single-family residential
Pay-As-You-Throw ordinance
Trash Cart Size (gallons)
100% Differential
(current)
80% Differential
(new option)
50% Differential
(new option)
32 $12.70 $14.00 $16.30
64 $25.40 $25.10 $24.50
96 $38.10 $36.30 $32.70
Anticipated change
in residential recycling rate 0% 0 to -2% -4%
Assumptions included in this model:
Revenue generated to the haulers remains constant
Independent of any other program changes – it applies to changes to the existing program only
January 26, 2016 Page 4
Table 2: Single-Family Residential Organics Collection Options and Analysis
Single-Family
Organics
Collection
Option
Estimated
Cost to
Resident
per Month
Estimated
Tons
Composted
per Year
$ / Ton
Composted
Greenhouse
Gas Reductions
per Year
(MTCO2E)
Comments
a) Year-round
weekly collection
of yard trimmings
+ food scraps
$7.80 21,500 $169 15,260
In line with
conversation with
public thus far in
project
Allows for future
movement to
every-other-week
trash service
Only one current
destination for
materials
(A1 Organics)
b) Seasonal
weekly collection
of yard trimmings
+ food scraps
(Apr-Nov)
$6.00 18,300 $153 12,989
Only one current
destination for
materials
(A1 Organics)
c) Seasonal
weekly collection
of yard trimmings
(Apr-Nov)
$5.47 9,900 $257 789
Haulers have multiple
options for locations
that could accept and
compost materials
d) Every-other-
week, seasonal
collection of yard
January 26, 2016 Page 5
Table 3: Updated Phase-in Recommendations for Community Recycling Ordinance
Original
Proposal
Current
Proposal
Comments Details of phase-in
Multi-Family
Recycling
1.5 years
(June 2017)
1.5 years
(June
2017)
Only 32% of multi-family
complexes remain that don’t
have recycling
(72 complexes)
Important for social equity and
parity with single-family residents
Bundled recycling
applies to any new
customers
Existing customers (that
don’t have recycling)
would have recycling
bundled with trash
service by 2018 (1.5
years)
Commercial
Recycling
1.5 years
(June 2017)
4 years
(2020)
Add
recycling
for 25% of
customers
per year
Greater number of customers to
add recycling (~1600)
o 48% of businesses currently
have recycling
Phase-in by % of customers
each year ensures progress
toward goals, but allows hauler
to add customers as makes
business sense for them
Allows for capitalization and
staffing to roll out recycling
Bundled recycling
applies to any new
customers
Existing customers (that
don’t have recycling)
must have recycling
bundled with trash
service by 2020 (4
years)
January 26, 2016 Page 6
Based on conversations with Fort Collins trash haulers, staff understands their preferences to vary for the
organics collection options and phase-in timelines, but share consensus regarding:
50% price difference between trash cart sizes for single-family residents
Next Steps
Once the items for discussion at this work session are resolved, the next step is for City Council to discuss the full
Community Recycling Ordinance at a regular session. A tentative date is scheduled for the February 16 regular
session, pending further direction from Council.
ATTACHMENTS
1. Memos sent to Council since October 13, 2015 Work Session (PDF)
2. Modeled Cost to Residents for Bundled Organics Collection (PDF)
3. October 13, 2015 Work Session Summary (PDF)
4. Powerpoint presentation (PDF)
Memos sent to City Council regarding the Community Recycling Ordinance since the 10/13/15 work session
ATTACHMENT 1
Modeled Cost to Residents for
Bundled Organics Collection
100%
price
difference
between
sizes of
trash cans
80%
price
difference
between
sizes of
trash cans
50%
price
difference
between
sizes of
trash cans
Anticipated
distribution
of cart
subscriptions
Just trash and recycling service (no organics bundled)
Small cart (32gal) $12.70 $14.00 $16.30 40%
Medium cart (64gal) $25.40 $25.10 $24.50 40%
Large cart (96gal) $38.10 $36.30 $32.70 20%
Overall amount raised / household $22.89 $22.89 $22.89
Year-round weekly collection of food scraps + yard trimmings
(+$7.80)
Small cart (32gal) $19.20 $20.70 $23.60 50%
Medium cart (64gal) $38.40 $37.30 $35.40 40%
Large cart (96gal) $57.50 $53.90 $47.20 10%
Overall amount raised / household $30.69 $30.69 $30.69
Seasonal weekly collection of food scraps + yard trimmings
(+$6.00)
Small cart (32gal) $18.10 $19.50 $22.20 50%
Medium cart (64gal) $36.10 $35.10 $33.30 40%
Large cart (96gal) $54.20 $50.80 $44.40 10%
Overall amount raised / household $28.89 $28.89 $28.89
Seasonal weekly collection of yard trimmings
(+$5.47)
Small cart (32gal) $16.70 $18.20 $21.00 45%
Medium cart (64gal) $33.40 $32.70 $31.50 40%
Large cart (96gal) $50.00 $47.30 $42.00 15%
Overall amount raised / household $28.36 $28.36 $28.36
Seasonal every-other-week collection of yard trimmings
(+$3.33)
Small cart (32gal) $15.40 $16.80 $19.40 45%
Medium cart (64gal) $30.80 $30.30 $29.10 40%
Large cart (96gal) $46.30 $43.70 $38.80 15%
Overall amount raised / household $26.22 $26.22 $26.22
*All information is for example only – haulers set rates for their customers in Fort Collins.
All costs listed are modeled.
ATTACHMENT 2
Environmental Services
215 N. Mason
PO Box 580
Fort Collins, CO 80522
970.221-6600
970.224-6177 - fax
fcgov.com
MEMORANDUM
Date: October 15, 2015
To: Mayor and City Councilmembers
Thru: Darin Atteberry, City Manager
Jeff Mihelich, Deputy City Manager
Lucinda Smith, Environmental Services Director
Susie Gordon, Sr. Environmental Planner
From: Caroline Mitchell, Environmental Planner
Re: 10/13/15 Work Session Summary – Community Recycling Ordinance
Jeff Mihelich, Lucinda Smith, and Caroline Mitchell presented options for a Community Recycling Ordinance. All City
Councilmembers were present. A Community Recycling Ordinance would potentially update the Pay-As-You-Throw
ordinance as it applies to single-family homes, include multi-family and commercial locations in the ordinance, and
provide organics collection for composting.
General Comments
Councilmembers generally expressed support for the multi-family & commercial and organics options
Council members had questions about the single-family Pay-As-You-Throw system, including
o The benefit and ability of haulers to show customers the cost for providing recycling service
o The benefit of requiring a certain percentage increase between sizes of trash carts
Be sure to recognize the role of the private sector in providing trash and recycling service in Fort Collins
Next steps
Staff will meet with trash haulers to understand their perspectives and aim to come to an agreement about the
single-family Pay-As-You-Throw systems. Potential changes to the start date of seasonal yard trimmings collection by
haulers will also be discussed. Staff will report back to Council via memo following that meeting.
o If that result is supported by Council, staff will draft an ordinance with the recommendations from the
Community Recycling Ordinance to bring to a regular Council meeting.
Further research anticipated impacts to Fort Collins’ recycling rate from various options of the Pay-As-You Throw
ordinance for single-family homes
o Include comparable communities to Fort Collins and share with Council
Continue to evaluate and report back on the overall greenhouse gas impacts of Community Recycling Ordinance
options, including composting options
Additional Information regarding questions from Council
Clarification of verbiage allowed in trash haulers’ communications to customers was provided in a memo to Council on
10/15/15
Fort Collins residents’ subscription to trash container sizes
o 96 gallons: 27%; 64 gallons: 36%; 32 gallons: 36%; bag service / intermittent: 1%
ATTACHMENT 3
1
Community Recycling Ordinance
Caroline Mitchell
1-26-16
ATTACHMENT 4
Council-Adopted Goals
Road to Zero Waste Goals
• 75% diversion by 2020
• 90% diversion by 2025
• Zero waste by 2030
2
Climate Action Goals
• 20% reduction by 2020
• 80% reduction by 2030
• Carbon neutral by 2050
Update since last Council work session
3
• Significant stakeholder engagement
• Met 3 times with all haulers
• Created draft code language, shared with haulers and public
• Held public open house on Dec 17
• Conducted additional research into single-family organics
options
Questions for Council
Does Council have feedback regarding the
1) Price differential between trash can sizes?
2) Organics collection service?
3) Ordinance implementation timeline?
4
5
1) Recycling service included with trash service; cost embedded
• Recycling is no additional charge (to single-family residential)
2) Trash pricing based on volume of trash can subscription
• Currently 100% price difference
Current Pay-As-You-Throw Requirements
Price Differentials in
Residential Pay-As-You-Throw
6
Current 100% price difference
*Rates are for example. Actual rates set by haulers.
80% price difference
50% price difference
$12
$14
$16
$32
$24
$25 $36
$24 $36
Recycling decreases 4%
Recycling same to 2% decrease
Food scraps
• Includes meat, bones, dairy
• Can include food-soiled paper
• Napkins, paper towels
Includes items that can’t go
down garbage disposal or in
backyard compost piles
Organics
7
Yard Trimmings
• Branches, leaves
• Garden trimmings
• Grass clippings
Compost cart
8
Single-Family Organics Collection Options
a) Year-round weekly food scraps + yard trimmings
b) Seasonal weekly food scraps + yard trimmings
c) Seasonal weekly yard trimmings
d) Seasonal every-other-week yard trimmings
(All services bundled with basic trash / recycling service)
9
Estimated
Monthly Cost
to Resident
Tons
Composted
$/ton diverted
Greenhouse Gas
Reduction
(MTCO2E)
2a) Year-round food + yard $7.80 21,500 $169 -15,260
2b) Seasonal food + yard $6.00 18,300 $153 -12,989
2c) Seasonal yard $5.47 9,900 $257 -789
2d) Every-other-week
seasonal yard
$3.33 8,900 $174 -709
Single-Family Organics Collection Options Analysis
Phase-in: Multi-Family Recycling
Original: 18 months
Recommended: 18 months (June 2017)
• Only 72 multi-family complexes
remaining that don’t yet have
recycling (32% of complexes)
• Provides greater social equity,
parity with single-family residents
10
Phase-in: Business Recycling
• ~ 1,600 businesses to phase in
• (48% of businesses already recycling)
• Allows haulers to phase in as it makes business sense
• Provides greater flexibility for capitalization and staffing to
roll out recycling
Original: 18 months
Recommended: 4 years (by 2020)
(incrementally add 25% of customers / year)
11
Phase-in: Residential Organics
Original: 2 years
Recommended: 2 years (by April 2018)
• No phasing recommended
• To competitively meet demand, haulers may prefer to
deploy carts to all customers at once
• Allows for capitalization and planning time
12
Phase-in: Food Scraps from Restaurants
Original: 2 years
Recommended: 3 years (2019)
• No phasing recommended
• Allows for capitalization and planning time
13
14
Recommended Phase-in
Commercial
Recycling: 2020
(25% per year)
Restaurant &
Grocer Food Scraps:
2019
Single-Family
Organics: 2018
Multi-Family
Recycling:
Jun 2017
0 1 2 Years 3 4 5
Waste-to-Energy Component
Food scraps from Grocers & Restaurants could go to:
1. Heartland Biodigester
•Generates methane from anaerobic digestion
•Natural gas piped into grid
•Compost made from solids
2. Fort Collins water-reclamation plant biodigesters (emerging option)
• Generates methane from anaerobic digestion
• Used for combined heat & power
15
Price Differentials in
Residential Pay-As-You-Throw
16
Current 100% price difference
*Rates are for example. Actual rates set by haulers.
Option 1a) 80% price difference
Option 1b) 50% price difference
$12
$14
$16
$32
$24
$25 $36
$24 $36
Recycling decreases 4%
Recycling same to 2% decrease
17
Single-Family Organics Collection Options
2a) Year-round weekly food scraps + yard trimmings
2b) Seasonal weekly food scraps + yard trimmings
2c) Seasonal weekly yard trimmings
2d) Seasonal every-other-week yard trimmings
(All services bundled with basic trash / recycling service)
18
Recommended Phase-in
Commercial
Recycling: 2020
(25% per year)
Restaurant &
Grocer Food Scraps:
2019
Single-Family
Organics: 2018
Multi-Family
Recycling:
Jun 2017
0 1 2 Years 3 4 5
Questions for Council
Does Council have feedback regarding the
1) Price differential between trash can sizes?
2) Organics collection service?
3) Ordinance implementation timeline?
19
o phase-in 25% of
customers each year
Single-Family
Organics
2 years
(2018)
2.5 years
(June
2018)
No phasing as haulers may
prefer to deploy carts to all
customers at once
Allows for capitalization and
planning time
All residents must have
service bundled in with
basic trash and recycling
service by June 2018
Restaurant &
Grocer Food
Scrap
Composting
2 years
(2018)
3 years
(2019)
No phasing recommended
Allows for capitalization and
planning time
All restaurants and
grocers must subscribe to
food scraps service in 3
years (2019)
(unless using garbage
disposal or other non-
landfilling disposal
method)
Summary of Recommendations
Based on analysis of options to advance progress toward community zero waste goals and public input, staff
recommends the following three options for the specific decision points that City Council requested further
information on as part of the Community Recycling Ordinance:
80% price difference between trash cart sizes for single-family residents
Seasonal bundled collection of food scraps + yard waste for single-family residents (option b)
Updated phase-in for all elements of the Community Recycling Ordinance
trimmings
(Apr-Nov)
$3.33 8,900 $174 709
Haulers have multiple
options for locations
that could accept and
compost materials
Staff recommendation: b
Based on the substantial amount of material that could be composted at an efficient price, and the potential
scalability of the program to year-round in the future if warranted.
3) Phase-in options for elements of Community Recycling Ordinance
Many communities phase in recycling requirements or organics collection programs. During conversations with
Fort Collins’ trash haulers, staff received additional insight into phase-in needs. An updated recommended phase-
in for the elements of the Community Recycling Ordinance is offered for Council feedback as follows: