CITY OF NORTHAMPTON, MASSACHUSETTS

Solid Waste Reduction and Management Task Force Recommendations to the Board of Public Works
April 1, 2011 _______________________________________________________________________________________ Mayors Charge to the Solid Waste Reduction and Management Task Force The City of Northampton will be closing the Glendale Road Landfill on or about June 2012. Future landfill expansion at the current landfill site is expressly forbidden by City ordinance. This Task Force is charged with developing recommendations for the Board of Public Works (the City Board that oversees Solid Waste) for the reduction and management of solid waste in the City. These recommendations should include; A commitment to maximizing reduction, recycling and diversion of waste from the waste stream. The proposed programming must be financially self-sustaining with revenues generated from operations managed within the Solid Waste Enterprise Fund, not through the Citys General Fund. Clearly laid out alternatives with their associated costs. The Task Force should use a variety of methods to gather public input from residents, business owners and institutions (e.g. hospitals, schools) as they develop their recommendations. The Task Force may consider but are not limited to three alternatives for solid waste management without a landfill that were laid out in The City Of Northampton Solid Waste Management Alternatives Study (July 15, 2009). http://74.94.173.233/DPW/landfill/SW_Alt_Study_w-appd_20090715_draft_web.pdf Option 2 Current Collection System The City continues operating one drop-off center for solid waste and recyclables at Locust Street. Households continue to individually arrange for curbside collection services for solid waste and/or recyclables with local haulers, i.e., collection subscription service. The City closes the landfill and Glendale Road drop-off center. Waste collected in the City is hauled to out-of-city disposal facilities. Option 4 City-Wide Contract for Curbside Collection For families living in multi-family residences, the City continues operating a drop-off center for solid waste and recyclables at Locust Street. The City contracts with a private hauler for citywide curbside collection of trash and recyclables from all single-family households. The City closes the landfill and Glendale Road drop-off center. Waste collected in the City is hauled to out-of-city disposal facilities. Option 5 Provide No Service The City closes the drop-off center for solid waste and recyclables at Locust Street. All households individually arrange for waste management services with local haulers, i.e., collection subscription service. The City closes the landfill and Glendale Road drop-off center. Waste collected in the city is hauled to out-of-city disposal facilities. The Task Force will also need to consider (at a minimum); Organics (compostable materials) Construction and Demolition(C&D) Household Hazardous and Electronic Waste Bulky item and metal management (e.g. mattresses, furniture, appliances) The Task Force should complete their recommendations and submit them to the Board of Public Works by March 1, 2011.

Northampton Post-Landfill Solid Waste Collection Alternatives Evaluated by the Task Force Option 1 City Transfer stations and Private Subscription Service Maintain Locust Street and Glendale Road transfer stations. o Buy unit-based trash bags at stores or continue with bag sticker system. City operates transfer station and hauls waste to disposal site. City contracts for waste disposal at a location other than the Northampton Landfill. Residents may continue to contract directly with a private hauler for curbside collection and disposal or rely on private solid waste transfer stations. Private haulers typically pick up weekly, biweekly or monthly. No fundamental change to current collection system approximately 50% of 1-4 family residential units use transfer stations and 50% have private hauling.

Assumptions Used to Prepare Costs - Services Provided Hours: Locust Street7am to 4pm: Monday, Wednesday, Thursday, Friday, Saturday Glendale Road7am to 4 pm: Tuesday, Saturday Both transfer stations will collect: bottles/cans, paper/cardboard, residential solid waste. Revenue raised meets or exceeds projected cost. Fees do not reflect senior discounts that have historically been used. This is a subject for discussion as to how discounts may apply to each option being considered. Difficult to manage waste and other materials can be collected using a fee system: o Locust Street could collect: small scrap metal, used oil/antifreeze/batteries, vehicle batteries, used books, Salvation Army, food waste (possibly). o Glendale Road could collect: bulky waste, white goods, scrap metal, tires, mattresses, cathode ray tubes and electronic waste, universal waste/mercury bearing waste, propane tanks, leaf and yard waste. o Household hazardous waste collections (including paint), sharps, medical waste. Private haulers typically pick up only residential solid waste and bottles/cans/paper/cardboard. Fees are typically charged by private haulers for collection of difficult to manage waste. Option 2 Citywide Curbside Collection Only City contracts with single hauler for curbside collection of residential waste and recyclables from1-4 family dwellings. Close both the Glendale Road transfer station and the Locust Street transfer station. 1-4 family residents who opt out must contract privately for collection and disposal or rely on private solid waste transfer stations.

Assumptions Used to Prepare Costs - Services Provided 1-4 Family Dwellings City Provided Curbside Collection o Weekly collection of residential waste in dedicated 35-gallon totes provided by contractor. Buy additional bag stickers per current system or unit-based trash bags at stores if more than 35-gallons per week. o Bi-weekly collection of single stream recycling (mixed paper/cardboard/bottles/cans) in dedicated 96-gallon totes provided by contractor. o Seasonal collection of leaf and yard waste from April through November. o Annual collection of Christmas trees in mid-January. o Weekly or bi-weekly curbside collection of food waste can be bid as an option (expensive).

Difficult to manage waste could be collected as part of a curbside program for a separate user fee. Materials may include furniture, mattresses, appliances, tires, metal, electronic waste, etc. 1-4 family dwellings that opt out of City curbside collection program are assumed to have a service contract with private hauler or rely on private solid waste transfer stations. Large residential units (>4 units) collection by service contract with private hauler. City may provide other fee-based programs: household hazardous waste, sharps, medical waste (available to all residents). Fees do not reflect senior discounts that have historically been used. This is a subject for discussion as to how discounts may apply to each Option being considered. Annual billing performed by the City. o

Option 3 Citywide Curbside Collection with Glendale Road Transfer Station Opt Out City contracts with single hauler for curbside collection of residential waste and recyclables from 1-4 family dwellings. Glendale Road transfer station open for 1-4 family unit residents who opt out of City curbside program. Residents who opt-out could also contract privately for curbside collection or rely on private solid waste transfer stations. Locust Street Transfer station closed.

Assumptions Used to Prepare Costs - Services Provided 1-4 Family Dwellings City Provided Curbside Collection o Weekly collection of residential waste in dedicated 35-gallon totes provided by contractor. Buy additional bag stickers per current system or unit-based trash bags at stores if more than 35-gallons per week. o Bi-weekly collection of single stream recycling (mixed paper/cardboard/bottles/cans) in dedicated 96-gallon totes provided by contractor. o Seasonal collection of leaf and yard waste from April through November. o Annual collection of Christmas trees in mid-January. o Weekly or bi-weekly curbside collection of food waste can be bid as an option (expensive). o Difficult to manage waste could be collected as part of a curbside program for a separate user fee. These materials could include furniture, mattresses, appliances, tires, metal electronic waste, etc. Hours and materials collected: o Open Tuesday and Saturday, 7am to 4pm o Residential solid waste and recyclables Glendale Road transfer station may, on a user fee basis, accept difficult to manage waste including bulky waste, white goods, scrap metal, tires, mattresses, cathode ray tubes and electronic waste, universal waste/mercury bearing waste, propane tanks, leaf and yard waste composting (possibly), food waste (possibly), if desired. The services provided will depend on the extent of difficult to manage waste included in the curbside program. City may provide other, fee-based programs: household hazardous waste, sharps, medical waste (available to all residents). Large residential units (>4 units) collection by service contract with private hauler. Fees do not reflect senior discounts that have historically been used. This is a subject for discussion as to how discounts may apply to each option being considered. Annual billing performed by the City.

Option 4 Citywide Curbside with Glendale Transfer Station Difficult To Manage Waste Only City contracts with single hauler for curbside collection of residential waste and recyclables from 1-4 family dwellings. 1-4 family residents who opt out of City curbside program must contract privately for curbside collection or rely on private solid waste transfer stations. Glendale Road Transfer station open for difficult to manage waste only; Locust Street transfer station closed. Assumptions Used to Prepare Costs - Services Provided 1-4 Family Dwellings City Provided Curbside Collection o Weekly collection of residential waste in dedicated 35-gallon totes provided by contractor. Buy additional bag stickers per current system or unit-based trash bags at stores if more than 35-gallons per week. o Bi-weekly collection of single stream recycling (mixed paper/cardboard/bottles/cans) in dedicated 96-gallon totes provided by contractor o Seasonal collection of leaf and yard waste from April through November. o Annual collection of Christmas trees in mid-January. o Weekly or bi-weekly curbside collection of food waste can be bid as an option (expensive). o Difficult to manage waste could be collected as part of a curbside program. These materials include furniture, mattresses, appliances, tires, metal electronic waste, etc. Hours and materials collected: o Days and hours of operation to be determined o Difficult to manage waste only- specific materials to be determined. Glendale Road may accept difficult to manage waste including bulky waste, white goods, scrap metal, tires, mattresses, cathode ray tubes and electronic waste, universal waste/mercury bearing waste, propane tanks, leaf and yard waste composting (possibly), food waste (possibly) on a user fee basis, if desired. The services provided to all residents will depend on the extent of difficult to manage waste included in the curbside program. Large residential units (>4 units) collection by service contract with private hauler. City may provide other, fee-based programs: household hazardous waste, sharps, medical waste (available to all residents). Fees do not reflect senior discounts that have historically been used. This is a subject for discussion as to how discounts may apply to each option being considered. Annual billing performed by the City.

LIST OF RECOMMENDATIONS TO THE BOARD OF PUBLIC WORKS Develop an implementation plan (hours, materials accepted and other details) which maintains the current system of collecting trash, recycling and difficult to manage waste at the Locust Street and Glendale Road facilities ; monitor the systems revenues and costs carefully during transition period; re-evaluate periodically to develop a long term plan. Change from the PAYT sticker system to a PAYT bag system, with multiple sizes of bags made with mostly recycled content and made available for purchase though local retailers. Develop and implement a means-based discount (as opposed to a senior discount). Explore a sustainable plan to establish and operate a reuse center and/or resource recovery park. In cooperation with the Mayor and/or City Council, appoint a task force to create volunteer-run reuse programs until a more permanent center/park can be identified and established. Continue the food waste collection program and expand the program to both transfer stations. Promote the expansion of the waste management model currently in place at the Jackson Street Elementary School to all public schools. Adopt a zero-waste waste plan, including but not limited to: o Explore opportunities for legally restricting unnecessary packaging with municipal solid waste bans; write an ordinance for City Council and/or BOH approval to ban nonrecyclable/non-reusable containers (i.e.; Styrofoam, dark plastic take-out containers, plastic bags, etc.) from being used in City restaurants and stores o Participate in Extended Producer Responsibility efforts on local and State levels o Perform outreach to businesses to encourage use of recyclable packaging materials o Write a resolution encouraging local shops and markets to place signs in their parking lots and/or front doors reminding customers to bring their reusable bags into the store o Identify markets for products that cannot currently be recycled Explore ways to increase the opportunities to recycle in public spaces and City buildings. Continue to promote backyard composting through education and the distribution of compost bins at cost. Use the most responsible and environmentally sound approaches available for managing e-waste and other hazardous materials. Keep information updated and available in multiple formats (e.g., websites, e-mailings, bill stuffers, direct mailings, newspaper inserts, packaging for the Northampton trash bags), including information about difficult to manage waste and composting. Work with haulers to explore ways to provide educational materials to their subscription customers. For difficult to manage waste, offer residents financially self-sustaining, safe and accessible options for disposal, using the most responsible and environmentally sound approaches available (particularly for e-waste, unwanted medications and other hazardous materials)

Form a task force charged with exploring use of solar panels for the landfill site to generate/save revenues to fund solid waste and recycling programs. Support the acquisition of the Mass DOT site on Locust Street as a potential site for a transfer station/reuse center. In cooperation with the Board of Health and City Council, increase the fines for illegal dumping and littering. Utilize best practices in municipal decision-making as the BPW moves forward, including meeting in settings that are accessible and accommodating to the public, engaging the public in dialogue, holding community forums, using many options for the dissemination of information and going above and beyond the Open Meeting Law in transparency in the decision-making process.

Respectfully submitted by the voting members of the Solid Waste Reduction and Management Task Force: Wendy Foxmyn, Task Force Co-Chair Mark Carmien, Task Force Co-Chair Terry Culhane, Board of Public Works Marianne LaBarge, City Council Ward 6 David Narkewicz, City Council Chair Mimi Odgers, Water Not Waste Donna Salloom, Board of Health Rosemary Schmidt, Board of Public Works David Starr, GreenNorthampton

TABLE 1 Northampton Solid Waste Reduction and Management Task Force Preliminary Summary of Estimated Costs
Option Type of Service Senior citizen Household Assume 40 gallons of trash/month with source separated recycling Type of Household Family of 2 Assume 140 gallons of trash/month with source separated recycling Family of 4 Assume 80 gallons of trash/week with source separated recycling

DRAFT - Revised March 11, 2011

Option 1

Drop-off Locust Street & Glendale Road

Vehicle Permit $2 x 15 bags Total Annual Cost

$75 $30 $105

Vehicle Permit $2 x 52 bags Total Annual Cost

$75 $104 $179

Vehicle Permit $2 x 130 bags Total Annual Cost

$75 $260 $335

Difficult to Manage Wastes Typically Consist of: Furniture Metal Mattresses CRTs Appliances Electronics Tires Leaf & Yard waste Fee per item based on disposal and management costs. Collection of a wide variety materials at both locations. Fee per item or per load. Hauler determines fee and range of materials collected. Pickup coordination required. Contract determines payment method fee per item (preferred) or in base fee. Contract can require time sensitive pickup after notification. Fee per item or per load. Hauler determines fee and range of materials collected. Pickup coordination required. Contract determines payment method fee per item (preferred) or in base fee. Contract can require time sensitive pickup after notification.

Subscription

Bi-weekly pickup per month $22-$30 Total Annual Cost $264-$360

Bi-weekly pickup per month $25-$30 Total Annual Cost $300-$360

Weekly pickup per month $31-$40 Total Annual Cost $372-$480

Option 2

Curbside Only

Weekly MSW/Bi-weekly recyclables Annual Fee $200 No Extra PAYT bags $0 Total Annual Cost $200

Weekly MSW/Bi-weekly recyclables Annual Fee $200 $2 x 2 PAYT bags $4 Total Annual Cost $204

Weekly MSW/Bi-weekly recyclables Annual Fee $200 $2 x 78 PAYT bags $156 Total Annual Cost $356

Subscription Opt-out

Total Annual Cost

$264-$360 ?

Total Annual Cost

$300-$360 ?

Total Annual Cost

$372-$480 ?

Option 3

Curbside

Weekly MSW/Bi-weekly recyclables Annual Fee $200 No Extra PAYT bags $0 Total Annual Cost $200

Weekly MSW/Bi-weekly recyclables Annual Fee $200 $2 x 2 PAYT bags $4 Total Annual Cost $204

Weekly MSW/Bi-weekly recyclables Annual Fee $200 $2 x 78 PAYT bags $156 Total Annual Cost $356

Opt-out Drop-off (Glendale Only)

Vehicle Permit $2 x 15 bags Total Annual Cost

$130 $30 $160

Vehicle Permit $2 x 52 bags Total Annual Cost

$130 $104 $234

Vehicle Permit $2 x 130 bags Total Annual Cost

$130 $260 $390

Fee per item based on disposal and management costs. Collection of a wide variety materials. Fee per item or per load. Hauler determines fee and range of materials collected. Pickup coordination required. Contract determines payment method fee per item (preferred) or in base fee. Contract can require time sensitive pickup after notification. Fee per item or per load. Hauler determines fee and range of materials collected. Pickup coordination required.

Subscription Opt-out

Total Annual Cost

$264-$360 ?

Total Annual Cost

$300-$360 ?

Total Annual Cost

$372-$480 ?

Option 4

Curbside

Weekly MSW/Bi-weekly recyclables Annual Fee $200 No Extra PAYT bags $0 Total Annual Cost $200

Weekly MSW/Bi-weekly recyclables Annual Fee $200 $2 x 2 PAYT bags $4 Total Annual Cost $204

Weekly MSW/Bi-weekly recyclables Annual Fee $200 $2 x 78 PAYT bags $156 Total Annual Cost $356

Subscription Opt-out

Total Annual Cost

$264-$360 ?

Total Annual Cost

$300-$360 ?

Total Annual Cost

$372-$480 ?

Notes: 1) 2) 3) 4)

Costs are for collection of MSW and recyclables only. These costs are preliminary estimates and may not reflect actual implementation costs. Type of Household trash quantities based on examples in Section 5.1 of the July 2009 Solid Waste Management Alternatives Study. Subscription cost ranges for MSW and recyclables are based on December 2010 pricing from local haulers. Curbside collection assumes a 35-gallon cart for MSW and a 96-gallon cart for recyclables, both to be provided by the contractor. 33-gallon Pay As You Throw (PAYT) bags can be used if the 35-gallon weekly tote capacity is exceeded. 5) Annual drop-off costs for bulky items (furniture, mattresses, tires, appliances, etc.) will vary but is estimated to be $15-50 per person. The increase in annual subscription costs for these items is estimated to be $20-30 per Household. User fees per item is preferred. 6) For Curbside, on average, a Family of 4 would have 48 gallons of overflow per week with a 35-gallon cart. 7) For Subscription Opt-out (Options 2, 3 and 4), underpricing by private haulers is possible, which is why "?" are used. This may result in opt out costs being less in the short term than the City-wide curbside collection cost. 8) Subscription costs range from $22/month for 30 gallon maximum biweekly by Pedal People to $40/month for 60 gallon maximum weekly by Pedal People or MSW only by Allied. 9) Typical, motorized, weekly subscription cost is $31-$35/month or $372-$420/year.

TABLE 4 Option 1 - Transfer Stations Summary of Estimated Expenses and Revenues

Description Fixed Expenses Equipment Rolloff truck Compactors (2) Compactor Boxes (4) Open Top Boxes (4 - 40 cy) Maintenance

FY 13

Assumptions/Notes 1) The City has 11,800 Households (HH) (2000 Census)

$43,000 2) The City has 9,320 1-4 Family Households (2000 Census) 3) 1-4 Family HHs are the primary residential Transfer Station users Vehicle permit sticker sales average 5,873/year (2008-2010) Assume 1 vehicle permit = 1 HH Therefore, 63% of 1-4 Family HHs use the Transfer Stations (5,873 permits/9,320 HH) $38,000 4) Disposal Costs: Assume $85/ton for disposal. Waste disposal average of 3,137 tons/year (2008-2010) at transfer stations. Assume 3,100 tons/year waste. Waste disposal cost is $263,500 ($85 per ton x 3,100 tons) 5) Bag Fee Estimate: Bag sticker sales average 164,777/year (2080-2010) Assume bag sales of 165,000/year and Waste Disposal Cost of $263,500 Cost per bag is $1.60/bag based on waste disposal only ($263,500/165,000 bags sold) Assume $2.00/bag 6) Permit Sticker Fee: Fixed costs (excluding waste disposal) are estimated at $431,544/year (with 15% Cont) Permit Sticker fee based on fixed costs + 15% Contingency Assume 5,800 permit stickers/year (2,000 are seniors) Permit cost is $74.40 each ($431,544/5,800 permits) Assume $75 each

Operations Fuel Electricity Contingency Hauling Printing & Mailing Labor SMEO Hauler HMEO Materials Manager Attendants Solid Waste Supervisor Administration Other Direct Fixed Costs City Engineer DPW Administration Insurance (Liability/Bldg/Veh) Fixed Expenses Subtotal 15% Contingency Fixed Expenses Total Variable Expense (Waste Disposal) Expenses Total Revenues Bag Stickers Residential Permits (at $75) Senior Permits (at $75) Materials Recycling Facility Scrap Metal Revenue Total Profit/(Loss)

$227,469

$66,787

$375,256 $56,288 $431,544 $263,500

$695,044

$330,000 $285,000 $150,000 $28,081 $13,000 $806,081 $111,036