PRR 674 Doc 9 Oakland Zero Waste Goal Reso Staff Report 10-29-13

7/27/2019 PRR 674 Doc 9 Oakland Zero Waste Goal Reso Staff Report 10-29-13

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CITY OF O A K L A N DAGE NDA REPORT

TO : Office of the City AdministratorATTN: Deborah Edg erlyFROM: Public Works Ag encyDA TE: February 28, 2006RE: RESOLUTION ADOPTING A ZERO WASTE GOAL BY 2020 FOR THE

CITY OF OAKLAND AND DIRECTING THE PUBLIC WORKS AGENCY,IN CONCERT WITH THE MAYOR'S OFFICE, TO DEVELOP A ZEROWASTE STRATEGIC PLAN TO ACHIEVE THE CITY'S ZERO WASTEGOAL

SUMMARYThe Mayor's Office reque sted a resolution be prepared establishing a goal of zero waste disposalby 2020, and directing staff to prepare a Zero W aste Strategic Plan for the City of Oakland. ZeroWaste is a sustainabil ity philosophy and design principle that goes beyond recycling, taking awhole system approach to the vast flow of resources and waste through society and moving inlogical increments to elim inate waste. A graphical depiction of Zero W aste principle s is shownin Attachment A .The City of Oakland has taken steps toward promoting sustainable use of resources andmaterials, includin g programs and polic y goals to reduce, reuse, and recycle m aterials that wou ldotherwise be disposed as waste. How ever, Oakland wi ll not be able to meet its 75% wastereduction or sustainability goals solely through traditional downstream recycling programs,which seek to divert from disposal materials that have already been consumed and discarded.Zero Waste strategies are required to achieve both goals. By establishing a Zero Waste Goal, theCity of Oakland would join a growing global movement of local governments that have adoptedZero W aste goals and policie s. This report recomm ends that the City take an important stepforward in acting on its commitment to sustainability by adopting a Zero Waste Goal, anddeveloping a Zero Waste Strategic Plan to achieve that goal.

FISCAL IMPACTThis resolution establishes a Zero Waste Goal for the City of Oakland, and directs the PublicWorks Agency (PWA), in concert with the Mayor's Office, to develop a Zero Waste StrategicPlan to achieve that goal. It does not suggest spec ific programs or projects fo r funding. Staffwill return to City Council with a Strategic Plan and funding options fo r proposed strategies that

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Deborah EdgerlyPWA/Environmental Services DivisionZero Waste Re solution Page 2

can be used to achieve the Zero W aste Goal. Funding fo r technical assistance to staff indeveloping the Zero Waste Strategic Plan is currently available in the FY 2005-07 AdoptedPolicy Budget Fund (1710) Recycling/Solid Waste Program (30682) Project P275210.SC17 inaccount 54919 fo r contracts approved during adoption of the FY 2005-07 Budget.

BACKGROUND

A series of state, county, and City waste reduction, health, environmental protection, andsustainability legislative an d policy in itiatives over the past 15 years provide the framework fo rOakland 's adoption and pursuit of a Zero W aste Goal: California AB 939 (1989) and Oakland Resolution #66253 C.M.S. (1990) set initial goalsfor reducing waste disposal to landfills by 2000, an d developing markets for recyclablematerials Oakland Resolution #68780 C.M.S. (1992) authorized establishment of a state-designatedCity Recyc l ing Market Development Zone Alameda County Ballot Measure D (The Alameda County Waste Reduction and RecyclingInitiative Charter Amendment, 1990) and Oakland Resolution #77500 C.M.S. (2002)expanded waste reduction goals to 75% by 2010Beyond solid waste disposal reduction and recycl ing market development, the following actionsby Oakland included : Re solution 74678 C.M .S. (1998) adopted sustainabil ity g oals Resolution 74773 C.M.S. (1999) established a pol icy and task force to reduce dioxinemissions Oakland FY 2005-07 M ayor and City Council Goals include: Develop A Sustainable City In June 2005 Oakland Mayor Jerry Brown signed the United Nations World Envi ronment

Day Urban Environmental Accords, pledging that Oakland would implement 21 action stepstoward sustainabil i ty. Cities, councils, counties, and states worldwide have adopted a goal ofachieving zero waste. The adopted Accords are shown in Attachment B. Staff from PWA-Recycl ing and CEDA-Recycl ing Market Development Zone areparticipating in a newly-formed Bay Area Zero Waste Communi t ies working group whichincludes representatives from the cities of Berkeley and Palo Alto, the City and County ofSan Francisco, and Santa Cruz County - all of whom have adopted Zero Waste goals andseek to join with other communities to partner, share, and leverage efforts to pursue ZeroW aste strategies and actions.More comprehensive background information is provided in Attachment C.

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Deborah EdgerlyPWA/Environmental Services DivisionZero Waste Resolution Page 3

KEYISSUES ANDIMPACTSWhat is Zero Waste?Zero Waste derives from applying the principle of sustainability to redefine the concept of'Vaste" in our society. The presumption that waste is a natural by-product of our culture andeconomic system, that is handled by end-of-the-pipeline waste management activities, programs,or technologies, is replaced with the presumption that: Products are designed andused so that they can be and are repaired, reused, or recycled Any output during the production, transportation, use, and disposition of these products thatis destined for land, sea or air is not a threat to planetary, animal, or plant healthCore Zero Waste principles, as applied to discarded materials that may become municipal solidwaste, are: Improving 'downstream* reuse/recycling of end-of-life products and materials to ensure their

highest and best use Pursuing 'upstream1 re-design strategies to reduce the volume and toxicity of discarded

products and materials, and promote low-impact or reduced consumption lifestyles Fostering and supporting use of discarded products andmaterials to stimulate and drive local

economic an d workforce developmentAttachment Aprovides a more detailed description of Zero Waste principles.

Adopting a Goal for Zero Waste by 2020 is important for Oakland because it is: Needed for Oakland to achieve sustainability and 75% waste reduction goals Needed to reverse growing local/regional health and financial liabilities from waste disposal A key element of local economic andworkforce development Needed in a worldwide effort to reverse damage to the planet's natural systemsAchieving City's 75% Waste Reduction GoalZero Waste strategies will be necessary for Oakland to reach its sustainability and 75% wastereduction goals. The City has successfully reached the state-mandated 50% waste reductiongoal, primarily through voluntary participation in a Public Works-driven residential recyclingcollection program, and free market recycling services available to businesses (supported insome instances with technical assistance from City, County, or State government waste reductionprograms),A separate report to the Public Works Committee of February 28, 2006 identifies proposedstrategies to accomplish the City's 75% goal focuses on expanding and adding traditional end-of-the-pipeline recycling programs. The report acknowledges that the proposed strategies without

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the supplement of Zero Waste are unlikely to result in greater than 65% waste reduction towardthe 75% goal.Ecological FootprintThe global economy's current unsustainable system for materials use is an important problemthat is compromising the planet's natural systems that we rely on for basic ecological servicessuch as clean water, clean air, an d safe food. The combined an d coordinated efforts ofindividuals, businesses, cities, states, and countries will be required to solve or mitigate thisproblem. Attachment D describes an d illustrates ecological footprint measurement.Rapid Increase in Municipal Solid Waste (MSW) Volume an d ToxicityThe nature of waste has changed fundamentally over the last 100 years, increasingly so since1960. Attachment E illustrates changes in waste generation volume an d composition. Localwaste management systems have become the end-of-the-pipeline repository for disposal of anincreasingly complex, disposable, an d toxic stream of products an d packaging. Yet, localgovernments have little or no direct control over the volume, composition, toxicity, or healthimpacts of the discarded materials for which they must assume the responsibility of recycling ordisposal. The US Environmental Protection Agency Criteria for Municipal Solid WasteLandfills acknowledge that groundwater protection controls required under current regulationswill ultimately fail, an d toxics will eventually seep into the groundwater under landfills. Thiseventual an d inevitable leakage portends potential future legal and financial liabilities fo r localgovernments, garbage franchisees, and/or landfill owners. Similarly, mass-burn incineration an dother high temperature thermal processing technologies produce an array of toxic, health-threatening solid, liquid, an d gaseous by-products an d outputs. A s with landfill disposal, theydestroy their input materials, and are thus at odds with Zero Waste sustainability principles ofhighest an d best use of materials, resource conservation, an d protecting public health.

POLICYDESCRIPTIONMoving toward a Zero Waste Goal will provide an enhanced an d concrete pathway towardachieving existing goals of the City of Oakland: To develop a Sustainable City To Achieve 75%Waste Reduction by2010A Zero Waste Strategic Plan for Oakland would include: Improving 'downstream' reuse/recycling of end-of-life products and materials to ensure theirhighest an d best us e



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Pursuing 'upstream' re-design strategies to reduce the volume and toxicity of discardedproducts and materials, and promote low-impact or reduced consumption lifestyles Fostering and supporting use of discarded products andmaterials to stimulate and drive localeconomic and workforce development

Possible elements that may be included in Oakland's Zero Waste Strategic Plan are: Partner with other Zero Waste local, regional and international communities and

sustainability advocates to advance product and materials management and system re-designstrategies, and promote low-impact or reduced consumption lifestyles Expansion ofGreen Building design and construction Development ofdisposal or product usebans Expanded use of discarded materials for local economic and workforce development Structure creative new financial ncentives to reduce waste andmaximize recycling Adopt Zero Waste practices in City government operations and activities Enact anEnvironmentally Preferable Purchasing policy for City procurementA more detailed description of potential Strategic Plan elements is provided in Attachment F.The Mayor's Office will assist PWA in convening a Zero Waste working group to developOakland's Zero Waste Strategic Plan. This Strategic Plan will provide guidance in the planningan d decision-making process to achieve the City's Zero Waste Goal. Staff will return to CityCouncil before the end of FY 2006-07 with the Zero Waste Strategic Plan, and once adoptedstaff will update the Mayor and City Council on progress toward the Zero Waste Goal.Consideration and pursuit of specific strategies may lead to proposed programs or projectsrequiring funding as part of the budget development cycle for FY 2007-09 and in subsequentbiennial budget cycles.

SUSTAINABLE OPPORTUNITIESEconomic: Zero Waste strategies help Oakland businesses reduce waste, thereby increasingoperating efficiency and reducing costs. Expanding and actively supporting use of discardedmaterials drives local economic and workforce development with 'green collar* jobs and valueadded production. It also supports the export of recyclable materials - one of the dominantmechanisms for returning empty export containers to Pacific Rim countries, which is animportant consideration for the expected doubling of import activity at the Port of Oakland by2020.Environmental: Zero Waste strategies promote sustainability, conserve natural resources, reduceair and water pollution, and protect habitat.

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Social Equity; Zero Waste strategies can provide ne w living wage jobs for the community, aswell as preserve and enhance natural systems that provide basic ecological services such as cleanwater, clean air, an d safe food

DISABILITYANDSENIOR CITIZEN ACCESSThis project will not have an y direct impact on disability an d senior citizen access.

RECOMMENDATION AND RATIONALEStaff recommends that City Council approve the Resolution adopting a Zero Waste Goal anddirecting staff to develop a Zero Waste Strategic Plan.

ACTION REQUESTED OF THE CITY COUNCILStaff recommends that the City Council approve the resolution.

APPROVED ANDFORWARDED TO THE

ADMINISTRATOR

Respectfully submitted,

RAUL GODINEZIJ]P.EDirector, Public Works AgencyReviewed by:Brooke A . LevinAssistant Director, Public Works AgencyDepartment of Facilities & EnvironmentPrepared by :Mark GagliardiSenior Recycling Specialist



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The Zero Waste EconomyDesigning a Full-Cycle SystemUpstream AND Downstream

CO


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Attachment A: The Zero Waste Economy (continued)

Figure 1: Zero Waste EconomyAn environmentally and economically sustainable system where resources arekept in the production cycle

Changing the Rules

Jobs fromDiscards

Resource Recovery Centers

Producer Responsibility

Shifting Subsidies

Design for theEnvironment

Clean ProductionDistribution

EmpoweredConsumer

Rather than looking at our production systems as one way and linear, we can redesign them to be cyclical,as in nature, where there is no such thing as "waste" and materials are kept in the production cycle. ZeroWaste is emerging as a paradigm shift, a new, comprehensive socio-technical system that addresses ourresource use from product design to disposal.Changing the Rules of the GameW e need to put policies and practice s in place that favor environme ntally and economic ally sustainablepractices over wasteful , polluting, and ult imately costly practices. Such policies would include creatingfinancial incentives fo r businesses and residents to recycle more an d create less waste, banning toxicproducts from landf il ls or incinerators, prohibit ing the sale of unnecessar i ly toxic or polluting products,essentially putting pol ic ies in place that make it easy to recover materials instead of waste them.Shifting Taxpayer Subsidies Awav From Wasteful and Polluting Industries and Into SupportingEnvironmentally-Friendly PracticesFederal tax subsidies created more than 10 0 years ago to spur ou r change from an agrarian society to anindustrialized society still exist , g iving a f inancia l incentive to industr ies to make products from virginmaterials. As long as these subsidies remain in place, the devastation of the environment will continue.These are not paltry sums dr iving today's resource extraction bonanza according to the report, "Welfarefor Waste," direct subsidies to the timber, hard-rock minin g, and ene rgy ind ustrie s reac h $2.6 billion peryear in taxpayers ' funds.

Zero Waste Economy - Page 2


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Attachment A: The Zero Waste Economy (continued)Design for the Environment (DFE)It 's time to stop waste before it happens - at the designer's desk. Instead of designing products witho utregard for the amount or type of resources used, th e product 's toxicity, or the product's eventual recovery,under DFE, al l products an d packaging will be manufac tured with the use of non-toxic materials, an ddesigned fo r either reuse, recyc l ing or composting.Clean ProductionUnde r the current system , the fastest and cheapest production m ethod s win out above the health andsafety of the workers, the community, and the environment. Companies unwilling to meet theenvironmental and worker protection standards in the developed world have s imply relocated to exploitthe workers and the env ironme nt of developing countries . By providing incentives for clean productionmethods, we can discourage this "fight to the bottom" mentality and award efforts to protect worke rs andthe environment.Th e Role of Distribution/Retail in the Zero Waste SystemW ithin the Zero W aste system, distr ibution centers work w ith manu facture rs to reuse p ackag ing such aspallets and crates and to reduce unnec essary pack agin g. Retailers convey consume r habits and preferen cesupstream to the m anu fac turers where consum er pressures can lead to better design. Retailers may alsosupport downstream infrastructure such as Resource Recovery Parks through f inancial contributions orinformational displays. D istr ibutors and retaile rs serve as e duc ation centers to info rm consum ers aboutthe proper disposal methods fo r items such as motor oil, electronics, an d batteries . In all these ways,distr ibutors expand upon their current roles by acting as a go-between for manufacturers and consumersin both directions.The Empowered ConsumerThe empowered consumer is essent ia l in all face ts of Zero Waste. First, the consumer uses their buyingpower to demand n on-toxic and easily reused, recyc led, or composted products . The consum er dollar isthe ult imate voice to indus try , par t icu lar ly in the U.S., and wil l be the driving force in changing ou rconsumption and disposal patterns. Reduce and reuse also begin with the consumerthey choosematerials that are minimal ly packaged and less toxic, thus rewarding those manufacturers w ho takeresponsibil ity for their products an d packaging, an d provid ing th e financial incent ive for other companie sto follow suit.Extended Producer Responsibility (EPR)EPR puts the legal, f inancial, and en vironm ental responsib il ity for materials entering the waste s treamwith the man ufac turer , not on the consumer or the local governm ent at the end of the produ ct 's orpackaging ' s life cycle. The end result is a fundamental shift in responsibility and f inancing so thatmanufacturers redesign products to reduce material consumption and facil itate reuse, recyc l ing andrecovery.Investing in Recovery Infrastructure, N ot LandfillsRather than using the tax base to bui ld new landfills or incinerators an d then to clean up the result ingcontamination, communities working towards Zero Waste invest in recycling, composting, and reusefacilities called "Resource Recovery Parks." Whe n the true costs of environmental pollution resultingfrom landf ills or incinerators are accounted for, these cleaner Resource Recovery Parks attract thep u b l i c ' s enthusiasm, pride and market inves tments .

Zero Waste Economy - Page 3


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Attachment A: The Zero W aste E conom y (continued)Creating Jobs from Discards: The Job Potential of the Zero Waste SystemWasting materials in a landfill or incinerator also wastes jobs that could be created if those resources werepreserved. A ccording to the report Wasting and Recycling in the United Stales 2000, "On a per-ton basis,sorting and processing recyclables alone sustains ten times more jobs than landfilling or incineration." Init s report Resources up in Flames, the Insti tute of Local Self-Rel iance discusses ho w r e m a n u f a c t u r i n goffers th e biggest pay-off in recycling. Recycling-based manufac turers create more jobs at higher wagesthan sorting operations. In fact, some recycling-based paper mills and plastics product manufacturersemploy 60 t imes more workers on a per metr ic to n basis than do landf il ls . Rather than de s t roying th evalue of society 's discards in incinerators an d landfi l ls , th is value is protected an d leveraged to create newlocal wealth.

Figure 2: Our Current Linear Wasting SystemA costly one-way street

Ou r current production systems are l inear, designed as if there are no limits to our natural resources.Products are bom of environmentally-destructive activities such as clearcutting, strip mining and drilling,which result in soil erosion, habitat loss, and severe air, soil, and water contamination. We as taxpayersunwittingly encourage this wasteful and polluting behavior through governmental subsidies at threedifferent stages: (1) When resources are extracted to make the product, financial incentives and tax breaksare given to industries that extract virgin resources. (2 ) When toxins enter our air and water suppliesduring the manuf acturing process, the taxpayer helps pay to clean up these messes through programs suchas the federal Superfund program. (3) At the end of the products ' l ives, taxpayers pay again for thecleanup of toxins, which leak into th e groundwater from landfi l ls an d billow into the air fromincinerators.

Zero W aste Economy - Page 4


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Urban Environmental AccordsSigned on the. occasion of United Nations Environment Programme World Environment Day

June $th, 20 o r) in San Francisco, Ca lifornia

G R E N C11' I E S I) E 0 L A R AT 10 NR E C O G N I Z I N G f o r t h e f i r s t time in history, th e m ajor i ty of the planet's populationno w l ives in ci t ies an d tha t con t in u ed u rb an iza t ion wi l l result in one m il l ion peoplem o v i n g to ci i ies each week, thus creating a new set of environmental challengesan d op p or tu n i t i e s ; an dB E L I E V I N G that as Mayors of cities around the globe, we have a uniqueo p p o r t u n i t y to provide leadership to develop t ru ly s u s ta in ab le u rb an ce n te rs b asedon cu l tu ra l ly an d econ om ica l ly appropriate local actions; an dR E C A L L I N G that in 1945 th e leaders of 50 n at ion s g a thered in San Fran c is co tode ve l op and s ign the Chart er of the United Nation s; andAC K NOW LE D GIN G the im p or tan ce of (he ob l iga t ion s an d s p i r i t of the 1972Stoc khol m C on f eren ce on the Hu m an E n v i ron m en t , the 1992R i o E a r t h S u m m i t(UNCED), th e 1996 Is tanbul Conference on Human Settlements , the 2000M i l l e n n i u m Dev elop m en t Goa l s , and the 2002 Johannesbu rg World Summ it onSustainable Development, we see the Urban Environmental Accords describedbelow as a s y n er g i s t i c exten s ion of the efforts to ad v an ce s u s t a i n ab i l i t y , fos terv ib ra n t economics, promote social equi ty , an d p rotec t th e p lan e t ' s n a tu ra l s y s t ems .T H E R E F O R E , BE IT R E SOLV E D, tod ay on W orid E n v i ron m en t D ay 2005 inSa n Francisco, we the signatory Mayors have come together to wr i te a new chap te rin the his tory of g lobal cooperation. We co mm it to promote thi s collabora tivep la t f o rm and to b u i ld an ecolog ica lly s u s ta in ab le , econ om ica l ly d y n am ic , an dsocially eq u i tab le f u tu re for our u rb an c i t izen s ; an dBE IT F U R T H E R R E S O L V E D t h a t w e call to ac t ion ou r fellow May ors a rou n dthe world to sign th e Urban E n v iron m en ta l Accord s an d collaborate with us toim pl e m e nt the Accords; andBE IT FUR THE R R E SOLV E D tha t b y s ig n in g thes e Urb an E n v i ron m en ta lAccords, we comm it to encourage our City govern me nts to adopt these Accordsan d c o m m i t ou r best effor ts to a c h i e v e th e Act ion s s ta ted w i t h i n . By i m p l e m e n t i n gth e Urb an E n v i ron m e n ta l Accord s , we a im to rea l ize tlie r ig ht to a c l ean , hea l thy ,an d saie en v i ron m en t for all m em b ers of our society.

I A i P L EN IE N T A TIO N & R E C O G N IT10 NTHE 2 1 AC TIONS tha t com p r is e the Urb an E n v i ron m en ta l A ccord s a reorg an ized by u rb an them es . They ar c proven f irs t s teps toward environm entals u s t a i n ab i l i t y . However, to achieve long-term sustaina bil ity , cities w i l l have toprogressively im p rov e p er f orm an ce in a l l them at ic a reas .Im p lem en t in g the Urb an E n v i ron m en ta l Accord s will req u i re an op en ,t ran s p aren t , an d participatory d ialogue between government, community groups,businesses , academic institu tions, an d other ke y partners . Accords implementationwill benef it where decis ions are made on the basis of a careful assessment ofavailable al tern atives using the best ava ilab le science.Th e ca l l to ac t ion se t forth in the Accord s w i l l m os t often re s u l t in cost savingsas a result of d im in is hed res ou rce con s u m p t ion an d im p rov em en ts in the hea l thand general well-being of ci ty res idents , implem entation of the Accords canleverage each city 's purchasing power to promote an d even require responsibleenvironmental, labor and human rights practices from vendors.B e twe e n now a nd the W orld E n v i ron m en t D ay 2012, cities s h a l l work toim p lem en t as m a n y of the 21 A c t i o n s as possible. Th e abi li ty of ci t i es to en ac tlocal en v i ron m e n ta l l aws an d p ol ic ies Hitters greatly. However, the success of theAccord s wi l l u l t im ate ly be ju d g ed on the basis of actions taken. Therefore, th eAc c ords can b e im p lem e n ted thou g h p rog ram s an d ac t iv i t i e s ev en where ci t ieslack th e requis ite leg is lative authority to adopt laws.Th e goal is for cities to p ick three actions to adopt each year. In order - torecognize the progress of cities To im p lem en t the Accords, a Citv Green Star Programshall be created.At the end of the seven years a city that has imple me nted:19 - 21Act ion s s ha l l be recog n ized as a "& "& ^ "k City15 - 18 Actions shall be recognized as a ~A"$r & City1 2 - 17 Action s shall be recognized as a ' if "f a C ity8 n Actions shall be recogni zed as a "& City


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PRR 674 Doc 9 Oakland Zero Waste Goal Reso Staff Report 10-29-13

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Transcript of PRR 674 Doc 9 Oakland Zero Waste Goal Reso Staff Report 10-29-13