14. WASTE REDUCTION
To reduce, avoid, or eliminate the generation of wastes or the toxicity of wastes prior to generation, without creating substantial new risks to human health or the environment.
14.1 INTRODUCTION
This chapter of the Douglas County Comprehensive Solid Waste Management Plan (DCCSWMP) outlines the regulatory framework overseeing waste reduction, discusses the existing conditions and programs within the Regional Planning Area (RPA), establishes objectives to meet the existing and projected needs, identifies alternatives, and recommends actions for achieving the established objectives.
14.2 REGULATORY FRAMEWORK
14.2.1 Federal Requirements
Although federal regulations do not require Federal, State, local governments, and public and private entities to reduce the waste that they produce, the Environmental Protection Agency (EPA) has issued intentions within the Notice of Proposed Rule Making (NPRM) and Notice of Proposed Rule (NPR) establishing procedures that reduce the types of waste generated. Additionally, procedures and guidelines have been established for certain production and operational conditions and practices that directly relate to the production of waste and its reduction. Several acts have been implemented, specifically the Resource Conservation and Recovery Act (RCRA) and the Comprehensive Environmental Response and Compensation Liability Act (CERCLA), establishing regulations for how wastes are to be managed to prevent pollution and clean up. Within these acts are requirements for Federal, State, local governments, and public and private entities to develop, implement and update operations plans to not only prevent pollution and spills, but also to reduce waste generation.
14.2.2 State Requirements
Under Chapter 70.93 RCW the Department of Ecology (DOE) is given the responsibility to increase public awareness of the need for waste reduction. Additionally, Chapters 70.95 and 70.95C RCW establishes a comprehensive state-wide program for solid waste handling and encourages reduction in the generation of wastes whenever economically and technically practicable respectively.
Chapter 173.304 WAC establishes minimum functional standards for solid waste handling throughout the state. In following the direction set by the legislature for the management of solid waste, this rule established the following priorities in descending order:
- waste reduction;
- waste recycling;
- energy recovery or incineration;
- landfilling.
14.2.3 Local Requirements
Under Chapter 70.95 RCW local governments are required to develop, implement and update comprehensive solid waste management plans. The comprehensive solid waste management plan must contain a waste reduction element that, in accordance with the priorities established in RCW 70.95.010, provides programs that:
- reduce the amount of waste generated;
- provide incentives and mechanisms for source separation;
- establish recycling opportunities for the source separated waste.
14.3 EXISTING CONDITIONS
14.3.1 Education
The participating jurisdictions within the RPA have chosen to emphasize education as the primary method to bring about changes in the public's waste disposal habits. Public education and information programs can lead to changes in purchasing habits and product selection and reuse. Waste reduction programs are also closely related to and part of recycling programs.
Since 1993, the Douglas County Solid Waste Program Office (DCSWPO) has offered a waste reduction education program. The primary purpose of this education program is to inform local governments, public agencies, businesses and the general public about the need to reduce waste at the point of purchase. By targeting the purchasing habits, it is proven that the generation and volume of waste being disposed of is reduced. The program has utilized the media (radio, newspaper), brochures and personal contact.
In addition, the DCSWPO has a mobile display that can be set up at special events and at locations throughout the RPA. The display is designed to be unstaffed. Waste reduction information is attached to the display as well as brochure pockets, which provide copies of fact sheets and brochures about waste reduction to the public. The mobile display may be checked out by organizations and groups.
The DCSWPO also has a resource center that is available to the general public and businesses. The resource center contains books and publications on waste reduction. In addition, a video library of pertinent videos is available to teachers, organizations and groups. Videos may be checked out by teachers, organizations and groups, for up to seven days.
14.3.2 Governmental Office Waste Reduction Programs
Although there is no formal governmental office waste reduction program, all participating jurisdictions within the RPA have implemented informal waste reduction programs. For instance, the participating jurisdictions encourage double-sided copying, reuse of office paper as memo pads, and in-office use of coffee mugs instead of disposable cups.
14.3.3 School Education Curricula
The DCSWPO is a member of the Eastmont School District (ESD) Environmental Taskforce. This taskforce meets four times during the school year to assist its schools and teachers in developing and implementing waste reduction programs. This taskforce played a major role in developing a district-wide curriculum for its teachers that meets state environmental curriculum standards. Contained within this district-wide curriculum is a waste reduction element. Educating children about waste reduction and reinforcing waste reduction ethics at school and in the classroom has proven to be a successful approach to changing individual purchasing habits.
14.3.4 A-Way With Waste Program
The ESD, in conjunction with the DCSWPO, has offered the DOE A-Way-With Waste program since 1993. The DCSWPO conducted a one-day teacher certified A-Way-With Waste workshop each year. This workshop was designed to instruct teachers on how to use the A-Way-With Waste curriculum guide published by the DOE. The curriculum guide is in its third edition and includes a set of activities and lessons on various waste reduction and recycling topics. The workshop leaders describe the curriculum and give advice on how to best incorporate the material into daily lesson plans. The curriculum is not designed for science classes only, but can be integrated into most school subjects. Each lesson includes sections appropriate for different grade levels.
This program was eliminated in 1995 due to budgetary restraints.
14.3.5 Other Waste-Reduction Activities
Several business and service groups operating within the RPA offer waste reduction services. These include consumer goods reuse and repair services. In addition, many grocery stores offer a rebate for returning grocery bags for reuse, a bulk foods section and canvas shopping bags for sale.
14.4 OBJECTIVES
14.4.1 Emphasize Education over Legislation
Chapter 70.95 RCW considers waste reduction the primary method of solid waste management. However, local options for legislating and enforcing waste reduction are somewhat limited. Waste reduction through legislated product or packaging bans is generally most effective on the state or federal level. Local efforts must be directed principally at educating citizens and businesses to change their behavior so they can reduce the waste they produce each day.
While waste reduction remains at the top of the solid waste management hierarchy, the general public has more difficulty understanding this management practice compared to recycling, energy recovery, and landfilling. Current programs must be continued and enhanced to expand their benefits to as many RPA residents as possible. Opportunities remain to increase public understanding of the benefits to be gained from waste reduction, including the notion that using improved packaging, nontoxic household products, and reusable products can serve community efforts to protect the environment, conserve natural resources, reduce landfilling costs, increase public knowledge of waste reduction techniques, and delay the need for development of new disposal options.
14.4.2 Ensure Rates to Maximize Incentives to Reduce Waste
With the collection and disposal of solid waste within the RPA being relatively inexpensive as compared to what the rest of the state pays, it is imperative that the landfill capacity at the GWRLF be sustained for as long as possible. This can be achieved by reducing the volume of waste that is generated within the RPA and by diverting wastes from the waste stream. It has been proven that generators of waste, if charged by what they actually throw away versus a flat volume rate, will reduce their waste disposal through either waste reduction measures, reuse, recycling or waste diversion. By implementing a pay-as-you-throw or variable can rate structure, those that reduce, reuse, recycle or divert their waste are provided an incentive to do so. Additionally, the introduction of a mini-can option or an every-other-week service could be offered at a reduced rate thus providing an additional incentive to reduce the volume of waste going to the GWRLF.
14.4.3 Establish a Waste Reduction Goal
It is the goal of the DCCSWMP to reduce the generation of waste within the RPA by ten percent.
14.5 ALTERNATIVES
14.5.1 Investigate Government Regulations
The increased costs of disposal brought on by more stringent environmental standards and requirements create an incentive to reduce the amount of waste generated. The cost of implementing recycling programs will also increase the revenue requirements for a solid waste management system. The participating jurisdiction should specify within their solid waste collection contracts a rate structures that provides for financial incentives to those residents, public entities and businesses that implement waste reduction and recycling programs. When discussing financial incentives, one might also consider that there are some disposal costs that can be avoided by increasing the amount of waste reduced, thereby diverting it from a disposal site. By reducing the amount of waste going to landfills and thereby extending landfill site life or facility capacity, the participating jurisdictions could delay costs of siting new facilities or long-hauling their waste outside the RPA. Over time, this will result in substantial savings. In addition, by removing certain items from the waste stream, environmental impacts, such as air and water pollution, and toxic waste prevention may be diminished, which could prevent substantial penalties and fines and clean-up costs.
14.5.2 Implement Disposal Bans
Another way to promote waste reduction is to prohibit the disposal of certain materials into the solid waste system. Although this is primarily a recycling tool, disposal bans can also reduce the amount of waste being disposed of into the waste stream. For example, if whitegoods are banned from solid waste disposal, this may encourage people to take them to second-hand stores. A major problem associated with disposal bans is the potential for illegal dumping of the banned material. Therefore, an important component of the disposal ban alternative is the availability of alternative disposal methods. For example, if whitegoods are banned from the solid waste system, one or more designated facilities should be able to receive the banned items.
14.5.3 Establish Rate Structures that Maximize Incentives to Reduce Waste
A financial incentive that can have an even greater impact on the amount of waste reduced is to ensure that rate structures maximize incentives to reduce waste. Most residents in the RPA pay more for each additional can of garbage they set out on the curb. However, those who substantially reduce their waste could be offered the option of setting out a mini-can at a reduced rate. Other generator-pay systems include:
- limits on the number of cans set at the curb,
- establish every-other-week collection service,
- "variable rate program", which weighs the garbage can and charges the generator by the pound.
Generator-pay systems can be especially effective at providing an incentive for backyard composting, since yard debris is a large percentage of waste generated, approximately 19 percent of the total waste stream and an even larger percentage of the residential waste stream. The Washington Utilities and Transportation Commission (WUTC) has been investigating these and other rate systems.
In unincorporated areas, solid waste collection rates, as set by the WUTC, are currently based on a cost-of-service model. The rate spread between one and two cans of service is approximately $2.00 per month for Waste Management of Greater Wenatchee customers. In a recent study, the WUTC discovered that approximately 60 percent of all customers of WUTC regulated haulers in Washington State subscribe to the minimum service available. To further availability of services that more closely reflect waste generation habits, the commission staff is working with WUTC regulated haulers to ensure they offer mini-can and/or every-other-week collection service to all customers.
14.5.4 Promote Reuse Programs
Businesses and nonprofit groups that promote reuse of items include pallet remanufacturers, diaper services, equipment rental services, printer cartridge remanufacturers, furniture reupholstering businesses, appliance reconditioners, second-hand retail outlets, and lending centers. All such entities provide an infrastructure that supports waste-reduction activities. The participating jurisdictions could support these activities in a variety of ways, including promotion in government-produced brochures and booklets, reduced business taxes, and reduced regulatory burdens. A reduced disposal fee could be provided for organizations that can demonstrate they are diverting a certain percentage of waste from the waste stream. The participating jurisdictions could provide space at their Community Recycling Centers (CRC) for a second-hand organization to park a trailer to collect reusable/repairable furniture, appliances, etc.
14.5.5 Develop a Waste Reduction Program for Governmental Offices
The participating jurisdictions could develop in-house waste reduction programs, and implement new waste reduction measures as they are applicable. By carefully monitoring the waste reduction effectiveness, costs, avoided costs, and program revenues, the participating jurisdictions could develop a model for businesses and schools. By fostering the waste reduction and recycling ethic at work, the participating jurisdictions could encourage their employees to practice waste reduction and recycling at home. Most importantly, by setting an example in their own departments, the participating jurisdictions could gain additional credibility when trying to persuade residents and businesses to reduce and recycle.
14.5.6 Develop a Waste Reduction Program for School Districts
The DCSWPO should continue to serve both schools and the general community by putting increased emphasis on waste reduction education programs. Service to schools could be enhanced to include distribution of learning aids such as manuals, videos, worksheets, etc. A successful school education program must consider the following guidelines:
- involve children in the learning process,
- make the material personal and relevant to the students,
- use a multi-media approach that incorporates a variety of senses,
- guide the students to conclusion on their own,
- encourage the students not only to think about the problem, but to take an active part in its solution.
Also, the DOE should continue to help organize, facilitate, and cover most costs associated with the state's curricula workshops for local school teachers. These workshops are aimed at giving teachers curriculum tools to effectively address proper waste management in their classrooms. The DCSWPO could also assist teachers by providing them with sample curricula units that focus on waste reduction.
14.5.7 Develop a Waste Reduction Recognition Program
The participating jurisdictions could implement a waste reduction recognition and awards program for generators with successful source-separated recycling programs. These awards should be publicized. Generators receiving this recognition could also let their customers know of their achievements through advertisements or by display of their award on the premises.
14.5.8 Develop a Waste Reduction Technical Assistance Program
The DCSWPO, private consultants, or citizen action group participants could offer assistance to business/organization waste generators, using fact sheets, a telephone hot line, directories, workshops, demonstration programs, newsletters, and on-site consultations. These services could offer the private sector valuable assistance in gaining the experience and knowledge that can take months or years to develop without outside assistance. For example, the simple waste reduction techniques of double-sided copying, reusable mugs, routing memos, and using rechargeable batteries may come easily for some organizations, but may take years for others to incorporate into their daily work practices.
Waste Reduction/Recycling Seminar for Businesses
The DCSWPO could facilitate a waste reduction and recycling workshop/seminar each year, targeting specific businesses which generate large amounts of corrugated cardboard, high-quality office paper, and mixed-waste paper. These businesses could be identified by surveying local haulers for their recommendations for likely office complexes, restaurants or supermarkets. To encourage businesses to attend, businesses could be given a certificate of participation. Also they could be offered free waste audits and on-site assistance in establishing a waste reduction/recycling program. All recipients of the certificate could be promoted whenever possible as "partner in progress" within the RPA. Guest speakers/consultants could be used to make the workshops most effective. Manuals, studies or videos that focus on commercial waste reduction/recycling could be purchased as part of a DCSWPO Resource Center. Businesses could be encouraged to share their knowledge with their customers through displays or other types of educational efforts.
Sponsor an Annual Trade Show
The DCSWPO could sponsor a trade show that would allow local businesses involved with waste reduction and recycling an opportunity to display their products and network with similar businesses. Workshops focusing on specific industries and their solid waste needs could be held.
Encourage Businesses to Develop Waste Reduction Plans
The participating jurisdictions could require or request all or selected commercial waste generators to prepare and implement waste reduction plans for their operations. Such a request would have to be accompanied by the appropriate forms to fill out, and the offer of technical assistance should any problems or questions arise.
14.5.9 Develop a Waste Reduction Education Program
Public education is a critical and required element of any successful waste reduction program. The participating jurisdictions place great emphasis on education as the primary method of changing the public's waste disposal habits. If citizens and businesses do not know of the solid waste problem and how they can help, then little progress on waste reduction or recycling is likely to occur.
Existing or new waste reduction public education programs could expand to include more information on the following topics:
- general problem awareness,
- reuse and repair versus disposal,
- home practices that minimize waste disposal,
- product stewardship,
- good purchasing habits.
Difficulties involved with public education programs include the diversity of individuals targeted to receive the information, multiple programs competing for public attention, and cost. The cost-effectiveness of public education programs can be difficult to measure and very few efforts have been made to quantify effectiveness. To combat these obstacles of measuring effectiveness, public education programs require ongoing coordination between public agencies, schools, businesses, and the general public, and monitoring of participants to measure changes in current practices and impacts of the educational events attended.
A variety of methods can be used in public education efforts, but the effectiveness of materials may vary widely. Methods for adult education include:
- Flyers can be distributed at the public buildings, libraries, and local schools,
- Newspaper or bill inserts tend to be an effective method for reaching large numbers of citizens,
- Demonstration projects are a means to provide hands-on information about programs,
- Displays can be placed in areas with heavy foot traffic, such as public buildings, libraries and local
schools,
- Information centers at community gathering places can be an easy way for residents to gather
information about available waste reduction options,
- Booths at local trade shows and fairs provide an opportunity for residents to learn first-hand about
waste reduction from local representatives,
- Videos/slide shows can be made available to community groups and trade associations for use in
presentations,
- Radio advertising is effective in reaching a large audience, and to promote reuse programs and
workshops,
- Newspaper articles are effective in educating a large audience about the waste reduction and good
purchasing habits,
- Presentations to community groups and trade associations provides personal contact with the
community.
Each group of citizens exposed to the education programs should be encouraged to share information with friends and neighbors, in addition to modifying their own behavior.
14.5.10 Monitor and Track Waste Reduction Programs
The DCSWPO needs to monitor and track all waste reduction programs to determine what effects they are having on buyer's habits. Without knowing how effective the waste reduction programs are, it is impossible to anticipate how the solid waste stream within the RPA will be affected. Therefore the DCSWPO should establish a data tracking program which monitors and tracks all waste reduction programs within the RPA annually.
14.6 RECOMMENDATIONS
14.6.1 Establish Rate Structures that Maximize Incentives to Reduce Waste
14.6.2 Promote Reuse Programs
14.6.3 Implement a Waste Reduction Program for Governmental Offices
14.6.4 Implement a Waste Reduction Program for School Districts
14.6.5 Implement a Waste Reduction Recognition Program
14.6.6 Implement a Waste Reduction Technical Assistance Program
14.6.7 Implement a Waste Reduction Education Program
14.6.8 Monitor and Track Waste Reduction Programs