Item 22c Staff Report Public Hearing to Consider Solid Waste Managament Issues: c) Solid Waste Management Programs and Rate Structure FactorsTOWN OF LOS GATO$
COUNCIL AGENDA REPORT
DATE: November 30, 1994
TO: MAYOR AND TOWN_COUNCI
FROM: TOWN MANAGER
SUBJECT:
COUNCIL AGENDA
DATE: 12-5-94
ITEM NO.
PUBLIC HEARING TO CONSIDER SOLID WASTE MANAGEMENT ISSUES:
c) SOLID WASTE MANAGEMENT PROGRAMS AND RATE STRUCTURE FACTORS
RECOMMENDATION:
1. Open the Public Hearing, receive public testimony on solid waste management rate structure
factors.
2. Continue the Public Hearing to January 3, 1995.
REPORT OBJECTIVE:
This report provides Council and interested community members information on solid waste management
services and costs. The following outlines the report:
I. BACKGROUND
A. Program Objectives
B. Fiscal lmpact
C. Community Education
II. DISCUSSION
A. Overview
B. Solid Waste Management Program Elements
1. Refuse Collection
2. Landfill Costs
3. Residential Curbside Recycling
4. Multi -Family Recycling
5. Commercial Cardboard Recycling
6. Town -Operated Solid Waste Management Programs
C. Rate Structure Factors
PREPARED BY: Regina A. FaI
Community Se - • rector
RAF:dr
CSD04:A: \CNCLRPTS\RECYCLNG. RAT
ATTACHMENT$: See page 9 for list of attachments.
DISTRIBUTION: See page 9 for distribution list.
Reviewed by:
Attorney Clerk Finance
COUNCIL ACTION/ACTION DIRECTED TO:
Revised: 11/30/94 4:30 pm
reasurer
PAGE 2
MAYOR AND TOWN COUNCIL
SUBJECT: PUBUC HEARING TO CONSIDER SOUD WASTE MANAGEMENT ISSUES; C) SOUD
WASTE MANAGEMENT PROGRAMS AND RATE STRUCTURE FACTORS
DATE November 30, 1994
I. BACKGROUND:
A. PROGRAM OBJECTIVES
The impetus for the Solid Waste Management Program comes from the following:
1. Meet Customer Demand
Growing citizen awareness of environmental issues including the problems of refuse
disposal has increased demand for expanded recycling services. A significant
percentage of our community members recognize the need to institute and
participate in recycling programs to protect and conserve our environment,
conserve natural resources and defer increased disposal costs.
2. State Mandate
The Recycling Program history:
The State adopted AB 939 requires municipalities to adopt plans listing
strategies to reduce landfilled waste; these plans are called Source
Reduction and Recycling Elements (SoRRE).
Our SoRRE was adopted by Council about two years ago after the
required public hearings. The SoRRE states that we will expand our
recycling program to collect a variety of materials including mixed paper
and yard waste.
The current Residential Curbside Recycling Agreement with Green Valley
Disposal Company (GVDC) expires on February 1, 1995. To assure
continued curbside recycling services and obtain competitive proposals,
the five West Valley jurisdictions (Campbell, Los Gatos, Monte Sereno,
Saratoga and Santa Clara County) jointly issued a Request For Proposals
(RFP). GVDC and Browning Ferris Industries submitted proposals. GVDC
was selected because it offered lower prices. Recycling and residential
yard waste services are scheduled to begin February 1, 1995.
The recently executed agreements with GVDC for the expanded program
to collect mixed paper and yard waste comply with the Town's SoRRE.
AB 939 requires all jurisdictions in the State to divert 25 percent of their municipal
waste stream by January 1, 1995, and 50 percent by January 1, 2000. The Town
diverted about 18 percent of its waste stream in 1991, which is the base line year
for purposes of calculation. Since tons disposed has decreased only 0.4 percent,
an additional seven percent diversion is required to comply with AB 939. The only
way to meet the 1995 mandate is to recycle yard waste and mixed paper.
AB 939 specifies that jurisdictions may be subject to a $10,000 per day fine for non-
compliance. Staff from the California Integrated Waste Management Board indicate
that penalties would not be assessed if the jurisdiction demonstrates a good -faith
effort to comply. Conversations with Board staff indicate that the contracted
recycling and yard waste services to begin February 1, 1995, demonstrate that
good faith effort.
PAGE 3
MAYOR AND TOWN COUNCIL
SUBJECT: PUBLIC HEARING TO CONSIDER SOLID WASTE MANAGEMENT ISSUES; C) SOLID
WASTE MANAGEMENT PROGRAMS AND RATE STRUCTURE FACTORS
DATE November 30, 1994
3. Lengthen Landfill Life and Contain Disposal Fees
Extending the life of the landfill will assist in postponing the need to seek other
more distant disposal sites when the current site is full. Reducing tons disposed
also lowers total disposal costs. Refuse disposal fees alone have increased from
$18.49 per ton in July 1988 to $42.59 per ton July 1, 1992. Costs for disposal will
increase if another landfill is developed locally or if refuse must be transported to
a distant landfill site. This will result in higher rates.
B. FISCAL IMPACT
The Fiscal Year 1994-95 Operating Budget assumes that all solid waste management costs are
bome by the ratepayers. All new programs must be paid for by the ratepayers unless Council funds
them with General Fund money.
C. COMMUNITY EDUCATION
Community members are provided a number of opportunities to give input regarding the Solid
Waste Management Program:
11-7 Council Committee meeting to discuss final audit report and rate structure alternatives
11-14 Educational Forum; 7:30 p.m. Neighborhood Center
11-17 Community Services Commission meeting to discuss new services and rate factors.
11-21 Council Public Hearing to consider Performance Audit
12-5 Council Solid Waste Management Public Hearing:
a. Performance Audit b. Base Rates c. Town's SWM Program
12-19 Public Hearing continued.
1-3-95 Council sets solid waste management rates
1-10-95 GVDC notifies customers of rate increases effective February 1, 1995
Postcards were sent to 9,000 addresses inviting residential and commercial customers to the
November 14 forum. The postcard also offered a fact sheet and over 450 have been mailed. In
addition, Public Hearing notices were printed in The Los Gatos Weekly -Times. The Mercury News
Extra Section contained an article regarding the forum in its November 9, 1994, issue.
Approximately 50 people attended the forum. Most attendees were seniors; all identified themselves
as residential customers except a representative from The Terraces. People asked a number of
questions about what can and cannot be recycled under the new program. It was difficult to gauge
response to the services.
Although the participants are understandably not eager to pay increased rates, the impression was
that most attendees understood the basis. Forum comments included:
charge more for the second can than the first; and
have a senior rate.
PAGE 4
MAYOR AND TOWN COUNCIL
SUBJECT: PUBLIC HEARING TO CONSIDER SOUD WASTE MANAGEMENT ISSUES; C) SOUD
WASTE MANAGEMENT PROGRAMS AND RATE STRUCTURE FACTORS
DATE November 30, 1994
These comments will be addressed in the report regarding solid waste management rates.
II. DISCUSSION:
A. OVERVIEW
The Town has a comprehensive Solid Waste Management Program including the programs listed
below. A summary of program costs Is attached (Attachment 3).
1. Refuse Collection
2. Landfill Costs
3. Residential Curbside Recycling
4. Multi -Family Recycling
5. Commercial Cardboard Recycling
6. Town -Operated Solid Waste Management Programs
B. SOLID WASTE MANAGEMENT PROGRAM ELEMENTS
1. REFUSE COLLECTION COSTS
In accordance with the franchise agreement, the cost of refuse collection services
are established following a review process by the Rate Review Committee (RRC)
consisting of representatives of the Cities of Monte Sereno, Campbell, Saratoga,
and Town of Los Gatos. The Committee meets independently and then together
with representatives of Green Valley to discuss and negotiate the cost of providing
refuse collection services to our communities. Savings measures are also reviewed
with the goal of reducing expenditures and thereby reducing costs to ratepayers.
The GVDC budget for FY 1994-95 is evaluated in detail In the Performance Audit
and corresponding Council Report also presented to Council November 21, 1994.
GVDC currently disagrees with the Performance Audit's conclusions on allowable
costs. The two remaining issues are: 1). the profit calculation elements; and 2).
compensation to GVDC for consultant's fees.
2. LANDFILL COSTS
The total increase in tipping costs has increased from $18.49 per ton effective July
1, 1988, to $42.59 effective July 1, 1992. Taxes and surcharges for regulatory
requirements have increased from $0.07 in July 1, 1988, (less than one-half of one
percent) to $15.99 in July 1, 1992. Surcharges comprised approximately 38
percent of total tipping fees.
The RRC is working with Guadalupe representatives to determine a disposal fee for
Council consideration. Until discussions have been completed, budgeted IandfiI
costs have been calculated using the July 1, 1992, Guadalupe base fee (its fee
excluding surcharges), plus surcharges effective July 1, 1994: $26.60/ton (July 1,
1992, base rate) + $16.36/ton (current surcharges) = $42.96/ton. A breakdown
of taxes and fees related to disposal costs is attached as Attachment 1.
PAGE 5
MAYOR AND TOWN COUNCIL
SUBJECT: PUBUC HEARING TO CONSIDER SOLID WASTE MANAGEMENT ISSUES; C) SOUD
WASTE MANAGEMENT PROGRAMS AND RATE STRUCTURE FACTORS
DATE November 30, 1994
3. RESIDENTIAL CURBSIDE RECYCLING SERVICE COST
a. Current Services
Curbside Recycling has been provided to Los Gatos residents since
February of 1990. The cost of $0.82 per household per month is included
In residential rates.
Pursuant to Council action, GVDC began collecting HDPE plastic (milk and
water) jugs in January 1992. The cost is an additional $024/household or
$22,500/year. GVDC agreed to keep the cost faced through the term of the
agreement which expires February 1995.
b. Expanded Recycling Services
The West Valley jurisdictions jointly issued a Request For Propnsals (RFP),
for expanded recycling services. Subsequently, each jurisdiction has
entered into an agreement with Green Valley Disposal Company for
recycling and residential yard waste services to begin February 1, 1995..
Attachment 2 provides a summary of materials to be collected. In addition
to materials currently collected, the vendor will collect mixed paper, small
scrap metal items, milk and juice cartons, aseptic cartons, styrofoam, and
various plastic bottles with a #1-7 on their bottom. Collecting mixed paper
from all residences and public facilities is a major component of AB 939
compliance. Los Gatos' SoRRE indicates that mixed paper accounts for
28 percent of our waste stream.
Services to collect and recycle yard waste are included in the agreement
with GVDC because this material makes up about 30 percent of the
residential waste stream. This estimate is based on a mid-1991 waste
composition survey that was conducted at the disposal site to determine
which materials (e.g., yard waste, paper, plastics, glass and metals) make
up the Town's waste stream. This proportion may have increased since
that time because the survey was performed during drought conditions
when water rationing was in effect.
4. MULTI -FAMILY RECYCUNG
a. Los Gatos began offering recycling services to residents of mufti -family
units in January 1991. Annualized costs for FY 1994-95 are $89,700.
Services to multi -family dwellings will mirror those provided to single family
dwelling residents (one to four units) with two exceptions: 1) multi -family
residents will not receive individual bins; due to space restrictions,
collection containers will be placed next to refuse bins at each complex;
and, 2) motor oil will not be collected.
b. Used Oil Collection
The RFP's intent was to provide, to the extent possible, recycling services
for multi -family dwellings that are comparable to the services provided
PAGE 6
MAYOR AND TOWN COUNCIL
SUBJECT: PUBUC HEARING TO CONSIDER SOLID WASTE MANAGEMENT ISSUES; C) SOUD
WASTE MANAGEMENT PROGRAMS AND RATE STRUCTURE FACTORS
DATE November 30, 1994
single -far -My dwellings. Toward that end, firms were required to submit in
their proposal a fee per multi -family complex to collect used oil from multi-
family dwellings as a service that could be included at the discretion of the
jurisdictions.
GVDC proposed that a locked cabinet be placed on the premises of each
participating complex. The cabinet would meet all State regulations (eg:
secondary containment), and a key would be provided to each
manager/owner who would dispense clean jugs on request. The
owner/manager would be required to contact GVDC to request pickups of
the full Jugs and provide replacement jugs, as needed. Contracts would
be prepared by GVDC for each participating complex.
After further analysis, used oil collection is not proposed for multi -family
dwellings at this time because the Tri-County Apartment Association
requests that this service not be implemented since it reports that many
complexes represented by that organization prohibit car repair and
maintenance activities on their premises due to concems for oil spillage
and proper cleanup.
Instead, residents in multi -family dwellings who wish to recycle their oil will
be asked to continue to deliver it for recycling using any of the following
alternatives:
service stations (eg: Jiffy Lube) that are certified by the California
Integrated Waste Management Board (CIWMB) to accept used oil
for recycling. Residents will receive, on request, a rebate of $0.04
per quart of oil accepted. Residents may call 1-800-553-2472 to
obtain names, addresses and phone numbers of the most
convenient centers to deliver their used oil for recycling.
the county -wide household hazardous waste turn -in events
scheduled in the West Valley jurisdictions three times per year.
Residents may also deliver their used oil to any other event
scheduled in another jurisdiction in this County as long as they
have an appointment.
In addition, plans have begun to establish three regional centers in Santa
Clara County for residents to deliver their car batteries, used oil, and
paints. Tentatively selected sites for the centers are located in Sunnyvale,
San Jose, and the South County area.
5. COMMERCIAL CARDBOARD RECYCUNG
Cardboard wi 1 continue to be collected from businesses. The cost is based on the
number of commercial bins in the jurisdiction. The annualized cost for FY 1994-95
is $87,260.
6. SOUD WASTE MANAGEMENT FUND
Implementing residential curbside recycling in February 1990 marked the beginning
PAGE 7
MAYOR AND TOWN COUNCIL
SUBJECT: PUBLIC HEARING TO CONSIDER SOUD WASTE MANAGEMENT ISSUES; C) SOLID
WASTE MANAGEMENT PROGRAMS AND RATE STRUCTURE FACTORS
DATE November 30, 1994
of the Town's integrated approach to solid waste management. The Town's Solid
Waste Management Program was expanded to include Household Hazardous
Waste Collection, Multi -Family Recycling, and Commercial Cardboard Collection.
Adoption of AB 939 has resulted in additional requirements to be met by
jurisdictions.
a. Staff Support
Salaries and benefits are charged to the program: .25 FTE Community
Services Director and .15 FTE Administrative Secretary. For FY 1994-95,
this cost will total $29,000.
b. West Valley Cooperative Agreement
The West Valley Cities entered into an agreement in November 1990 to
establish a cooperative Solid Waste Management program. The program
pools resources and avoids duplication of effort. Vera Dahle-Lacaze has
been hired through the program. Her primary responsibility is to assist the
West Valley Cities with meeting AB 939 requirements. The Town's shared
cost for FY 1994-95 is estimated at $35,000.
c. AB 939
Source Reduction and Recycling Plans required by the State have been
distributed for review. Cost for FY 1994-95 projects is estimated at
$34,640.
d. Tanner Program
The County provides services to meet Hazardous Materials Advisory
Committee objectives as outlined in the Town's agreement with the County.
Workshops are held, information and referral is provided to businesses and
households, public information is disseminated, and regulations are
streamlined. The cost for FY 1994-95 is $1,590.
e. Household Hazardous Waste
The Town participates in a county -wide HHW collection program.
Participation in the program meets State requirements and provides
residents with a more convenient method for disposing of HHW.
Approximately 300 Los Gatos households participate in HHW events
annually. The Town allocated $60,000 to the program for FY 1994-95; it is
charged approximately $100 for each participating household.
f. Recycling Center
Costs to operate the recycling center were incorporated into the fund with
the Town's FY 1993-94 operating budget.
PAGE 8
MAYOR AND TOWN COUNCIL
SUBJECT: PUBLIC HEARING TO CONSIDER SOUD WASTE MANAGEMENT ISSUES; C) SOUD
WASTE MANAGEMENT PROGRAMS AND RATE STRUCTURE FACTORS
DATE November 30, 1994
g. Business Services
To recover overhead costs including but not limited to office space, staff
services (attorney, finance, manager's offices) , the fund is charged a 17.3
percent fee.
h. Recycling Fee
Staff anticipates a reduction in franchise revenues of about 10 percent.
Town's recycling agreement with GVDC allows GVDC to collect a recycling
fee on the Town's behalf. This will begin FY 1994-95.
C. RATE STRUCTURE FACTORS
To encourage recycling Council has adopted a rate schedule for the residential structure
in which the charge for each can of refuse is the same. The current rate is $6.65 per can
of refuse; this includes all associated recycling costs and a portion of the Town's program.
The same policy was used in estimating new refuse collection rates for the educational
forum. The estimated residential per -can rate is Attachment 4 to this report. It assumes
the current rate structure wherein the same amount is charged for each can. The first
column of numbers shows haw the current rate of $6.65 per can is established using 1992
revenue requirements and distributing the dollars over 15,341 cans. The second column
calculates the per -can cost at $10.68 using the new revenue requirement and distributing
the costs over 15,341 cans. The third column assumes that 80 percent of all residential
customers will be paying for only one can of refuse; as a result, the number of cans over
which the costs can be distributed is decreased to 9,340, and the estimated per -can rate
is $18.00.
Better estimates will be presented January 3, 1995, after a Rate Base (budget) is adopted
for GVDC.
The recommended rate structure will be based on input from the public forum and calls and
correspondence to the Town. The structure will:
charge more for the second can than the first;
have a senior rate for households eligible for and receiving SSI. The rate
will be about two-thirds the regular rate;
increase side yard, backyard, and hard -to -serve surcharges to a cost
recovery rate;
Include residential recycling and yard waste collection costs in the refuse
rates (spreading the cost over the total number of cans collected in the
Town); and
allow no discount to residential can customers who do not participate in
the recycling program.
Staff will also provide an alternative which only charges residents using yard waste
collection services for the program.
PAGE 9
MAYOR AND TOWN COUNCIL
SUBJECT: PUBLIC HEARING TO CONSIDER SOUD WASTE MANAGEMENT ISSUES; C) SOUD
WASTE MANAGEMENT PROGRAMS AND RATE STRUCTURE FACTORS
DATE November 30, 1994
ENVIRONMENTAL ASSESSMENT$:
This is not a project as defined under CEQA, and no further action is required.
FISCAL IMPACT:
The proposed operating budget for FY 1994-95 assumes that all Solid Waste Management costs will be
borne by the ratepayers.
ATTACHMENTS:
1. Disposal Fees
2. City/Town Sponsored Recycling Services
3. SWM Service Costs Summary
4. Estimated Residential Rates
DISTRIBUTION:
John Snelham, 247 Old Adobe Road, Los Gatos 95030
Gerard Wen, GVDC, P.O. 573 University Avenue, Los Gatos 95030
Bill Helms, City of Campbell
Vera Dahle-Lacaze, Monte Sereno
Carolyn Lehr, Monte Sereno
Paula Reeve, City of Saratoga
NOTE: Report sent to residents and commercial customers that have requested a fact sheet (approximately
450 addresses).
ATTACHMENT 1
DISPOSAL FEES
7/1/88 7/1/89 1/1/90 7/1/90 7/1/91 7/1/92 7/1/93 7/1/94
Base Rate: 18.42 19.89 19.89 22.24 24.78 26.60 26.60 26.60
Tipping Fee Surcharges:
S.C. County Inspection - .16 .16 .29 .29 .29
S.C. County Planning .07 .15 .15 .15 .15 .15 .22 .29
Eastin Bill .65 .65 .65 .65 .60 .60
AB 939 - .50 .75 1.00 .75 .75 -
AB 1220 1.34
S.J. Business Tax - 3.00 3.00 13.00 13.00 13.00
S.J. Inspection Tax - .24 .20 .20 .58 .58
S.J. AB 939 .25 .00 .00 .00
S.C. County AB 939 Fee _ _ _ 1.00 1.00 1.15
Total Surcharges 0.07 .96 1.46 5.08 5.54 15.99 16.15 16.36
Total Per Ton Disposal Costs 18.49 20.85 21.35 27.32 30.32 42.59 42.75 42.96
csd04:A: \Cndrpts\Recycln2. P ro
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REVENUE SUMMARY
SOLID WASTE MANAGEMENT PROGRAM
GVDC Programs
Refuse Collection
Residential Curbside
Multi -family Recycling
Yard Waste Collection
Commercial Cardboard Collection
FY 1994-95
Budgeted
Undetermined
$196,560
71,395
217,780
54,260
Attachment 3
Page 1
FY 1995-96
Estimates
Undetermined
$332,620
89,700
552,680
87,270
Town Programs
Staff Support 29,000 29,000
W.V. SWM 35,000 35,000
AB939 34,640 34,640
Hhld.Haz. Waste Col. 60,000 60,000
Tanner Program 1,590 1,590
Recycling Center 14,240 14,240
Business Services 30,180 30,180
Recycling Fee 12,500 30,000
Notes:
These are expenses, not revenues; expenses for Town Programs reflect the Town's operating
budget. However, the recycling fee is a new fee to replace lost franchise revenues.
11-30-94
CSDO4:A:\SOLIDMST\CURRENT.PR1
Attachment 3
Page 2
SOLID WASTE MANAGEMENT PROGRAM: REVENUES BY SECTOR
PROGRAMS
RESIDENTIAL
Refuse Collection
Residential Curbside
Yard Waste Collection
HHW Collection
Solid Waste Management
COMMERCIAL
Refuse Collection
Multi -family Recycling
Commercial Cardboard Collection
Solid Waste Management
DROP OFF BOXES
Refuse Collection
Solid Waste Management
TOTAL COSTS
CSD04:A:\SOLIDMST\CURRENT .pr 2
ESTIMATED MONTHLY COST PER CAN
ATTACHMENT 4
#cans 15,341 15,341 9,340
1992 current 2/1/95
Refuse Collection
$1,050,000 $5.69 $5.70 $9.37
Residential Curbside Recycling
$102,200 to $332,620 $0.56 $1'.81 $2.97
($1.06 to $3.43/hsld)
Yard Waste Collection
$0 to $522,680
($5.39/hsld)
Household Hazardous Waste
$0 $2.84 $4.67
$40,000 to $60,000 $0.21 $0.33 $0.54
($0.41 to $0.62/hsld)
SWM Program
$35,000 to $50,000 $0.19 $0.27 $0.45
($0.36 to $0.52/hsld)
TOTAL $6.65 $10.95 $18.00
C SD 15 A:\memos\chart.can