Composting Organic Waste in Santa Cruz County: Time for a Regional Solution

Compostable organic waste, which makes up approximately one third of municipal solid waste, must be diverted in order to extend the life of Santa Cruz County landfills and meet state mandates, specifically AB 1826. Response from the Santa Cruz County Board of Supervisors: PARTIALLY DISAGREE ­ The organic waste stream in Santa Cruz County ​ accounts for about 20–30 percent of the non­diverted waste that currently ends up in the landfill every year. Currently Santa Cruz County diverts approximately 37,394 tons of organic material from the waste stream annually. These materials are primarily yard waste, plant and other woody materials which are currently diverted and used to create a mix of mulches and other soil amendment products for use by the public. At present the County of Santa Cruz also diverts approximately 775 tons of food waste annually, primarily from restaurant and grocery store producers. Due to this program and with the inclusion of a few more large­scale producers, the County will meet its phase one AB 1826 January 1, 2016 deadline. In our efforts to get closer to our goal of zero waste, removing the remainder of the organic material from the current waste stream will be an important step. Response from the Capitola City Council: AGREE ­ The City of Capitola is fully committed to extending the life of the Santa ​ Cruz County landfill. Capitola will continue to find ways to increase diversion rates of waste, including promoting greater commercial participation in the food waste and food scrap program and educating consumers on the proper use of the different waste bins. Response from the Santa Cruz City Council: AGREE Response from the Scotts Valley City Council: AGREE Response from the Watsonville City Council: AGREE ­ The organic waste stream in Watsonville accounts for about 35 percent ​ of the non­diverted waste that currently ends up in the landfill every year. Currently the City of Watsonville diverts approximately 2112 tons of organic material from the waste stream annually. These materials are primarily yard waste, plant and other woody materials which are currently diverted and used to create a mix of mulches and other soil amendment products for use by the public. Additional programs are needed to achieve substantial additional diversion of the organic materials still in the waste stream. 21

Unless Santa Cruz County and the cities of Santa Cruz, Capitola, Scotts Valley and Watsonville invest politically and financially in large­scale organics recycling systems, they will be out of compliance with AB 1826 by the year 2020 or sooner. Response from the Santa Cruz County Board of Supervisors: DISAGREE ­ Compliance with AB 1826 requires each jurisdiction to meet specific ​ mandates for organics recycling for large scale producers of organic waste within phased in­time frames as follows: businesses who generate more than 8 cubic yards (cy) or more per week must source separate food scraps and yard trimmings and arrange for recycling services for that organic waste in a specified manner by April 1, 2016. By January 1, 2017, businesses generating 4 cy or more per week of organics are also subject to the diversion requirement. The bill also requires a business that generates 4 cy or more of commercial solid waste per week, on and after January 1, 2019, to arrange for organic waste recycling services and, if the California Department of Resources Recycling and Recovery (CalPecycle) makes a specified determination, would decrease that amount to 2 cubic yards, on or after January 1, 2020. Each jurisdiction, on and after January 1, 2016, is required to implement an organics recycling program to divert organics from the businesses subject to this act, The law does not require jurisdictions to develop large­scale organics recycling systems but rather to meet the needs of the producers who need organics recycling services. The size of any jurisdiction's facility will depend upon the size of the organics waste stream and the economics specific to managing that waste stream. Response from the Capitola City Council: DISAGREE ­ As noted in the Grand Jury report, the City of Capitola currently ​ sends organic material to the Marina facility operated by the Monterey Regional Waste Management District (MRWMD). MRWMD anticipates that the life span of its permitted organic processing capabilities will be at least equal to the life span of the District’s landfill disposal operations; a life span that is predicted to exceed 100 years at this time. Response from the Santa Cruz City Council: PARTIALLY DISAGREE ­ While a large­scale organics recycling system is one ​ possible solution, the County or any of the cities could opt to create their own, independent smaller­scale facilities serving just their jurisdiction and its businesses that would fall under AB 1826. Response from the Scotts Valley City Council: DISAGREE ­ The City of Scotts Valley contracts with Green Waste Recovery for ​ its refuse, recycling, and yard waste collection services. Green Waste Recovery has the capabilities of collecting and properly disposing of the organic waste as required by AB 1826. If Scotts Valley were to contract for this service, the City would not need to invest in a large­scale organics recycling system. Response from the Watsonville City Council: PARTIALLY DISAGREE ­ Compliance with AB 1826 requires each jurisdiction to ​ meet the mandates for organics recycling producers of organic waste within phased in­time frames as follows: businesses who generate more than 8 cubic yards (cy) or more per week must source separate food scraps and yard trimmings and arrange for recycling services for that organic waste in a specified manner by April 1, 2016. By January 1, 2017, businesses generating 4 cy or more per week of organics are also subject to the diversion requirement. The bill also requires a business that generates 4 cy or more of commercial solid waste per week, on and after January 1, 2019, to arrange for organic waste recycling services and, if the California Department of Resources Recycling and Recovery (CaiRecycle) makes a specified determination, would decrease that amount to 2 cubic yards, on or after January 1, 2020. Each jurisdiction, on and after January 1, 2016, is required to implement an organics recycling program to divert organics from the businesses subject to this act, The law does not require jurisdictions to develop large­scale organics recycling systems but rather to meet the needs of the producers who need organics recycling services. The size of any jurisdiction's facility will depend upon the size of the organics waste stream and the economics specific to managing that waste stream.

Santa Cruz County and the cities of Capitola, Scotts Valley, and Watsonville all ​ passed resolutions in 2005 recommending a regional composting facility, but as of 2015, no facility has been constructed, nor is there a completed plan to do so. Response from the Santa Cruz County Board of Supervisors: PARTIALLY DISAGREE ­ Long­range planning for a regional composting facility ​ has been in discussion since 2007. Participants in this discussion have included all of the cities in Santa Cruz County, as well as the Monterey Regional Waste Management District. More recently Santa Cruz County and the cities of Scotts Valley, Capitola, Watsonville and Santa Cruz have engaged in cooperative conversations and planning for a regional organics facility through the Integrated Waste Management Task Force (IWMTF). In concept, collaborative resource recovery programs that would be mutually beneficial and more cost effective than if each agency were to go it alone are extremely attractive. However, in recent years the IWMTF team has delved more deeply into the specifics of the organics waste stream for each jurisdiction, including the number of possible generators impacted by AB 1826, the potential tonnage of organic waste stream, waste stream and jurisdictional economics, land availability and permitting requirements. For some jurisdictions, participation in a regional facility may not make the most sense when the specific economic and waste stream factors are analyzed in­depth. Response from the Capitola City Council: AGREE ­ The City of Capitola will continue to participate on the Santa Cruz County ​ Integrated Waste Management Local Task Force in working on finding a suitable location for a Santa Cruz County composting facility. Response from the Scotts Valley City Council: AGREE Response from the Watsonville City Council: PARTIALLY DISAGREE ­ The City of Watsonville has participated since 2007 in ​ the long­range planning process for a regional composting solution. Participants in this discussion have included all of the cities in Santa Cruz County, as well as the Monterey Regional Waste Management District. More recently Santa Cruz County and the cities of Scotts Valley, Capitola, Watsonville and Santa Cruz have engaged in cooperative conversations and planning for a regional organics facility through the Integrated Waste Management Task Force (IWMTF). In concept, collaborative resource recovery programs that should be mutually beneficial and more cost effective than if each agency were to develop its own facilities and programs. However, in recent years the IWMTF team has delved more deeply into the specifics of the organics waste stream for each jurisdiction, including the number of possible generators impacted by AB 1826, the potential tonnage of organic waste stream, waste stream and jurisdictional economics, land availability and permitting requirements. For some jurisdictions, participation in a regional facility may not make the most sense when the specific economic and waste stream factors are analyzed in­depth. Each jurisdiction in the County faces different challenges that will point to the most effective and efficient solutions that may or may not include one large regional. Watsonville, like the other local participating jurisdictions, faces both positive and negative factors in the organic planning process. The City’s relatively small waste stream makes it highly likely that the City will need to partner with another agency. The closure of the City’s landfill within the next five years poses a challenge and an opportunity for the development of an arrangement for both solid waste and organics management by a partner agency. The City’s proximity to the Buena Vista Landfill and relative proximity to the Monterey Regional Waste Management District facility offers two highly promising opportunities for partnering with a larger agency. These options are currently being evaluated on a parallel process alongside the Local Task Force regional organics processing study.

Rather than building a permanent local infrastructure for organics composting, Santa Cruz County and the city of Capitola opted to continue their commercial composting pilot programs by hauling food waste out of the county to the Monterey Bay Regional Waste Management District’s composting facility, at considerable cost in time and fuel. Response from the Santa Cruz County Board of Supervisors: PARTIALLY DISAGREE ­ The County of Santa Cruz instituted a pilot program in ​ fiscal year 2004/05 for the collection of food scraps from a number of local commercial generators which was then composted within enclosed containers. This pilot program was an effort to 1) develop operational experience, including solutions to problems, on a small scale before expanding the program county­wide; 2) establish a core group of participating businesses that can assist with program outreach and serve as models for other food waste generators; and 3) develop estimates of program costs that will assist in determining the rate structure for a future county­wide program. The pilot program, at its peak, was comprised of 75 participating businesses which turned approximately 125 tons per month of food scraps turned into valuable compost. The pilot program was allowed to run until April 30, 2010. Projected site improvement costs necessary to meet State permitting requirements for a permanent facility were not feasible during the economic downturn and changing State laws made the composting technology in place for the pilot program problematic for a permanent facility. Rather than eliminate the program and return the diverted waste stream to the landfill, the County chose to continue diverting the food scraps through an agreement with the Monterey Regional Waste Management District, while continuing to work towards a permanent solution to the diversion of food scraps waste. This would insure that the core group of large food generators would continue best practices in organics diversion while new State laws and permitting procedures were developed.

Unless the Monterey Regional Waste Management District decides to expand its current organic composting facility, Santa Cruz County jurisdictions cannot rely on it as a long­term solution for their organic waste recycling needs. Response from the Santa Cruz County Board of Supervisors: AGREE Response from the Capitola City Council: DISAGREE ­ MRWMD anticipates that the life span of its permitted organic ​ processing capabilities will be at least equal to the life span of the District’s landfill disposal operations; a life span that is predicted to exceed 100 years at this time. Response from the Santa Cruz City Council: AGREE Response from the Scotts Valley City Council: DISAGREE ­ The Monterey Regional Waste Management District (District) has ​ three different permitted compost projects in operation on site. In checking with the District, they provided the following list of their projects and their capacity status. 1. 5,000 ton per year Anaerobic Digestion Pilot Project 2. 10 permitted acres with a 72,000 cubic yard material allowance. 25 3. 60 permitted acres with a 500 ton per day maximum permitted tonnage The status of these 3 projects is as follows: 1. 5,000 ton per year Anaerobic Digestion Pilot Project is operating at 5,000 ton per year capacity however we have the ability to utilize additional food scraps in the raw material feedstock and reduce the quantity of green waste processed. We estimate this project can accept another 500 tons per year of food scraps. 2. We are presently utilizing less than 10,000 cubic yards of material on this site with more than 60,000 cubic yards of surplus capacity or approximately 45,000 tons per year (at 1.33 cubic yards food waste/ton). 3. On this our largest permitted compost parcel, 305 tons per day of capacity is being utilized with a surplus capacity of 195 tons per day which is in excess of 65,000 tons annually. The District predicts the life span at this time to exceed 100 years. Based on this information, Santa Cruz County jurisdictions can rely on the District as a long­term solution for their organic waste recycling needs. Response from the Watsonville City Council: PARTIALLY DISAGREE ­ The City of Watsonville is actively exploring all available ​ options for both solid waste and organics processing. Options include partnerships with a regional organics processing operation, with Monterey Regional Waste Management District and/or with the County of Santa Cruz Buena Vista Landfill. Given the City’s relatively small waste and organics generation and the proximity to these large facilities with their potentially expanding organics processing operations, Watsonville stands to benefit from a carefully selected partnership or partnerships with its neighboring agencies. While Monterey Regional Waste Management District may or may not have capacity for the entire organic stream from Santa Cruz County, they may have capacity for the organic material generated in Watsonville.

Unless the cities of Watsonville and Scotts Valley develop organic waste recycling ​ programs, neither city will be in compliance with AB 1826 by January 1, 2016. Response from the Scotts Valley City Council: AGREE ­ If by “develop” it is meant to either come up with our own organic waste ​ recycling program or contract with a provider such as Green Waste Recovery, then this is true. Response from the Watsonville City Council: PARTIALLY DISAGREE ­ The City of Watsonville has 18 commercial solid waste ​ customers that generate 8 or more cubic yards of material per week. These large commercial customers will fall under the 2016 organics diversion mandate. These large customers are generating mixed wood waste, green waste and small amount 26 of solid waste. With the backing of the new mandate, the City is working directly with these customers to implement source separation of the wood and green waste from the non­recyclable garbage. The organic materials will be diverted to the City’s existing green waste program. This program involves collection of wood and green waste at a designated storage area at the City’s landfill. The incorporation of the organic material from the 18 large commercial customers into the existing wood and green waste diversion operation will ensure compliance with AB 1826 in 2016.

Rules about what can be put in the “green cart” are inconsistent and not well understood by the general public. Response from the Santa Cruz County Board of Supervisors: PARTIALLY DISAGREE ­ The “green cart" is the collection container used only by ​ residents in curbside collection of yardwaste materials. The rules for what can go in the green cart have been very consistent across the County and City jurisdictions for a number of years. Both the County and our franchise hauler, Greenwaste Recovery, send out regular reminders of what is accepted in each cart (see examples below [in full response]). www.greenwaste.com/sites/default/files/pdfs/RecycleGuide SantaCruzCounty Residential July2011.pdf [inaccessible on 9/10/2015] ​ ​ www.greenwaste.com/sites/default/files/2014 Spring wasteline SantaCruzCounty.pdf [inaccessible on 9/10/2015] ​ It is important to note that the majority of organics material is produced by commercial organizations, such as grocery stores, restaurants and hospitals. AB 1826 is focused only on commercial customers and would not impact residential service or what gets put in the green cart. However, the County of Santa Cruz, in its efforts to move towards zero waste, is examining the potential for residential customers to also participate in greater organics waste diversion through curb­side servicing. Response from the Capitola City Council: AGREE ­ In order to help Capitola businesses and residents better understand the ​ rules regarding rules associated with green carts, Capitola communicates this information in a number of ways. The City and GreenWaste issue bi­annual newsletters to all Capitola addresses, the City advertises the requirements in the local phone book and the City will continue to keep its website up to date with all the cart requirements and rules. Response from the Santa Cruz City Council: PARTIALLY DISAGREE ­ Rules about what can be put in a green cart may be ​ inconsistent from one jurisdiction to another due to their different organics waste processing systems, however, rules about what can be put in the City of Santa 27 Cruz's green carts have been consistent for the last several years. The City's green carts have stickers on the carts defining what may and may not be placed in the carts. In addition, the City's Waste Reduction Program regularly includes information about what can be put in green cans in public mailers, bills and other outreach. Finally, if a resident "contaminates" their green cart with non­permissible materials, they will get a violation notice letting them know what was put in the cart that was non­permissible. Some confusion for green cart users statewide may be due to the nature of the state's green waste laws. For example, green waste could contain trimmings from an overgrown tomato bush or apple tree, complete with the fruit that came with the tree as this would be legitimate green waste. However, an apple core or leftover tomato from the refrigerator, for example, would be considered food waste by the State inspector, and therefore is non­permissible. Response from the Scotts Valley City Council: PARTIALLY DISAGREE ­ In the Yellow Pages there is a six page Recycle Guide. ​ In that guide it states all the same items that can go into the “green cart” for Capitola, Scotts Valley, and the unincorporated County, as they are all served by the same company, Green Waste Recovery. That same guide is located on the City of Scotts Valley web site. Scotts Valley believes it is not so much that the rules are inconsistent, as they are the same in these three jurisdictions, but that the public is not aware of the rules, despite the information provided regarding them. Response from the Watsonville City Council: PARTIALLY DISAGREE ­ All carts used in the City of Watsonville’s solid waste ​ and recycling operation have custom, bilingual labels placed on the top and sides to inform our customers of proper use of each cart. In addition to information in English and Spanish, the labels provide the information in text and use of visual images. An effort is made to make the information accessible to youth and others with limited literacy abilities. In addition to the significant investment in cart labels, the City also has an extensive youth conservation education program that reaches about 3000 students each year with classroom presentations and field trips to the landfill, recycling center, wetlands, wastewater treatment and other water facilities. Located in Ramsay Park, the City’s Nature Center provides conservation outreach to 7000 visitors each year on topics including recycling, composting, litter and pollution prevention. Staff provides resources that support conservation behaviors at home and work. Nature Center staff also leads public tours of the local wetlands on the City’s seven­mile trail system. 28