S A N D A G INFO MANAGING SOLID WASTE IN THE SAN DIEGO REGION

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1 S A N D A G INFO J A N U A R Y - F E B R U A R Y , N O. 1 T H R E E D O L L A R S MANAGING SOLID WASTE IN THE SAN DIEGO REGION

2 INTRODUCTION In 1988, the California Legislature found that Californians disposed of over 38 million tons of solid waste, or more than a ton of waste per state resident per year. The Legislature recognized that the disposal of these quantities of refuse posed a threat to groundwater, air quality, and public health. Furthermore, our legislators expressed concern that California would exhaust most of its remaining landfill space by the mid-1990s unless a statewide policy was developed that would ensure that the state s solid waste was managed effectively. These environmental issues, as well as the lack of a coordinated approach to solve the landfill capacity problem, provided the impetus for an integrated approach to solid waste management. Signed into law nine years ago, AB 939 or the California Integrated Waste Management Act, takes a proactive approach to solving the State s waste management problems. It requires each city and county in California to develop and implement plans to cut the amount of waste they sent to landfills by 25 percent by 1995 and in half by the year 2000, using 1990 as the base year. Jurisdictions that fail to develop and implement their plans could face fines of up to $10,000 per day. This INFO provides an overview of how the region disposes of its trash and the region s waste management structure. It describes historic and projected solid waste management trends and provides information on the region s existing solid waste facilities. Table of Contents Introduction...2 Solid Waste Disposal in the San Diego Region...2 Recycling in the Region...6 Regional Solid Waste Planning Local Solid Waste Planning A Binational Perspective Trends and Conclusions Sources SOLID WASTE DISPOSAL IN THE SAN DIEGO REGION... WHERE DOES THE TRASH GO? Trash or pollution can be disposed of or absorbed into only three mediums on this earth: the land, the air, or the water. When trash is thrown away, where does it go? Unless people or businesses take their discards directly to a landfill, trash is picked up by private haulers or by the local jurisdictions. In the San Diego region, once trash is collected it is generally taken to a landfill or to a trash transfer station. Landfills A landfill is an area where land has been set aside to bury trash. Landfills have strict physical constraints and operating procedures in order to avoid groundwater contamination and prevent air pollution. Landfill operators charge haulers and the general public tipping fees in order to dispose of waste in their landfills. Tipping fees in the San Diego region currently range from $24/ ton to $38/ton, and between $15 to $25 for passenger loads or pick-up trucks. Tipping fees vary from region to region and state to state, depending upon market fluctuations, regulations, and other conditions. 2 INFO SANDAG / SourcePoint January - February 1999

3 With regard to the residential sector, all jurisdictions within the region, except the City of San Diego, charge their single-family residences monthly trash-collection fees to cover tipping fees. These fees may include transportation costs, curbside or other recycling costs, green waste costs, and costs of special programs. In April 1998, single-family households throughout the region paid between $13 and $20 per month for trash collection services. (See Table 1.) The City of San Diego is restricted from charging its single-family households for residential trash collection services due to the People s Ordinance, passed in 1919 by the City s voters. As a result, the City pays for its single-family residential trash collection services from its General Fund. In most cities, the commercial and industrial sectors generate larger waste streams than the single-family residential sector. Haulers generally collect commercial and industrial sector waste, as well as multi-family residential waste, through large bins for greater efficiency. However, there is nothing restricting residents and businesses from self-hauling their waste directly to landfills, and many businesses, such as landscaping firms, choose to do so. The San Diego region hosts seven operating landfills, illustrated on Map 1 on page 4. These include: the Las Pulgas and San Onofre Landfills in Camp Pendleton, the Borrego Springs, Ramona, and Otay/Otay Annex Landfills in the unincorporated areas of San Diego County, and the Sycamore and Miramar Landfills in the City of San Diego. The Las Pulgas and San Onofre Landfills are owned and operated by the United States Marine Corps and accept military waste only. All of the other landfills, except for the Miramar Landfill, are owned and operated by Allied Waste Industries, a private waste management firm that purchased the County of San Diego s solid waste system in late The Miramar Landfill in the City of San Diego is owned by the Marine Corps Air Station, but leased and operated by the City of San Diego. Like the Allied landfills, the Miramar Landfill accepts waste from jurisdictions throughout the region, in addition to the waste it receives from the military (for which, as part of the terms of the lease, there is no charge). The Miramar Landfill primarily serves the City of San Diego. Tables 2 and 3 show the breakdown of 1997 disposal tonnages by jurisdiction and landfill. January - February 1999 SANDAG / SourcePoint INFO 3

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5 Table 1 SINGLE-FAMILY MONTHLY TRASH RATES AND FRANCHISE AGREEMENTS FOR JURISDICTIONS IN THE SAN DIEGO REGION October 1998 Single-Family Monthly Jurisdiction Trash Bill ($) Hauler Carlsbad Waste Management, Inc. (WMI) Chula Vista Pacific Waste Services Coronado EDCO Del Mar Waste Management, Inc. (WMI) El Cajon Waste Management, Inc. (WMI) Encinitas EDCO Escondido Escondido Disposal Inc. Imperial Beach Pacific Waste Services La Mesa EDCO Lemon Grove EDCO National City EDCO Oceanside Waste Management, Inc. (WMI) Poway EDCO San Diego No charge Self/multiple San Marcos EDCO Santee Waste Management, Inc. (WMI) Solana Beach Waste Management, Inc. (WMI) Vista EDCO County of San Diego to Multiple Low Average High Rates as of October Source: Solid Waste Rates Survey, SANDAG, April 1998 January - February 1999 SANDAG / SourcePoint INFO 5

6 Transfer Stations If trash is not taken directly to a landfill for disposal, it is generally taken to a transfer station. It is then loaded into large tractor-trailers for more efficient hauling to local or out-ofcounty landfills. Transfer stations are sometimes combined with material recovery facilities (MRFs), facilities that accept pre-sorted recyclables for transportation to recycling facilities. Seven transfer stations/material recovery facilities operate in the San Diego region: Palomar Transfer Station in the City of Carlsbad EDCO Transfer Station in the City of San Diego EDCO Station in the City of La Mesa Universal Refuse Removal Recycling and Transfer Station in the City of El Cajon Escondido Disposal, Inc. MRF and Transfer Station in the City of Escondido Fallbrook Recycling and Transfer Station in the unincorporated community of Fallbrook Ramona Material Recovery and Transfer Station in the unincorporated community of Ramona See Map 1 on page 4 for specific transfer station locations. RECYCLING IN THE REGION The California Integrated Waste Management Act encourages an integrated approach that emphasizes the following hierarchy of waste management practices. 1. Waste Reduction and Reuse 2. Recycling and Composting 3. Environmentally-Safe Disposal In order to reach the 50% waste reduction goals set forth in AB 939, reducing waste and reusing existing resources are essential. When those cannot be accomplished, recycling and composting take on additional importance. An increasingly important component of recycling and composting (step no. 2 in the hierarchy) is the commitment to close the recycling loop. The recycling process is not considered complete until recycled materials are manufactured into other products and purchased for re-use. 6 INFO SANDAG / SourcePoint January - February 1999

7 UNDERSTANDING PLASTICS RECYCLING PLASTIC ORIGINAL PRODUCTS RECYCLED PRODUCTS Polyethylene Terephthalate Soft drink bottles, mouthwash bottles, peanut butter jars and salad dressing bottles. Soft drink bottles, cleanser bottles, carpet, paint brushes, scouring pads, surfboards, liquid soap bottles, insulation for clothing. High-Density Polyethylene Milk, water and juice containers, some dairy tubs, grocery bags, toys, and liquid detergent bottles. Soft drink bottle base cups, detergent and bleach bottles, trash bags, trash cans, recycling bins, traffic barrier cones, plastic lumber, flying discs, pails and fly swatters. *Vinyl *Also known as PVC - Polyvinyl Chloride Some clear food packaging, shampoo bottles, cooking oil bottles, some cosmetic bottles, and plumbing pipes. Floor mats, pipes, hoses, and mud flaps. Low-Density Polyethylene A variety of food packaging bags and wraps, dry cleaning bags, and some dairy container lids. Garbage can liners, grocery, litter and convention bags, plastic lumber and lawn furniture. Polypropylene Bread, cheese and some snack food wraps, cereal box liners, yogurt containers, and medicine bottles. Brooms, snow brushes, paint buckets, video cassette storage cases, fast food trays, lawn mower wheels, automobile battery parts, and ice scrapers. Polystyrene Video cassette cases, compact disc jackets, fast food sandwich containers, hot drink cups, disposable cutlery, and some dairy containers. Video cassettes, flower pots, trash cans, food service trays, building insulation, and desk top accessories like letter openers, pencil sharpeners and rulers. Other Plastics Includes all plastics not mentioned above such as multilayer packaging, and polycarbonate and ABS which are often used to make durable goods like cookware, lamp housings, name plates, automotive trim, bathtubs and computer housings. Although the recycling of these plastics is currently limited, some products made from polycarbonate and ABS are being recycled into pens, ice scrapers, snow brushes, street signs and concrete supports Weisenbach Specialty Printing 437 Holtzman Avenue, Columbus, Ohio 43205, January - February 1999 SANDAG / SourcePoint INFO 7

8 Both manufacturers and consumers play an important and interdependent role in developing markets for products containing recycled material content. Manufacturers must incorporate recycled materials into manufacturing processes in order to provide consumers the opportunity to purchase post-consumer products. Conversely, consumers must purchase enough products with recycled content to create sufficient demand for manufacturers to continue to produce these products. Various local, state, and federal programs exist to promote the development of markets for products with recycled material content. Many residents and businesses in the San Diego region are either encouraged or required by their local governments to separate plastic, aluminum, glass, paper, cardboard, and yard waste products from their trash. Haulers or city forces collect the recyclables, and transport them to recycling collection points (such as the material recovery facilities discussed above) or composting facilities. Table 2 SAN DIEGO COUNTY LANDFILL DISPOSAL TONNAGES IN-COUNTY, 1997 All Borrego Miramar* Otay Ramona San Marcos Sycamore Landfills Tons % Tons % Tons % Tons % Tons % Tons % Tons 100% Carlsbad 0 0% 2,312 3% 5,329 7% 71 0% 16,786 21% 54,920 69% 79, % Chula Vista 0 0% 1,841 2% 114,628 98% 0 0% 0 0% 536 0% 117, % Coronado 0 0% 43,311 70% 18,547 30% 0 0% 0 0% 337 1% 62, % Del Mar 0 0% 4,657 30% 112 1% 6 0% 954 6% 9,773 63% 15, % El Cajon 0 0% 634 3% 521 2% 3 0% 16 0% 22,919 95% 24, % Encinitas 0 0% 7,137 12% 4,837 8% 33 0% 11,561 19% 35,798 60% 59, % Escondido 0 0% 3,213 26% 265 2% 1,165 9% 2,471 20% 5,478 44% 12, % Imperial Beach 0 0% 2,241 13% 15,567 87% 0 0% 0 0% 75 0% 17, % La Mesa 0 0% 1,270 3% 5,177 11% 23 0% 0 0% 38,959 86% 45, % Lemon Grove 0 0% 406 2% 14,931 77% 7 0% 1 0% 3,922 20% 19, % National City 0 0% 22,057 32% 47,145 68% 0 0% 0 0% 303 0% 69, % Oceanside 0 0% 1,080 19% 156 3% 43 1% 2,326 41% 2,117 37% 5, % Poway 0 0% 3,449 9% 204 1% 6,955 17% 2,017 5% 27,824 69% 40, % San Diego 0 0% 1,308,838 90% 95,878 7% 693 0% 445 0% 45,505 3% 1,451, % San Marcos 0 0% 1,055 2% 4,688 8% 731 1% 12,656 22% 38,293 67% 57, % Santee 0 0% 185 1% 40 0% 2 0% 10 0% 24,728 99% 24, % Solana Beach 0 0% 5,908 40% 290 2% 6 0% 2,680 18% 5,933 40% 14, % Vista 0 0% 1,365 2% 5,945 9% 161 0% 14,787 23% 42,638 66% 64, % Unincorporated 2,880 1% 4,510 2% 53,507 18% 39,910 14% 20,653 7% 169,293 58% 290, % TOTAL 2,880 0% 1,415,469 57% 387,767 16% 49,809 2% 87,363 4% 529,351 21% 2,472, % Sources: San Diego County Local Enforcement Agency, 1st to 4th quarter tonnage disposal figures, 1997 * Miramar Landfill 1997 tonnage disposal figures reported by the City of San Diego Department of Environmental Health vary slightly from these figures. 8 INFO SANDAG / SourcePoint January - February 1999

9 Table 3 DISPOSAL TONNAGES AND LOCATIONS OF LOCALLY-GENERATED WASTE, 1997 Local Waste Local Waste Local Waste Disposed of in Exported Out of the Exported Out San Diego County County, In State of the State TOTAL Total Percent Total Percent Total Percent Carlsbad 79, % 0 0% 0 0% 79,418 Chula Vista 117, % 259 0% 39 0% 117,303 Coronado 62,195 98% 1,076 2% 0 0% 63,271 Del Mar 15, % 0 0% 0 0% 15,502 El Cajon 24,093 21% 993 1% 87,106 78% 112,192 Encinitas 59, % 240 0% 0 0% 59,606 Escondido 12,592 11% 99,903 89% 0 0% 112,495 Imperial Beach 17, % 0 0% 0 0% 17,883 La Mesa 45,429 99% 529 1% 0 0% 45,958 Lemon Grove 19,267 97% 534 3% 16 0% 19,817 National City 69,505 99% 636 1% 233 0% 70,374 Oceanside 5,722 5% 105,436 94% 842 1% 112,000 Poway 40, % 67 0% 0 0% 40,516 San Diego 1,451,359 99% 14,407 1% 50 0% 1,465,816 San Marcos 57,423 95% 3,013 5% 19 0% 60,455 Santee 24,965 69% 0 0% 11,127 31% 36,092 Solana Beach 14, % 13 0% 0 0% 14,830 Vista 64,896 98% 1,245 2% 151 0% 66,292 Unincorporated 290,753 93% 19,658 6% 3,055 1% 313,466 TOTAL 2,472,639 88% 248,009 9% 102,638 4% 2,823,286 Sources: San Diego County Local Enforcement Agency, 1997 California Integrated Waste Management Board, 1997 January - February 1999 SANDAG / SourcePoint INFO 9

10 Recyclable Material Collection Facilities Once recyclable materials arrive at a collection facility, they are processed, baled, and sold to companies that manufacture them into useful recycled products. Recycled materials can be incorporated into all kinds of products, ranging from trash bags to lawn furniture (see Understanding Plastics Recycling on page 7). EXAMPLES OF SOURCE REDUCTION, RECYCLING, AND COMPOSTING PROGRAMS: pollution prevention educational campaigns curbside recycling programs buyback centers located near local grocery stores paper recycling programs in schools, businesses, and government offices home composting programs construction and demolition recycling programs waste management education programs for school children In order for recycling programs and facilities to be successful, markets for products containing recycled content must be strong. In an effort to strengthen the market for secondary materials, in the early 1990s, the California Integrated Waste Management Board 1 declared that it would establish forty Recycling Market and Development Zones (RMDZs) throughout the state, which would serve to provide start-up and expanding recycling businesses with financial assistance, including low-interest loans and tax credits, to run their recycling operations. Local jurisdictions throughout the state were invited to apply for an RMDZ to be placed within their boundaries. The San Diego region has two RMDZs: the South San Diego RMDZ, shared by the City of San Diego and the County of San Diego in the Otay Mesa area next to the border, and the North San Diego County RMDZ, covering much of North County, including the cities of Carlsbad, Del Mar, Escondido, Oceanside, Poway, San Diego, San Marcos, Solana Beach, and Vista, as well as unincorporated areas in the County of San Diego. The San Diego RMDZs offer manufacturers of recycled products a variety of benefits, including access to the State s low-interest RMDZ Loan Program, favorable zoning codes for recycling facilities, expedited permit processing, and siting assistance, among others. The California Integrated Waste Management Board also adopted a Private Buy Recycled Strategy to encourage business, industrial, and residential consumers to purchase products manufactured with or packaged in recycled materials. The Strategy is based on the formation of alliances involving private industry, local governments, and citizens to overcome barriers to the purchase of recycled-content products. Some of the barriers being addressed are pricing, availability, quality, and performance standards issues. 1 The California Integrated Waste Management Board was established by the legislature to implement AB939, the California Integrated Waste Management Act. Information regarding the Board and other state solid waste issues can be obtained by calling (916) INFO SANDAG / SourcePoint January - February 1999

11 As important as these and other programs are in closing the recycling loop, the prevention of pollution still remains essential to local jurisdictions waste reduction efforts. According to the EPA, the business community in the United States is responsible for 40% of the country s municipal solid waste, and has a major impact on the remaining 60%. Recognizing that waste reduction makes good economic and environmental sense, the Environmental Protection Agency (EPA) developed the WasteWise program, a program that works with organizations to help them voluntarily reduce their waste. Organizations that participate in WasteWise make commitments in three areas: waste prevention, recycling collection, and buying recycled products. These organizations may use the WasteWise logo within their organization to help educate employees about their participation in the WasteWise program and motivate them to participate in waste reduction efforts, and outside their organization to inform the public about their successes. The program began in 1994 and as of February 1999, there were more than 875 partners participating. To learn more about the WasteWise program see the WasteWise Web site at Composting Facilities Composting facilities, also known as green waste facilities, process yard wastes into soil amendments, potting mixes, bedding material, topsoil mulch, and organic fertilizer. Composting is an important part of the statewide wastereduction effort since yard waste is the single largest component of California s waste stream. Other compostable items include pre-consumer and post-consumer food residuals, as well as manure biosolids, agricultural residues, industrial organics, and other materials. Much like recycling programs, composting programs need markets for their end products. Start-up and expanding composting businesses that are located within Recycling Market and Development Zones (described on page 10) are also eligible for low-interest loans and tax credits from the California Integrated Waste Management Board. January - February 1999 SANDAG / SourcePoint INFO 11

12 There are a variety of composting, mulching, and grinding operations in the San Diego region. Composting facilities are generally state-regulated, while mulching and grinding operations are exempt from the state-permitting process. The region s regulated composters have expressed interest in developing a long-term, proactive plan to (1) promote the local composting of local yard waste, and (2) encourage local governments to purchase composted materials from local composters. Local composters contend that unpermitted mulching and grinding operations have created artificially low tipping fees for green waste within the region and have degraded the quality of products sold to local jurisdictions and the general public. They also assert that mulching and grinding operations are not adequately prepared to handle the volume of incoming green waste. As a result, much of the material is stockpiled, causing costly on-site fire and contamination hazards, and increasing the risk of site-abandonment. The California Integrated Waste Management Board has discussed these issues at the statewide level, and in January 1998, adopted Permanent Regulations for Storage and Chipping and Grinding Activities to control unregulated green waste operations. The San Diego County Department of Environmental Health, which serves as the Local Enforcement Agency (LEA) for the unincorporated area and the incorporated cities except for the City of San Diego, has proposed to implement these regulations by requiring a local health permit for all green waste operations within the LEA s jurisdiction. 12 INFO SANDAG / SourcePoint January - February 1999

13 Hazardous Wastes According to the County of San Diego Hazardous Waste Management Plan, most hazardous waste is produced by industrial manufacturing processes. However, a small but significant part of the hazardous waste stream is generated by residents who use and then dispose of common household toxic products. The improper disposal of toxic substances, such as pesticides, cleaners, paints, and automotive care products, into the municipal refuse system is dangerous because it has the potential to injure landfill workers, contaminate landfills and the underlying groundwater system, and generate air pollution. Currently, two permanent household hazardous waste dropoff facilities are located in the region in the cities of Vista and Poway, (illustrated on Map 1 on page 4). The City of San Diego has broken ground on construction of a household hazardous waste collection facility at the Miramar Landfill. Additionally, the Cities of Encinitas and Escondido, as well as the County of San Diego, are currently considering siting these types of facilities within their jurisdictional boundaries. Until July 1998, funding for the operation of the region s household hazardous waste collection facilities and one-day collection events, except for those in the City of San Diego, came from tipping fees charged at County of San Diego landfills. However, in late 1997, the County sold its solid waste system. The sale did not include continued funding for the collection of household hazardous waste or other waste reduction programs. Jurisdictions that do not have their own hazardous waste collection facilities are currently exploring their options, including opportunities to host (or co-host) one-day collection events and/or enter into financing agreements with the aforementioned jurisdictions that have collection facilities. January - February 1999 SANDAG / SourcePoint INFO 13

14 SANDAG S REVIEW PROCESS FOR SOLID WASTE FACILITY PROPOSALS 1. A person or agency proposing to establish a solid waste facility that is not identified in the Countywide Siting Element or a local jurisdiction s solid waste plans must submit a site identification and project description of the proposed facility to SANDAG, serving as the Local Task Force, for review and comment. SANDAG must comment within 90 days on the regional impact of the facility and on the relationship between the proposed facility and AB 939 compliance. 2. The Technical and Citizens Advisory Committees review the proposed project and the proposed amendment to the local jurisdiction s plans and formulate draft comments for approval by the SANDAG Board of Directors. 3. The SANDAG Board of Directors reviews the Advisory Committees comments, and if approved, transmits them to the applicant, the County, and all of the cities within the County. The comments become part of the official record of the proposed solid waste facility. 4. (a) If the proposed facility is a transfer station, a composting facility, or a material recovery facility, the SANDAG Board of Directors reviews and comments on amendments to the local jurisdiction s Non-Disposal Facility Element. (b) If the proposed facility is a landfill or a transformation facility, the County and a majority of the cities with a majority of the population of the incorporated area decide whether to approve the amendment to the Countywide Siting Element. REGIONAL SOLID WASTE PLANNING Although the California Integrated Waste Management Board (CIWMB) will hold each jurisdiction individually accountable for reaching the 50 percent waste reduction mandate by the year 2000, AB 939 requires each region to assemble an Integrated Waste Management Local Task Force (LTF) to assist local jurisdictions in complying with the law. The County of San Diego and a majority of the cities with the majority of the population of the incorporated area were responsible for determining the membership and structure of the LTF in San Diego. In 1990, the region designated the San Diego Association of Governments (SANDAG) as the Local Task Force, with the assistance of two advisory committees: the Technical Advisory Committee (TAC) and the Citizens Advisory Committee (CAC). The TAC s membership consists of the County Chief Administrative Officer and the city manager from each of the 18 cities in the region, or their representatives. The CAC is made up of membership from public interest groups and industry representatives. (See page 19.) Serving as the Local Task Force, SANDAG and its two advisory committees perform various functions. The LTF is responsible for reviewing and commenting on proposed solid waste projects and on amendments to local jurisdiction s waste management plans. Additionally, as specified by AB 939, the LTF is also responsible for: 1. Identifying regional solid waste issues of concern; 2. Determining the need for regional solid waste facilities and strategies; 3. Facilitating multi-jurisdictional markets for recyclable materials; and 4. Facilitating resolution of conflicts or inconsistencies between source reduction and recycling elements. The sidebar on the left describes SANDAG s review process for solid waste facility proposals received from local jurisdictions. 14 INFO SANDAG / SourcePoint January - February 1999

15 LOCAL SOLID WASTE PLANNING In order to meet the waste reduction mandates and the planning requirements specified by state law, local jurisdictions were required to prepare three waste management elements. The first element describes the jurisdiction s waste prevention, recycling, public information, and market development programs; the second outlines its plans to provide collection options for its household hazardous materials; and the third delineates its plans for the siting of solid waste facilities other than landfills and trash incinerators. Additionally, counties were required to complete a Countywide Siting Element and a Countywide Summary Plan describing the location of existing and proposed landfills within the region and summarizing components of individual jurisdictions waste management plans. (See sidebar on the right.) In the San Diego region, each jurisdiction prepared its own Source Reduction and Recycling Element, Household Hazardous Waste Element, and Non-Disposal Facility Element, while the County of San Diego and the City of San Diego jointly prepared the Siting Element and the Summary Plan for the region. Together, all of these elements comprise the region s Countywide Integrated Waste Management Plan. This plan was approved by the California Integrated Waste Management Board in June 1997, affirming that the region s waste management tool is in compliance with state law. COMPONENTS OF AN INTEGRATED WASTE MANAGEMENT PLAN 1. Source Reduction and Recycling Element (SRRE) Provides a framework of programs to meet the waste reduction mandates and analyzes the local waste stream to determine where to focus the waste reduction efforts. 2. Household Hazardous Waste Element (HHWE) Provides a framework for the reduction, recycling, and safe disposal of toxic household products. 3. Non-Disposal Facility Element (NDFE) Lists existing and planned transfer stations, material recovery facilities, and composting facilities that will assist the jurisdiction in recovering or diverting recyclable materials from the waste stream. 4. Countywide Siting Element Demonstrates that there are 15 years of remaining disposal capacity, if combined with proposed landfill expansions and increased diversion efforts, to serve all of the jurisdictions within the region. 5. Countywide Summary Plan Summarizes each jurisdictions programs to meet the reduction mandates, and the steps needed to implement and administer the programs. The Countywide Summary Plan should be updated every five years. January - February 1999 SANDAG / SourcePoint INFO 15

16 SOLID WASTE ISSUES FROM A BINATIONAL PERSPECTIVE Although separated by an international border, the United States and Mexico share similar solid and hazardous waste disposal issues that transcend political boundaries. Over 3.5 million people live in the San Diego-Tijuana region. By 2010, this figure is expected to increase to approximately 5.5 million residents, straining local infrastructure projects and public facilities on both sides of the border including projects and facilities related to solid waste. The City of San Diego and the Municipality of Tijuana have worked together extensively on solid waste issues. In 1996, the two cities teamed up with the Environmental Protection Agency s WasteWise program to perform a study on the types of waste disposed of in Tijuana s municipal solid waste landfill. The results of the study showed that Tijuana s landfill disposal patterns were similar to those of San Diego s, with one major exception organic wastes. The percent of green waste disposed of in San Diego s Miramar landfill was almost double that disposed of in Tijuana s landfill, due to the smaller number of homes that maintain grass yards or other landscaping in Tijuana. Food waste figures indicated the opposite; Tijuana disposed of twice as much food waste from its residential sector and up to five times as much from its non-residential sector as San Diego. These differences were attributed to two factors: (1) most Tijuana kitchens lack garbage disposal systems, and (2) Tijuanans consume fewer pre-packaged foods. Like the localities, the two federal governments have also worked together on border environmental issues. Most recently, in 1996, the two nations initiated the U.S.-Mexico Border XXI Program, a binational effort to protect human health and the environment and manage natural resources in both countries. An objective of the program is to evaluate the effectiveness of border environmental policies. 16 INFO SANDAG / SourcePoint January - February 1999

17 An element of the Border XXI Program is the promotion of sound waste management and pollution prevention practices. The group s primary goals are to (1) build improved capability along both sides of the border to develop and implement waste management programs, and (2) improve the monitoring of hazardous wastes and toxic substances. This effort is in the process of developing indicators to track various solid waste figures: Generation of hazardous waste in the border region, Quantities of hazardous waste exported to Mexico for recycling, Quantities of hazardous waste sent to the United States from Mexico for treatment and/or disposal, Solid and hazardous waste disposal capacities, and Recycling capacities in the U.S./Mexican border region. In 1997, the EPA issued a report entitled United States- Mexico Border Environmental Indicators, which included information on these indicators. The EPA faced difficulties, however, in reconciling differences among data sources, such as measurement definition, data collection format, and methods of calculation. As a result, the report was unable to provide a complete picture of the state of solid and hazardous waste in the binational region. However, this program continues to work on reconciling the differences in order to provide more complete data on these indicators. January - February 1999 SANDAG / SourcePoint INFO 17

18 RECENT SOLID WASTE HISTORY IN THE SAN DIEGO REGION 1989 AB 939, the California Integrated Waste Management Act, is signed by Governor Pete Wilson, and enacted in The region selects SANDAG to serve as the San Diego s Integrated Waste Management Local Task Force (LTF) County of San Diego Board of Supervisors votes to build $139 million North County Resource Recovery Facility (a trash-to-energy plant) in San Marcos, commonly referred to as the San Marcos Recycling Plant County of San Diego and Cities of Del Mar, Encinitas, Lemon Grove, National City, Poway, Solana Beach, and Vista form the Solid Waste Authority intended to manage the County s solid waste system to make it competitive and solvent June 26 - San Marcos Recycling Plant shuts down November - County Board of Supervisors disbands the Solid Waste Authority. November - San Diego County voters approve Proposition C, authorizing a revision of the County s General Plan to permit the construction of a landfill in Gregory Canyon. Vote is subsequently upheld in Court. December - County Board of Supervisors begins exploring the possibility of divesting itself of its solid waste system March 12 - San Marcos Landfill closes April 15 - County of San Diego formally places its solid waste system up for sale. Preliminary letters of interest due April 29; final bids due June 24, June 25 - California Integrated Waste Management Board approves the final draft of the Countywide Integrated Waste Management Plan, which extends from Aug 12 - County Board of Supervisors approves sale of County s Solid Waste System to Allied Waste Industries for $184 million. TRENDS AND CONCLUSIONS Over the past decade, solid waste management has changed considerably. The number of landfills across the nation has decreased by 40 percent. However, disposal capacity has actually increased due to the replacement of smaller landfills by larger regional landfills. This trend has been accompanied by an increasing number of transfer stations. Last year, the number of transfer stations surpassed 3,100. California was one of six states that experienced a double-digit increase in its number of transfer stations, resulting in the second highest number of transfer stations (279) in the nation. Only New York, with 500 transfer stations, has more. Because of the trend toward larger landfills, transfer stations are becoming an increasingly important component of the solid waste infrastructure network. Other national trends indicate that trash incineration has decreased steadily since 1992, to a total of 131 incinerators nationwide last year. California has only three operating incinerators, none located in the San Diego region. Additionally, a decade ago, while less than 10 percent of the nation s solid waste was reduced, reused, recycled, or composted, this figure increased to 30 percent in 1997, with seven states achieving waste reduction rates of 40 percent or more. Although the nation has progressed in the management of its solid waste, the generation of municipal solid waste, has increased 36 percent across the country in the past 10 years, from approximately 250 million tons to 340 million tons. During that same period the nation s population grew by just over 10 percent and jobs grew by just under 20 percent. The nation has more landfill capacity now than at any other time in the past ten years. However, increasing solid waste generation rates should serve as a reminder that the continued expansion of waste prevention programs, as well as recycling, composting and recycled content procurement programs, make more environmental and economic sense as our population continues to grow. Actions such as reducing waste generation and increasing the recycling of waste that we cannot prevent help extend the lives of operating landfills, and also conserve resources, save money, provide a cleaner environment, and enhance public health and safety. 18 INFO SANDAG / SourcePoint January - February 1999

19 SOURCES BioCycle, Journal of Composting and Recycling, April and May 1998, the JG Press, Inc. California Integrated Waste Management Board Statutes, Effective January 1996, June 1995 California Integrated Waste Management Board Website: City of San Diego Environmental Services Department County of San Diego Hazardous Waste Management Plan, , May 1989 County of San Diego Integrated Waste Management Plan, Final, September 17, 1996 County of San Diego Local Enforcement Agency (LEA) San Diego Association of Governments Integrated Waste Management Technical and Citizens Advisory Committees San Diego Association of Governments Solid Waste Rates Survey, April 1998 United States Environmental Protection Agency (EPA), US-Mexico Border XXI Program, Framework Document, October 1996 United States Environmental Protection Agency (EPA), US-Mexico Border XXI Program, United States-Mexico Border Environmental Indicators, 1997 MEMBERSHIP OF THE INTEGRATED WASTE MANAGEMENT TECHNICAL AND CITIZENS ADVISORY COMMITTEES Technical Advisory Committee (TAC) City of Carlsbad City of Chula Vista City of Coronado City of Del Mar City of El Cajon City of Encinitas City of Escondido City of Imperial Beach City of La Mesa City of Lemon Grove City of National City City of Oceanside City of Poway City of San Diego City of San Marcos City of Santee City of Solana Beach City of Vista County of San Diego Citizens Advisory Committee (CAC) Audobon Society California Resource Recovery Association Citizens Coordinate for Century 3 (C-3) Coast Waste Management EDCO Disposal Corporation Greater San Diego Chamber of Commerce I Love A Clean San Diego League of Women Voters Organic Recycling West, Inc. San Diego County Disposal Association San Diego Taxpayers Association San Diego Unified School District Sierra Club Solana Recyclers University of California, San Diego Special thanks to Lisa Wood, Chair of SANDAG s Integrated Waste Management Technical Advisory Committee (TAC), Krista Henkels, Chair of SANDAG s Integrated Waste Management Citizens Advisory Committee (CAC), and to members of SANDAG s Technical and Citizens Advisory Committees for their assistance in producing this report. January - February 1999 SANDAG / SourcePoint INFO 19

20 SANDAG INFO INFO presents information produced as part of the San Diego Association of Governments overall planning program. The series, published every other month, contains population, housing, employment, land use, transportation, criminal justice and other data as well as occasional reports on other subjects of general interest. This report is financed with federal funds from the U.S. Department of Transportation, state funds from Caltrans, and local funds from SANDAG member jurisdictions. San Diego Association of Governments 401 B Street Suite 800 San Diego, CA (619) Fax sandag@sandag.cog.ca.us SourcePoint is a chartered nonprofit corporation of SANDAG. SANDAG Member Agencies: The Cities of: CARLSBAD CHULA VISTA CORONADO DEL MAR EL CAJON ENCINITAS ESCONDIDO IMPERIAL BEACH LA MESA LEMON GROVE NATIONAL CITY OCEANSIDE POWAY SAN DIEGO SAN MARCOS SANTEE SOLANA BEACH VISTA COUNTY OF SAN DIEGO STATE DEPARTMENT OF TRANSPORTATION U.S. DEPARTMENT OF DEFENSE S.D. UNIFIED PORT DISTRICT S.D. COUNTY WATER AUTHORITY TIJUANA/BAJA CALIFORNIA/MEXICO Future Issues of INFO Demographic and Economic Characteristics of the San Diego Region While it is important to address planning issues on the basis of the overall change in population size, changes in the characteristics of the population can be of equal or greater significance. To provide detail about these trends, SANDAG produces annual estimates of population by age group, sex and ethnicity and households by income range. January 1, 1998 estimates are presented for the region and jurisdictions in this INFO and compared to 1990 Census data to illustrate recent trends Cities/County Forecast The SANDAG Board of Directors accepted the 2020 Regionwide Forecast, based on the Regional Economic Prosperity Strategy, in July The allocation of that forecast to jurisdictions and other geographic areas comprises the 2020 Cities/County Forecast. This INFO describes the expected population, housing and employment growth for the region s jurisdictions through the year On the Cover: The collection and disposal of our trash is a basic service of local government. The more information public officials and citizens have about solid waste issues, the more effective the Solid Waste Management System will be. The cover photo shows a trash truck dumping its load on the sorting floor of a transfer station. The trash is sorted for recyclable materials, landfill materials, and other materials that require special handling. There are seven transfer stations within the region that support and compliment the region s integrated waste management system. This INFO describes how the region disposes its trash and the efforts at the regional and municipal level of government to provide efficient services. Ten years ago, California enacted the California Integrated Waste Management Act. That act requires all California jurisdictions to meet certain recycling goals by the year Meeting these goals requires a partnership between residents, elected officials and businesses. This INFO provides an overview of solid waste management practices within the San Diego region.