Improving Recycling in
Troy
Analysis and Recommendations
Carin Spreitzer, Brian Malnati,
Mark Dunlea, and Steve Breyman
A Report of the
Green Education and Legal Fund, Inc., and the
Ecological Economics, Values and Policy Program
Department of Science and Technology Studies
Rensselaer Polytechnic Institute
Troy, NY 12180-3590
(518) 276-8515 • fax 518 276 2659
We—an interdisciplinary research team of two
Rensselaer students, a faculty member, and an alumnus—applaud recent efforts by
the City of Troy to strengthen its recycling program. However, a number of problems remain. At 19% of the
solid waste stream in 1999, Troy has one of the lowest recycling rates in the
Capital District (NYSDEC). The City is
also well below the 1997 New York State average of 41.9% for reuse and
recycling (NYSDEC).Citizens remain confused about what and how to recycle in
Troy. There is inadequate understanding of the benefits of recycling, making
residents reluctant to participate in the program. The current system is
expensive, and inverts the economic incentives (i.e., requires citizens to pay
to recycle). This Report analyzes the current state of Troy’s solid waste
recycling program, and provides concrete, cost-effective recommendations for
improvement (summarized below in priority order). The City should be able to
save tax dollars, improve both the quality and the volume of the recycling
effort, and provide living wage jobs for local residents.
Recommendations
The City of Troy should:
(1) establish a volume based (“pay as you throw”)
trash system (see the separate forthcoming GELF/EEVP Green City Project
report);
(2) establish a city-run recycling program;
(3) hire a Recycling Coordinator to oversee and
expand the program;
(4) educate the public about the recycling
program;
(5) apply for grants to defray costs of the new
program;
(6) eliminate the annual fee for recycling;
(7) itemize solid waste costs on tax bills;
(8) replace co-mingled recycling with increased
curbside separation;
(9)
collect recycling and trash on the same day;
(10) examine the costs and benefits of a materials
recovery facility (MRF).
The
current recycling program in the city of Troy, despite ongoing efforts to
strengthen it , can be even further improved. The recycling rate in Troy is
only nineteen percent , while the NYS Department of Environmental Conservation
reported state average is nearly 42 percent. Confusion about the recycling
program contributes to the low recycling rate. Many people do not know what or
when to recycle. Recycling in most parts of Troy is on different days then
trash pickup, leading to mix ups over what’s to be placed out on the curb on
any given day. Recyclables are currently separated into only three categories.
A Municipal Recycling Program
Waste Management, Inc. currently collects Troy’s
recyclables. The City’s contract with Waste Management (WM) expires at the end
of 2000. Troy has two choices in the coming months: (1) continue using Waste
Management, or some other private hauler, should they again bid on the contract;
or (2) establish a city-run recycling program.
Troy should establish a municipal recycling program in advance of the expiration of its contract with Waste Management. Bill Chamberlain, the City’s Solid Waste Director, has developed first-year financial projections showing that Troy can establish a municipal system for less than what it costs to pay Waste Management, including the up-front costs of purchasing three new trucks (see Table 1).
Comparison of First Year Recycling Program Costs
|
Waste Management, Inc. |
City of Troy |
|
• $286,000 for services • $88,800 for recycling
charges Total: $375,000 |
• $170,000 for 3 trucks • less than $80,000 for salaries Total: less than $250,000 |
Even
without an increase in participation, it is more economical for Troy to handle
its own recyclables. The City will save $125,000 dollars in the first year
alone. Savings will grow considerably, depending on the cost of operating and
maintaining the new trucks, in coming years. Increased recycling decreases tipping
fees at the landfill. The savings here could be considerable, perhaps hundreds
of thousands of dollars per year. There will also be an increase in net
revenues from the sale of recyclables (revenues will depend on fluctuations in
the market). The City should encourage government efforts at all levels to
strengthen the recycling markets, starting with government procurement
practices (“green purchasing” programs prefer products made from recycled
materials).
Besides creating additional
employment opportunities for residents, City workers are more likely to be Troy
residents. Waste Management uses people from outside Troy and has high employee
turnover. WM constantly has new drivers, most of whom do not know their way
around Troy. This results in frequent missed pick-ups of recycling.
Residents pay $29 annually in order to recycle. This fee discourages people from recycling, and should be discontinued. To overcome possible opposition to a volume-based garbage system (where one’s bill depends on how much one throws away), the City’s budget expenses for the last year of the current system and the first year of the new system should be itemized on citizens’s tax bills. In this way, residents will understand the hidden costs of the old “free” system, see how the volume-based program gets the incentives right (throw away less, pay less), and want to participate in the new recycling program to save themselves disposal costs.
Recycling Coordinator
The
Recycling Coordinator would oversee the program, conduct community outreach,
ensure quality control and enforcement, and coordinate research and use of
recycling markets. This position is critical to improving the recycling system
in Troy. Having a manager whose only concern is improving and running the recycling
program will increase its efficiency and improve the City’s overall recycling
rate.
The duties of the Recycling Coordinator could include:
• program monitoring;
• public education (preparation and dissemination of materials, answering questions, promoting the benefits of waste reduction, reuse, and recycling, etc.). Increased community interaction will also help identify and resolve problem areas. The increased public education campaign will reduce confusion about program requirements and increase participation;
• working to maximize waste reduction, reuse and
recycling opportunities. This can provide a competitive advantage to businesses
by helping them save money through reduced purchases, increased efficiency,
greater energy conservation and a reduction in the amount of waste that needs
collection and disposal;;
• working to enhance, expand and create markets
for recyclables. By keeping track of the markets the recyclables that are
collected in Troy will be sent to vendors paying the highest prices;
• encouraging and promoting the remanufacture of products.
A recycling coordinator will more
than pay for him or herself by increasing the recycling rate and revenues, and
reducing tax dollars spent on landfill tipping fees.
Public Education
The
City has produced a pamphlet about recycling, and mailed it along with
recycling bills. The City could develop a system for wider distribution of the
information, such as putting a monthly newsletter into recycling bins, and
dissemination of educational materials at local retailers. The City also needs
to update the recycling information in local telephone directories, and
coordinate recycling with schools and colleges in Troy. It is important that
the students use and learn the same system both at school and at home, so they
can help strengthen their household recycling efforts. Increased knowledge
about the recycling program will increase interest, thus growing the recycling
rate in Troy.
The Recycling Coordinator could
speak to community, civic and religious organizations, working with students
and environmental organizations, and working with media. Recycling education
funding is available from DEC. In recent years the City established a $10,000
program for recycling education; this could be expanded and aggressively
implemented.
Curbside Separation
As part
of the potential takeover of the recycling program from Waste Management, the
City is considering the purchase of trucks that would allow the pickup of six
different materials. We support curbside separation by the municipal haulers,
the onsite division of recyclables into more specific groups as it increases
their market value. Separation can be done without the citizens of Troy having
to change how they recycle. By having the City do the sorting, Troy will be
able to maintain consistency in source separation.
Same Day Recycling and Trash Pickup
Recycling
collection days should coincide with garbage pickup days. This will help
eliminate confusion about when to place recyclables out, and should increase
the recycling rate. Having both garbage and recycling pickup on the same day
for residents will also make it more convenient.
The
New York State Department of Environmental Conservation offers numerous grants for municipalities to
obtain the finances necessary to improve recycling. Over the past few years,
the Environmental Protection Fund (EPF) and the Clean Air/Clean Water Bond Act
provided millions of dollars for recycling projects. In 1999 alone, $12 million
was given to proposals in New York State. There is one common waiting list for
both the Bond Act and the EPF. The total of these waiting list projects is in
excess of $6 million. The approximate time on the waiting is less than a
year. The fact that some projects have
dropped off the waiting list has also helped to expedite the funding process.
If the application is approved for financing, the specified funds cannot exceed
50% of the total project cost. There is also a $2 million cap on matching
funds.
A
Materials Recovery Facility?
Troy
should consider establishment of a new or use of an existing materials recovery
facility (MRF). Across
the nation, there are approximately 166 MRFs in operation, an increase
from only 30 MRFs in 1990. There are 50
more MRFs in the construction or planning phases. There are two basic types of MRFs: low-tech and high-tech.
Low-tech MRFs primarily depend upon human labor for the sorting of materials,
though it is not uncommon for some machinery to be used as well. High-tech MRFs
use “air classifiers, air knives, conveyor belts, magnets, vibrating screens,
crushers, shredders, and balers” for separation. The recycling operation at Colonie is an example of a high-tech
MRF.
The
entire process that occurs at almost all MRFs is actually very simple. Solid
waste is collected, either through municipal or private haulers, and then is
dropped off on the tipping floor of the MRF. The materials are then pushed onto
a conveyor belt, where sorting occurs. Magnets pull out the metals, vibrating
screens allow smaller particles to fall through, and air-driven separators blow
lighter materials (i.e. papers) out of the stream. The majority of the
separation is mechanical, but hand sorting is always available to further
separate recyclables by size and type. Materials are then crushed, shredded
into finer pieces. All recycling types, except glass, are bailed individually
and wrapped with a wire mesh. These bales can weigh up to 1,500 pounds. The bales are then loaded onto trucks or
flatbeds and shipped to recycling mills. There, the recycling process is
completed as the materials are made into new products. All non-recyclables that
are left over are dumped into a pit, crushed, and then transferred to a local
landfill within a day or so. (Taormina)
The size of the MRF is dependent on several factors. As population increases, a larger MRF becomes a necessity to meet the needs. A more densely populated region would also require a bigger MRF in order to adequately recycle all of the materials produced in such a small area. There are three main choices available for Troy in terms of MRFs: (1) Troy builds a SMRF, (2) a MRF is built as a cooperative effort, or (3) Troy uses Colonie’s MRF.
In addition
to a municipally owned MRF, the City could consider soliciting proposals for
construction of a MRF from a private company, guaranteeing them the recyclables
collected from the City and any other participating municipalities.
Having Troy build a small Material Recovery Facility (SMRF) would bring recycling to the local level and could make residents feel more a part of the process. The City would be able to have strict and close control over collections, systems, workers, machines, and all other aspects. Since the facility would be relatively small in size, the number of workers would not be too great.
Constructing
a SMRF is a long-term project. One of the first steps would be to look for a
suitable area to build upon. The land
should be zoned for industrial use, not too close to the residential areas, and
meet environmental specifications. One
possibility is the Alamo industrial site in South Troy near the 378 bridge,
which the City is currently considering for a composting facility. The entire project probably will cost a few
million dollars, depending on the extent of the MRF.
If
taking on a MRF alone is not approved, Troy should consider a joint effort with
other cities in the district. For instance, the existing solid waste planning
unit of Troy, East Greenbush, North Greenbush, Brunswick and the City of
Rensselaer could consider jointly constructing or soliciting a proposal for a
MRF. A larger facility would be able to handle more materials at a faster
rate. More jobs will be created to meet
the increased demand. There would also
be a larger tax base from which funding could be used to construct the
MRF. Once the facility is open, there
will be additional money raised from user fees.
Even
though this sounds like the ideal situation, there are possible problems
associated with a combined MRF. First,
the bigger the facility, the more it will cost. It may not be feasible to depend upon the conglomeration to have
enough finances to achieve the goal of a MRF.
Once the funding is designated, a location will have to be agreed
upon. This might present some
dissension among residents. There is
also the question of distance to the MRF, which would be greater for some of
the cities or towns. Finally, Troy has the option of utilizing Colonie’s MRF
(see Appendix 2).
Appendix 1: Recycling Programs in the Capital Region
The
City’s program serves over 30,000 homes within the city limits. They have a
collection once per week and mandatory curbside separation. The city of Albany
recycles all grades of paper, including: cardboard, junk mail, and newspapers.
Glass, metal, plastics and yard waste are also collected. Once collected, the
materials are brought to the landfill, emptied onto the tipping floor, and then
loaded onto tractor-trailers for transport to the respective markets. City tax
money is used to cover the tipping fees at the landfill. Over 5,000 tons of
recyclable materials are collected each year with this program.
According
to Albany recycling officials, the city has a recycling rate of 31 percent, one
of the highest in the region. In order to keep the program strong Albany relies
upon enforcement. If there is a problem with recycling, the resident is given a
warning. This is usually in the form of a violation sticker, which describes
the associated problem(s). The
materials are then left on the roadside, so that the resident can make the
appropriate modifications. Usually,
violators realize their mistakes and do not repeat their actions. There really
have been limited repercussions, in terms of unsanitary conditions and/or
complaints from citizens.
The city provides municipal recycling to approximately 22,000 residences out of a total of 65,000 (commercial and residential combined). In addition, 2,000 residents of Scotia are included in the services. All commercial properties are exceptions, and therefore, are required to obtain private pick up. The cost for residential recycling is covered by taxes in a general fund. The only money that an individual has to pay is for the recycling container, which is available in sizes up to 32 gallons. The city provides stickers for the bins to distinguish between the materials; blue for paper and yellow for everything else.
Metals, plastics (ten varieties), glass, and cartons are all collected together. Paper, including newspapers, magazines, corrugated cardboard, and junk mail, are separate. Each type of paper product is segregated and then marketed. Metals and plastics are also bailed individually. The glass is either used in aggregate or is sent to market. All yard wastes are transferred to the county composting site. No tires or construction debris can be included in the recycling. (Olsen)
The city maintains a weekly pick up schedule that occurs on the same day as garbage collection. There are six or seven trucks designated for non-recyclable materials like waste, furniture, carpeting, etc.. For these materials, there is no limit on the amount collected. In addition, four trucks are used for metal, plastic, and glass collection, 2 trucks for paper, and 1 truck for bulk metals. Anywhere from 1 to 4 trucks have the capabilities to collect yard waste and this occurs for the majority of the year with the exception of inclement winter weather. The vehicles are multi-purpose, as they can be changed to meet the needs of the specific community. For example, in a primarily Italian section of the city there is a higher percentage of glass and metals from cooking. In the more affluent parts, newspapers are increasing in concentration.
BFI maintains the Schenectady recycling
program. BFI’s size gives the City greater access to recycling markets.
The recycling facilities in Saratoga County are
basically drop-off points. All
residents and small businesses can use the transfer stations anytime that they
are open. There is no permit needed and
no additional fees have to be paid.
Saratoga does not hold any contracts with local companies to collect the
recyclables, because they have found that contracts are just not profitable.
Instead, recycling markets fax quotes to the county each month with a list of
the current prices specific to the materials.
Books, office paper, junk mail, newspapers, magazines, metal, plastic,
and glass are all collected. The County
only gets paid for newspapers, though.
Appendix
2: Materials Recovery Facilities
Schenectady County has a Materials Recovery Facility (MRF)
operated by the Soil and Water Conservation District; no annual budget
information was available. All county
recyclables, as well as some from specific towns (Niskayuna, Duanesburg, and
Glenville), are brought to the Schenectady location. The county follows the same rules as city of Schenectady, as all
residents are allowed to bring in an unlimited amount of materials. Once the recyclables are brought in to the
facility, they are sorted into mixed containers and mixed paper.
There
are two lines available at the MRF for sorting, but both are not usually
operating simultaneously. This is because there is hardly any need in terms of generated volume. The containers are sorted
using magnets, glass goes to a grinding machine, and an air classifier blows
the light materials out of the stream. The separation produces 2 grades of
glass, 3 grades of plastic (#1 PET, #2 HDPE natural, and #2 HDPE mixed colors),
ferrous metals, some aluminum, and cardboard coated plastics (i.e. juice box
containers). All these materials, except the glass, are then bailed and sent
out.
The Colonie MRF was built in the late 1980’s, serving 75,000 people per week. The MRF is accessible for all residents of the Village of Menands (4,012), the Village of Colonie (8,869), and the Town of Colonie (61,712). These three locations cover approximately 59 square miles.
In these areas, there is no municipal pick up, so all residents are
dependent upon private haulers. These haulers can choose to take the
recyclables to the MRF or to another facility. The residential materials
accepted at the MRF include: paper
(news, books, magazines, corrugated cardboard, mixed), glass containers (beer,
soft drink, wine, liquor, food), plastics (HDPE, PET, film), metals (ferrous
and aluminum containers). The materials accepted from commercial buildings are
similar to that of residential. Recyclables are collected once per week;
Menands on separate days from the garbage, but Colonie on the same days. (Matt)
The annual costs of operating the MRF at Colonie are minimal,
considering the amount of materials that are dealt with each day. In 1992, the
MRF recycled 45 tons/day and that number was expected to rise to 75 tons/day
within the next few years. There are 45 full and part-time employees, including
facility workers and clerical support staff. They also have a Recycling
Coordinator who is in charge of overseeing all related processes.
Colonie purchased special compartmentalized trucks. These trucks cost
between $40,000 and $50,000 a piece and are used to transport materials to the
local markets. Likewise, there are
costs associated with recycling bins, of which residents are asked to use
stackable bins. Residents could also choose to get bins in sizes ranging from 5
to 90 gallons. Still yet another choice is for “reusable burlap or plastic
fiber bags” (5-13). The Village of Menands is estimated to have spent about
$10,000 on bins, while Colonie spent approximately $20,000. )
The MRF is covered under the budget of the Colonie Department of
Environmental Services (DES). Their funding depends totally on user fees. In
1988, the total DES budget was $1,312,329. For the next year, 1989, the budget
rose nearly a half-million dollars to reach $1,803,622. By 1990, the DES was spending $2,834,362 on
all of its solid waste programs. That same year, recycling costs were only
about $950,000, or 33.5%, of the total budget.
When Colonie decided to build the MRF, though, the original costs for
the recycling and composting equipment costs was $1,465,346.75. Colonie
applied, for and was awarded, a grant for $740,212.75 by NYSDEC. This number is
in accordance with the limit of 50% matching funds.
The Town of Colonie has a mandatory source separation law for
plastics, glass, metals, and paper (ONP type).
In order to enforce such a law, Colonie has a number of methods that
they currently use. Monetary fines can
be imposed depending upon the number of violations for a given resident. Sometimes, recyclables are not collected due
to improper sorting. The materials will
be left curbside until they are corrected.
Overall, enforcement is not really a large problem and so the
punishments seem to have worked well in the implementation stages.
Colonie also has an impressive education center that was planned in
1992. It has an annual budget estimated
at $35,000, which is covered under the DES.
They continuously distribute 3 pamphlets, each with a different
recycling focus. Colonie also works
hand-in-hand with schools and teachers to ensure that the proper and correct
information is being taught. The
education center gives out free magnets, stickers, pins, and charts. They run a help-line so that residents can
call with recycling questions. Radio
and television ads are utilized, as well, to get the message out to all the
residents. Calendars and doorknob
hangers are available too, but they are often costly to create, print, and
distribute. Volunteers and private
haulers are often asked to give out these materials as they are good recycling
reminders.
One
successful MRF is in Southern California, operated by Taormina Industries. It is open 24 hours a day for 354 days per
year. The MRF services 55 cities, including large municipalities, commercial
haulers and public customers. From these sources the MRF receives all types of
materials, including newspapers, magazines, catalogs, cardboard, aluminum,
steel cans, glass jars, and plastic containers. Over two thirds of all the
products sorted there are classified as paper.
The CVT MRF handles approximately
4,000 tons of solid waste each day. It can sort up to 240,000 pounds of
materials each hour. The four balers that are part of the MRF can work at a
rate of 50 to 120 bales per hour.
This MRF serves both residential and commercial properties in the greater Detroit area of Michigan. It was originally a $7.6 million investment on the part of Southwest Oakland County and the private company, Waste Management. To assist in this recycling effort, the Michigan Department of Natural Resources Solid Waste alternative Program awarded them $500,000. This money was primarily used to purchase processing equipment. The MRF has more than 45,000 square feet dedicated to sorting, baling, and storing recyclables. There is also a recyclables drop-off area, which is accessible to the public. This facility usually deals with 250 tons of materials per day.