draft new york state solid waste management plan

8/9/2019 Draft New York State Solid Waste Management Plan

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1 BeyondWastePlan DRAFT

TABLEOF CONTENTS

Acknowledgements..............................................................................................................................................................3

1. ExecutiveSummary.......................................................................................................................................................5

1.1 Goals.........................................................................................................................................................................6

1.2

Materialsand

Waste

Management

in

New

York

State

1987

to

Present

.................................................................

7

1.3 MaterialsandWasteManagementinNewYorkState2009....................................................................................9

1.4 MovingForward:SustainableMaterialsManagement ActionPlan......................................................................11

1.5 Conclusion...............................................................................................................................................................14

2. BeyondWaste:ANewVisionforSustainableMaterialsManagementinNewYorkState............................................15

3. MaterialsManagementPlanning,RolesandResponsibilities.......................................................................................22

3.1 TheHistoryofSolidWasteManagementPlanninginNewYorkState..................................................................22

3.2 RolesandResponsibilities.......................................................................................................................................25

3.3 IndustryConsolidationandFacilityPrivatization...................................................................................................31

3.4 OverseeingPrivatelyOperatedWasteManagementServices..............................................................................32

3.5 ResourcesforImplementation...............................................................................................................................33

3.6 DataCollectionandUse.........................................................................................................................................33

3.7 WasteCompositionInformation.............................................................................................................................34

3.8 Enforcement...........................................................................................................................................................35

3.9 InconsistentImplementation..................................................................................................................................35

3.10

Recycling

Markets

.................................................................................................................................................

36

3.11 ChangingRolesProductStewardship.................................................................................................................36

3.12 Findings.................................................................................................................................................................36

3.13 Recommendations................................................................................................................................................37

4. GreenhouseGasandMaterialsandWasteManagement.............................................................................................40

4.1 WasteContributestoGlobalWarming..................................................................................................................41

4.2 GreenhouseGasImpactsofCurrentMunicipalSolidWasteManagementinNewYorkState..............................50

4.3 Findings...................................................................................................................................................................51

4.4

Recommendations..................................................................................................................................................

52

5. ProductandPackagingStewardship:AnEmergingMaterialsManagementStrategy..................................................53

5.1 RolesandResponsibilitiesintheContextofProductStewardship.........................................................................57

5.2 ProductsTargetedforStewardship.......................................................................................................................58

5.3 Findings..................................................................................................................................................................68

5.4 Recommendations...................................................................................................................................................69


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6. FinancialAssistanceandFundingSources....................................................................................................................70

6.1 DECFinancialAssistancePrograms........................................................................................................................70

6.2 ESDFinancialAssistancePrograms.....................................................................................................................74

6.3 FinancingtheMoveBeyondWaste......................................................................................................................78

6.4 Findings...................................................................................................................................................................86

6.5

Recommendations.................................................................................................................................................

87

7. MaterialsCompositionandCharacterization................................................................................................................89

7.1 MaterialsComposition.......................................................................................................................................90

7.2 MSWMaterialsCharacterization.........................................................................................................................95

7.3 NonMSWMaterialsCharacterization...................................................................................................................98

8. MaterialsManagementStrategies............................................................................................................................111

8.1 WastePrevention..................................................................................................................................................111

8.2 Reuse.....................................................................................................................................................................118

8.3Recycling.................................................................................................................................................................124

8.4 CompostingandOrganicMaterialsRecycling.......................................................................................................148

8.5 BeneficialUseDeterminations(BUDs)...............................................................................................................160

9. Disposal.....................................................................................................................................................................170

9.1 TransferandProcessingPriortoDisposal.............................................................................................................171

9.2 DisposalCapacityOverview...................................................................................................................................174

9.3 MunicipalWasteCombustors(MWCs)................................................................................................................177

9.4

Landfilling..............................................................................................................................................................

186

9.5 Import/ExportforDisposal....................................................................................................................................212

9.6 EmergingTechnologies..........................................................................................................................................219

10. AgendaforAction......................................................................................................................................................221

10.1 LegislativeRecommendations...........................................................................................................................221

10.2 RegulatoryRecommendations............................................................................................................................237

10.3 ProgrammaticRecommendations.....................................................................................................................238

11. ImplementationScheduleandProjections...............................................................................................................244


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ACKNOWLEDGEMENTS

ThedevelopmentofBeyondWaste:AsustainablematerialsmanagementstrategyforNewYork

Statehasbeenacollaborativeeffortthatharnessedtheenergyandexpertiseofmanypeopleboth

withinandoutsideoftheNewYorkStateGovernment. Theplanningprocesswaslaunchedatthe

directionof

New

York

State

Department

of

Environmental

Conservation

Commissioner,

Pete

Grannis,andDeputyCommissionerforMaterialsManagementandRemediation,ValWashington. It

wasledbyResaDimino,SpecialAssistantintheCommissionersPolicyOffice,withsupportand

assistancefromSharonGebhardt,fromtheDivisionofSolidandHazardousMaterialsBureauof

ProgramManagement.

StaffoftheDECsDivisionofSolidandHazardousMaterials,andinparticularitsBureauofSolid

Waste,ReductionandRecycling,wereessentialpartnersinthedevelopmentofthisplan. Division

DirectorEdDassatti,AssistantDivisionDirectorDavidOTooleandBureauDirectorJeffSchmitt

providedvaluableguidanceanddirection, andtheBureausSectionchiefs,SallyRowland,Tom

Lynch,

David

Vitale,

Scott

Menrath

and

Peter

Pettit,

along

with

DECs

regional

staff,

debated

alternativedirectionsandprovidedsignificantinputonthesubstanceofthePlanandits

recommendations. TheSectionchiefsalsodraftedkeyportionsofthePlan. Ofparticularnote,

DavidVitale,ScottMenrath,andstaffengineersJaimeLangandGerardWagnerrefinedand

analyzedthedatapresentedanddevelopedtheassumptionsonwhichtheprojectionsand

estimatesarebased.

ThestaffofEmpireStateDevelopmentsEnvironmentalServicesUnit,particularlyBrendaGrober

andLindaJacobsGlansberg,contributedtothediscussionandtothedraftingofthePlan,and

particularlytothesectionsoneconomicdevelopment,jobcreation,andfinancingprograms.

ThestaffofDECsDivisionofPublicAffairsprovidedessentialassistanceinediting,layoutanddesign

oftheplan. SpecialthanksgotoBernadetteLaManna,EllenBidellandBobDeVilleneuve.

Externalstakeholdersalsoprovidedimportantinput. Themorethan150peoplewhoattended

stakeholdermeetingsinFebruaryandMarchof2008helpedformulateabasicoutlineanddirection.

MembersoftheSolidWasteAdvisoryGroup,formedbyDECtoaidincraftingthePlan,provided

valuableinformationandguidancebasedontheirownuniqueexperiences,perspectivesand

expertiseinthemanagementofsolidwaste. Theyalsogavegenerouslyoftheirowntimeand

resourcesintravelingtoAlbanytoparticipateinmanydaylongandlongermeetingsoverthe

courseofnearlytwoyears.TheirinsightswereindispensibletoDECstaffthroughouttheplanning

process,asdozensofissuesandideaswerevetted,fleshedoutanddebated.


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TheSolidWasteAdvisoryGroupincluded:

JudyDrabicki,Director,DECRegion6,(Chair) HansArnold,FormerExecutiveDirector,OneidaHerkimerSolidWasteAuthority JohnCasella,KarenFlanders&LarryShilling,CasellaWasteSystems,Inc. JeffCooper,NewYorkStateAssociationforReduction,ReuseandRecycling FredCornell,InstituteforScrapRecyclingIndustries GavinKearny,NewYorkCityEnvironmentalJusticeAlliance JohnKowalchyk,OfficeofParks,RecreationandHistoricPreservation RobertLange,NewYorkCityDepartmentofSanitation JayPisco,NewYorkChapteroftheSolidWasteAssociationofNorthAmerica PeterScully,Director,DECRegion1 KateSinding,NaturalResourcesDefenseCouncil AbbySnyder,Director,DECRegion9 KevinVoorhees,NewYorkStateAssociationforSolidWasteManagement JohnWaffenschmidt,CovantaEnergyCorporation BarbaraWarren,CitizensEnvironmentalCoalition

NewYorkStateowesadebtofgratitudetotheindividualsandorganizationswhocontributedtheir

timeandtalentstotheproductionoftheSWMP.


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1. EXECUTIVESUMMARY

NewYorkStatesBeyondWastePlan(Plan)setsforthanewapproachforNewYorkStateashift

fromfocusingonendofthepipewastemanagementtechniquestolookingupstreamandmore

comprehensivelyathowmaterialsthatwouldotherwisebecomewastecanbemoresustainably

managedthrough

the

states

economy.

This

shift

is

central

to

the

states

ability

to

adapt

to

an

age

ofgrowingpressuretoreducedemandforenergy,reducedependenceondisposal,minimize

emissionofgreenhousegasesandcreategreenjobs.

Accomplishingthischangenecessitatesincreasedattentiontoinfluencingproductandpackaging

designtofosterasystemthatminimizeswasteandmaximizestheuseofrecyclablematerials. This

willrequiretheinvolvementofallplayersintheproductionandsupplychainproduct

manufacturers,distributors,retailers,consumers,andgovernment. Itwillalsorequireincreased

investmentinourrecyclinganddistribution/reversedistributioninfrastructure.Ultimately,itwill

resultindecreasedrelianceonwastedisposalfacilities.

Thematerials

management

system

envisioned

in

this

plan

would

capture

the

economic

value

of

our

materials,conservetheirimbeddedenergy,andminimizethegenerationofgreenhousegasesand

pollution. TheNewYorkStateDepartmentofEnvironmentalConservation(DEC)projectsthat

implementingthisplancouldreducenearly23millionmetrictonsofCO2equivalentgreenhousegas

emissionsannually,savemorethan250trillionBTUsofenergyeachyearasmuchenergyasis

consumedbymorethan2.5millionhomesandcreate74,000jobsandeconomicopportunityin

theprocess.1

Thisvisioncanonlybefullyrealizedifthestateandlocalgovernmentsobtainanddedicatethe

additionalstaffandresourcesneededtoimplementthePlan,ifmanufacturerstakefinancialor

physicalresponsibilityforthereuseandrecyclingoftheproductsandpackagingtheyputintothe

marketplace,andifprivateentitiesembracetheirresponsibilityforpropermaterialsmanagement.

Totheseends,thisplanrecommendsanumberofpotentialrevenuestreamstooffsetthecoststo

thepublicsector,aswellaslegislativerecommendationstoengagetheprivatesectormorefullyin

movingNewYorkStatebeyondwaste.

1ThemethodologyanddatausedtoderivethesefiguresisprovidedinAppendix1


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1.1 GOALS

ThequantitativegoalofthisPlanistoreducetheamountofwasteNewYorkersdisposeby

preventingwastegenerationandincreasingreuse,recycling,compostingandotherorganic

materialrecyclingmethods. Currently,NewYorkersthrowaway4.1poundsofmunicipalsolid

waste

(MSW)

per

person

per

day,

or

0.75

tons

per

person

per

year.

The

Plan

seeks

to

reduce

the

amountofMSWdestinedfordisposalby15percenteverytwoyears.Achievingthiswillrequire

theengagementofmanufacturersthroughproductandpackagingstewardshipandthe

developmentofadditionalreuseandrecyclinginfrastructure,aswellasastrongpartnershipwith

otherstatesandtheUnitedStatesEnvironmentalProtectionAgency(EPA).

Source:Appendix1

ThequalitativegoalsofthisPlanareto:

MinimizeWasteGeneration MaximizeReuse MaximizeRecycling MaximizeCompostingandOrganicsRecycling AdvanceProductandPackagingStewardship CreateGreenJobs MaximizetheEnergyValueofMaterialsManagement

Minimize

the

Climate

Impacts

of

Materials

Management

ReemphasizetheImportanceofComprehensiveLocalMaterialsManagementPlanning MinimizetheNeedforExportofResidualWaste EngageallNewYorkersgovernment,business,industryandthepublicinSustainable

MaterialsManagement

StriveforFullPublicParticipation,FairnessandEnvironmentalJustice PrioritizeInvestmentinReduction,Reuse,RecyclingandCompostingOverDisposal MaximizeEfficiencyinInfrastructureDevelopment FosterTechnologicalInnovation ContinuetoEnsurethatSolidWasteManagementFacilitiesareSitedDesignedandOperated

inanEnvironmentallySoundManner


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1.2 MATERIALSANDWASTEMANAGEMENTIN NEWYORKSTATE 1987TO PRESENT

DECs1987SolidWasteManagementPlan(1987Plan)wasaggressiveforitstime. Itsetagoalof

reducing,reusingorrecycling50percentofthe

stateswastestreamintenyearsandsetfortha

solidwastemanagementhierarchy,adoptedinto

lawin1988,thatplacedpriorityonwaste

prevention,reuse

and

recycling,

followed

by

municipalwastecombustion(MWC)withenergy

recoveryand,finally,landfillingasthelowest

priority. Twentytwoyearslater,themajorityof

thematerialsgeneratedaremanagedbythe

lowestprioritystrategy,andthestateisstill

strivingtoachieveitsrecyclinggoals.


The1987Planwasdraftedtoaddresswhatwas

determinedatthattimetobeadevelopingsolid

waste

disposal

crisis.

The

Plan

focused

on

an

integratedsolidwastemanagementapproach,to

beimplementedbymunicipalplanningunitswhich

favoredreduction,reuseandrecyclingandlocal

selfsufficiencyinmanagingtheremainingwaste

stream.

Theimplementationofthe1987Plan,theSolid

WasteManagementActof1988,andlocalsolid

wastemanagementplansestablishedbymunicipal

planningunits,hasyieldedsignificantprogress.

Thestates

recycling

rate

has

grown

from

approximatelythreepercentto36percentofthe

entirematerialsstreamand20percentwhenonly

MSWisevaluated2. Manyofthestates

communitieshaveimplementedexemplary

integratedmaterialsmanagementsystemsthat

haveyieldedrecyclingrateswellbeyondthe

statewideaverage. However,thestateasawholeappearstobestagnatingatlevelsofMSW

recyclingnear20percentwellbelowthenationalaverageMSWrecyclingratereportedbyEPAat

33percent.

TERMS

Amaterialsmanagement

approachnecessitatesa

changeinterminology.

Materialsarenotwaste

untiltheyaredestinedfor

alandfillormunicipal

wastecombustor. So,this

planuses

the

terms

materialsandmaterials

managementinplaceof

wasteorwaste

managementwhen

referringtoactivitiesatthe

upperendofthehierarchy.

2Thetotalmaterialsstreamincludesmunicipalsolidwaste,constructionanddemolitiondebris,biosolids(or

sewagesludge)andindustrialwaste;municipalsolidwasteincludesmaterialsgeneratedbythe

residential,commercialandinstitutionalsectors.Foradescriptionofeachofthesestreams,seesection7.

Foradiscussionofthereportinganddataonwhichthiscalculationisbased,seesection8.3.1.


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The1987PlansoughttophaseoutMSWincinerationwithoutenergyrecoveryandreplacelandfills

inthestatewithanetworkof37municipalwastecombustors(MWCs)withenergyrecoveryfor

treatingthewasteremainingafterreduction,reuseandrecycling.

Whileatonepoint13MWCswereoperationalinNewYorkState,only10combustionfacilities

remaininoperationin2009.ThegoalofphasingoutMSWincinerationwasaccomplished,though

somebiosolids(i.e.,sewagesludge)arestillincineratedwithoutenergyrecovery.

The1987PlanprescribedphasingoutlandfillingofunprocessedMSWandusinglandfillsonlyfor

discreetstreams(i.e.,MWCresidues,somebiosolids,someconstructionanddemolitiondebris).

ThoughthenumberofactiveMSWlandfillshasbeendrasticallyreducedfrom348mostlyunlined

landfillsin1987tothecurrentlyoperating27linedlandfills,landfillingwhetherinoroutofstate

remainsthepredominantwastemanagementmethod. The1987Planestablishedaframeworkthat

wasbuiltaroundmunicipalmanagementsystems. However,inrecentyears,operationofmuchof

thestateslandfillcapacityhasshiftedtoprivatecompaniesinsteadofmunicipalitiesorplanning

units,with75percentofthestatesoperatingMSWlandfillcapacityoperatedbytheprivatesector.

Themanyinactivelandfillsthathavebeenphasedoutsince1987,aswellasurbanredevelopment

sitesthat

contain

potentially

contaminated

historic

fill,

can

represent

acontinuing

environmental

liabilitywhenleftinplaceoranadditionalsourceofsolidwasterequiringmanagementwhen

excavatedorotherwisedisturbedbyconstructionprojects.

Twentyyearsafterthe1987PlanandtheLegislaturesenactmentoftheSolidWasteManagement

Actof1988,NewYorkStatefindsitselfrelyingonamixofdifferent,local,solidwastemanagement

systems. Duetoanumberoffactors,includingaperiodofuncertaintyregardingalocal

governmentsabilitytoinstitutewasteflowcontrol,somemunicipalitiesthathadplannedor

developedtheirownintegratedsystemsofsolidwastefacilitiesnolongerhaveanyinvolvementat

allinthemanagementofsignificantportionsoftheMSWgeneratedwithintheirborders.

Thecurrent

network

of

recycling

and

solid

waste

collection,

transfer

and

disposal

operations

partiallycompriseslocalgovernmentownedandoperatedfacilitiesandprograms,whichwere

typicalinthe1980s,andalsoincludessignificantprivatelycontrolledwastecollection,

transportationandhandlinginfrastructure.

AlsoimportantfromapublicpolicyandlongtermplanningperspectiveisNewYorkStates

significantdependenceonprivatelyownedfacilitiesinotherstatesforthedisposalofmorethan

16,500tonsofMSWeveryday(sixmilliontonsperyear),includingvirtuallyallofthesolidwaste

disposedfromtheCityofNewYorkandmuchofLongIslandswaste.Whiletheenvironmental

impactofexporthasbeenreducedinrecentyears bythemovementofwasteexportsbyrail

insteadoftruck,exportshaveincreasedfivefoldduringthepast20yearsatrendthatrunscounter

totheselfsufficiencyenvisionedinthe1987Plan.

WasteexportleavesmanyNewYorkcommunitiesvulnerabletocapacityrestrictionsandadditional

userfeesatoutofstatedisposalfacilities. Fornearlyadecade,Congresshasreviewedlegislation

thatwouldallowstatestoconstrainthemovementofgarbagefromotherstates. Fortunatelyfor

NewYorkState,nosuchlawshavepassed,butthethreatofrestrictionservesasareminderthatthe

statesrelianceonexportisnotwithoutrisks.


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RECYCLINGSAVES

ENERGY,REDUCES

POLLUTIONAND

COMBATSCLIMATE

CHANGE

Usingrecycledaluminumin

placeofvirginbauxite:

reducestheenergyusedinproductionby

greaterthan90

percent

decreasesairpollutionby95percent

decreaseswaterpollutionby97percent

Substitutingrecycledpaperfor

pulpfromtrees:

reducesenergyuseby23to74percent

(dependingonthe

papergrade)

reducesairpollutionby74percent

reduceswaterpollutionby35percent(source:Wastingand

RecyclingintheUS,2000

GrassrootsRecycling

Network,2000;p.25.)

Recyclingonetonof:

aluminumreducesGHGemissionsby13.7

tons

officepaperreducesGHGby4.3tons newspaperreduces

GHGby2.5tons

steelcansreducesGHGby1.7tons(source:SolidWasteManagementand

GHG,3rd

EditionUSEPA,

2006.

Whileallofthe1987Planselementswerenotrealizedas

envisioned,thankstothesignificanteffortsofallNew

Yorkers,manyofitselementswereimplemented.

Unfortunately,areductioninDECstaffdedicatedtosolid

wasteissues,combinedwiththeinsufficientallocationof

stateandlocalresources,hasresultedinmanymissed

opportunities

to

prevent

waste

and

increase

recycling.

Nonetheless,thestatessolidwastestreamismanagedina

farmorecohesiveandenvironmentallysoundmanner

todaythanbeforethedevelopmentofthe1987Plan.

1.3 MATERIALSANDWASTEMANAGEMENTIN

NEWYORKSTATE2009

Throughthisplanningprocess,DEChastakenstockofthe

currentstate

of

materials

and

waste

management

in

New

YorkState. Thekeyfindingsareprovidedbelow.

Twentyyearsafterthestateadoptedasolidwastemanagementhierarchythatplaceswaste

prevention,reuseandrecyclingaheadofdisposal,

nearly65percentofthetotalmaterialsmanagedin

thestate,andapproximately80percentofMSW,

endupinMWCsandlandfills.

Althoughlandfillingshouldbethemanagementmethod

of

last

resort,

landfills,

either

instate

or

outofstate,handlethelargestproportionofwaste

disposed.

Whiletherehavebeenwastepreventionsuccesses,theyhavebeenoffsetbynegativetrends,suchas

plannedobsolescence,thegrowthofconvenience

productsandadvancingtechnology,and,therefore,

haveyieldedlittleornoreductionintheamountof

wastegeneratedinthelasttwodecades.

NewYorkStateanditscommunitieshavemadesignificantprogressinestablishingsuccessful

recyclingprograms,asevidencedbytherisein

recyclingratesbetween1987and1997,but

progressinthelastdecadehasstalled.



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ThewellestablishedrecyclingindustryinNewYorkcontinuestomeetthechallengeofdevelopingnewmarketsforsecondarymaterials.

Virtuallyallmunicipalrecyclingprogramseventuallydependupontherecyclingindustryfortheultimateprocessingandmarketingofrecoveredmaterials.

Theimplementationofsourceseparatedrecyclingprogramshasbeeninconsistent,notonlyfromonecommunitytothenext,butalsoindifferentsettingssuchasschools,businesses,

andpublicspaces.

Thestatesincreasingrelianceonwasteexportfrommanyofitsdenselypopulatedareasisproblematicandpotentiallyunreliable;principlesofsustainabilityandresponsibilitydictate

thatmaterialsbemanagedinthemostefficientandenvironmentallysensitivemanner,with

considerationoftherisksandimpactsofoutofstatetransportation.

Materialsmanagementcanplayasignificantroleincombatingclimatechange;landfillgasisfourpercentofthestatesGHGinventory,whileUSEPAestimatesthat42percentof

nationalGHGemissionsareinfluencedbythelifecycleimpactsoftheproductsand

packagingthatbecomewaste.

Thecontinuingrelianceonwastedisposallandfillsinparticularcomesatasignificantenvironmentalandeconomiccost;landfillgascontributestoclimatechange,andcontinuing

todisposeofmaterialsthatcouldbereusedorrecycledsquandersopportunitiestocreate

jobs,conserveenergyandnaturalresources,andreduceairandwaterpollution.

Reuseprovidesmultipleenvironmental,economicandsocialbenefits;thereispotentialtoexpandreuse,particularlyinkeysectorsincludingbuildingdeconstruction.

Redistributingconsumablefoodthroughfoodbanksorasanimalfeedprovidessocialandeconomicbenefits,aswellasreducingwaste.

Asforanycommodity,recyclingmarketsarevariable;however,onaverage,marketvaluesforconventionalrecyclables(metal,plasticcontainersandmanygradesofpaper)havebeen

consistentlystrongforthepasttwodecades.

Organicmaterialsrepresent30percentofboththematerialsgeneratedandthewastedisposed;recyclingorganicshasmultiplebenefits,includingreducingthegenerationof

greenhousegases,creatingvaluablesoilamendments,creatingjobsandreducingreliance

onwastedisposal.

Productandpackagingstewardshipprogramscreateincentivestoreducewasteinproductandpackagedesignandtoincreaserecycling.

PayasYouThrow/SaveMoneyandReduceTrash(PAYT/SMART)programscreateafinancialincentiveforconsumerstowastelessandrecyclemore;basedonEPAestimatedreductions,

implementationofPAYT/SMARTinNewYorkwouldreduceMSWdisposalbynearlythree

milliontonsannually.

Publiceducationandenforcementarecriticaltoolstopreventwasteandincreasereuse,recyclingandcomposting.


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Marketdevelopmentattentionisstillneededforemergingorproblematicrecyclables,includingorganics,plastics,glassandconstructionanddemolitiondebris.

Constructionanddemolition(C&D)debrisrecyclinghasbeeninhibitedbyalackofmarketsforinherentlyvaluablematerials,alackofinformationonmaterialcomposition,originand

destination,andconcernsaboutasbestoscontamination.

1.4 MOVINGFORWARD: SUSTAINABLEMATERIALSMANAGEMENT

ACTIONPLAN

ThisPlanseekstofundamentallychangethewaydiscardedmaterialsaremanagedinNewYork

Statebyprogressivelyreducingtheamountofmaterialsthatgotodisposaloverthetenyear

planningperiod. Together,therecommendationsbelowareintendedtorespondtothefindings

discussedaboveandachievetheplansgoals. Implementingtheserecommendationswillrequire

allocationofsignificantresourcesatthestateandlocallevel,aswellasthefullengagementofthe

privatesector. Thelegislativerecommendationsbelowareintendedtoensurethatthefiscalimpact

ongovernmentisrelievedthroughproductandpackagingstewardshipormitigatedthroughthe

creationofnewrevenuegeneratingprograms.

1.4.1 LegislativeRecommendations

MovingBeyondWastewillrequireanewstatutorystructurethatcreatesaframeworkfor

sustainablematerialsmanagement. TheSolidWasteManagementActof1988envisioned

municipalitiesworkingwithinplanningunits,actingeitherasselfcontainedentitiesorthrough

public/privatepartnerships,toimplementintegratedsolidwastemanagementprograms. Fora

variety

of

economic

and

legal

reasons,

that

vision

has

only

been

partially

realized.

With

continued

growthintheamountofsolidwastegenerated,anevolvedunderstandingoftheenvironmental

impactsofwastedisposal,andtheemergenceofnewmaterialsmanagementoptions,thereisa

clearneedfornewpriorities. Movingforwardrequiresanupdatedstatutoryframeworkthatsets

thestageforgrowthandsupportstheparadigmshiftneededtomoveBeyondWaste. That

frameworkshouldinclude:

AnupdatetotheSolidWasteManagementAct: Anupdatedactshould:setrecyclingandwaste

reductiongoals;specifywhatmaterialsmustberecycled,whereandbywhom;enhanceDECs

authoritytoenforcerecyclingrequirements;allocateadditionalresourcesforplanning,education

andenforcement;updateprocurementandrecyclingrequirementsforstateagenciesand

authorities;require

incentive

programs

(e.g.,

PAYT/SMART),

and

enable

DEC

to

account

for

MSW

transportandenforcetransporterviolationsofsourceseparationrequirements.

ProductandPackagingStewardshipPrograms: ProductStewardship,alsoknownasExtended

ProducerResponsibility,extendstheroleandresponsibilityofthemanufacturerofaproductto

includetheentirelifecycle,includingultimatedispositionofthatproductorpackageattheendof

itsusefullife. Stewardshipencouragesmanufacturerstoembracematerialsefficiencyanddesign

forrecyclabilityconceptsandhelpslocalrecyclingprogramscapturemorematerials.


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Throughstewardshiplegislation,manufacturers(alsoknownasproducersorbrandowners)are

requiredtotakeeitherphysicalorfinancialresponsibilityfortherecyclingorproperdisposalof

productsorpackages. Insteadofrequiringlocalgovernmentstofundcollectionandrecycling

programsfordiscardedproducts,stewardshipprogramsincorporatethecostofendoflife

managementintothecostoftheproduct,sothosecostsarebornejointlybythemanufacturerand

theconsumer,notbylocalgovernmentandtaxpayers. Possibleinitialproducttargetsfor

stewardship

programs

include:

packaging,

printed

products,

electronic

waste,

pharmaceuticals,

householdhazardouswastes,andmercurycontainingproducts.Theproductstewardship

frameworkapproachmaximizesefficiencybyconsistentlystructuringstewardshipprogramsfor

multipleproductsandavoidingextendeddebatesontheproperstructureforstewardshipforeach

product.

RevenueGeneratingPrograms: AchievingthegoalsofthisPlanreducingwastegeneration,

increasingreuse,recyclingandcompostingandreducingdisposalwillrequireasignificant

commitmentofresourcesandgreaterflexibilityinallocatingthoseresourcestorespondto

emergingissuesandcriticalneeds. Revenuegeneratingprogramscouldinclude:anincreaseinstate

fundsallocatedforthesepurposes;solidwastedisposalfees,orsolidwastefacilitypermitfees.

1.4.2 RegulatoryRecommendations

TheregulatorychangessuggestedbelowcanbemadewithinDECsexistingstatutoryauthorityand

arenecessarytosupportimplementationofthisPlanandachievementofitsgoalsand

recommendations. Keyregulatoryrecommendationsinclude:

RevisionofthePart360SolidWasteManagementFacilityRegulationsto:o updaterequirementsforconstructionandoperationofsolidwastemanagement

facilitiestobetterprotecthumanhealthandtheenvironment;

o updatethebeneficialusedeterminationprogramregulations;o setnewrequirementsformanagingthehistoricfillfoundonmanyurban

redevelopmentsites;

o restrictthedisposalofrecyclablematerialsforwhichalternativeinfrastructureorproductstewardshipprogramsexist.

EnactmentofanewPart3745regulationtooverseethecollection,handlingandrecyclingofelectronicwaste.

1.4.3 ProgrammaticRecommendations

Thefollowingrecommendationsfallwithinthestatescurrentstatutoryandregulatoryauthority.

Takentogether,theseactivitiesrepresentacomprehensivesustainablematerialsmanagement

program. ThestatesabilitytoimplementtheseinitiativesandachievethegoalsofthisPlanwill

dependonitsabilitytoincreasethestaffandfinancialresourcesavailabletotheprogram. A

comprehensiveprogramshouldincludethefollowingkeyelements:


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TheStateLeadingbyExample: Agenciesandauthoritiesshoulddemonstratecomprehensivewaste

reductionandrecyclingprogramsby:workingaggressivelytoimplementGovernorPatersons

ExecutiveOrder4onStateAgencySustainabilityandGreenPurchasing;consistentlyimplementing,

publicizingandenforcingrecyclingprogramsatallstatefacilitiesandevents,andpromotingand

demonstratingorganicmaterialscompostingandrecycling.

PublicEducation: Publicparticipationinwasteprevention,reuseandrecyclingiskeytoachieving

sustainablematerials

management

in

New

York

State.

To

improve

participation,

the

state

will:

launchanaggressivepubliceducationcampaigntopromotewasteprevention,reuse,recyclingand

composting;developtemplatesforlocalgovernmentstouseineducationalefforts,andpublicize

innovativereuse,recycling,compostingandothermodelprograms.

OutreachandTechnicalAssistance: Municipalities,businesses,institutionsandagenciesinthestate

willneedguidanceandassistancetodevelopsustainablematerialsmanagementprograms.Tomeet

thisneed,thestatewill:developwrittenguidanceonwastepreventionforspecificcommercial

generatingsectors;encouragetheuseoffoodbanksandotherreusenetworks;facilitateforumson

constructionanddemolitiondebrismanagementandrecyclingopportunities;helpentities(private

andpublic)interestedindevelopingorganicsrecyclingsystems,andprovidetoolstolocal

governmentstobetterplanandimplementsustainablematerialsmanagementprograms.

ComprehensiveMaterialsManagementPlanning:Thestatemustallocateadditionalfundingand

resourcestoplanforandimplementsustainablematerialsmanagementprograms. Thestatemust

refocusonmaterialsmanagementplanningby:seekingstaffandresourcestoimplementthestate

Plan;issuingatechnicalguidancedocumenttoassistlocaldecisionmaking,andworkingwith

planningunitstocraftanewgenerationoflocalsolidwastemanagementplansthatreflectthe

broaderconceptsofmaterialsmanagement,embodynewapproachesandtechnologiestoreduce

waste,achievehigherlevelsofrecycling,andreflectcurrentmarketandregulatoryconditions.

CombatClimateChange:DECwill:maximizewasteprevention,reuseandrecyclingandminimize

wastedisposal;assesstheemissionsandoperationsoflandfillsinNewYorktoensuretheypursue

everypossiblemechanismforachievinggreenhousegasreductions,andworkwithotherstate

agenciesandentitiestoenablelandfillgastoenergyprojectstoconnecttotheelectricalgridina

costeffectiveandtechnicallyeffectivemanner.

InfrastructureandMarketDevelopment:Expandingtheuniverseofmaterialsdivertedfromdisposal

willrequireadditionalprocessing,reuseandrecyclinginfrastructureandneworstrongermarkets

forthematerialsprocessed. Todoso,DECwillevaluateandimplement,whereappropriate,

strategiestopromotetheestablishmentofrecyclingandcompostingfacilitiesintheenvironmental

qualityreviewandregulatoryprocessforothersolidwastemanagementfacilities,particularly

disposalfacilities.

Further,

the

state

will

allocate

additional

resources

to:

develop

critical

recycling

andmanufacturinginfrastructureforkeyrecoveredmaterials,includingglass,plastics,andorganic

materials;expandmarketdevelopmentinitiativestotargetglass,plasticfilm,plastics#37,compost

andconstructionanddemolitionmaterials;establishaNewYorkStateCenterforConstructionand

DemolitionDebrisRecycling;encourageandfacilitatefoodscraprecyclingdemonstrationprojects;

andexpandbeneficialuseapplicationsformixedcolorrecoveredglass.


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1.5 CONCLUSION

ThenewframeworkproposedinthisPlanseekstoputforwardpolicyandprogrammatictoolsand

optionsforplanningunitsandcommunitiesthatwillhelpensurestrongwastereduction,reuseand

materialsrecoverythroughoutthestate,bothinareaswherethereisasubstantialprivatesector

roleandincommunitiesthatpracticeflowcontroloruseotheroversighttools.The

recommendationssummarizedaboveanddetailedinsubsequentsectionsofthePlanincludeanew

broadpolicy,

expanded

financial

assistance

for

progressive

solid

waste

and

sustainable

materials

management,andeducationforconsumersandbusinessestohelpthemreducetheirgenerationof

wasteandrecyclewhatcannotbereduced.Theyalsoincludedetailedrecommendationsforhow

planningunitscanbetterplanforrecoveryandofferstrategiesfordevelopingand/orimproving

NewYorkStatesrecoveryinfrastructure. Asapackage,theserecommendationswillleadNewYork

StateonapathBeyondWaste.


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2. BEYONDWASTE:ANE WVISIONFO RSUSTAINABLE MATERIALSMANAGEMENTIN NEW YORKSTATE

NewYorkStatesBeyondWastePlansetsforthanewapproachashiftfromfocusingonendof

thepipewastemanagementtechniquestolookingupstreamandmorecomprehensivelyathow

materialsthatwouldotherwisebecomewastecanbemoresustainablymanagedthroughthe

stateseconomy. Thisshiftiscentraltothestatesabilitytoadapttogrowingpressuretoreduce

demandforenergy,reducedependenceondisposal,minimizeemissionofgreenhousegasesand

creategreenjobs.

ThisshiftisespeciallycriticalgivenAmericanconsumptionpatternsandglobalresourceconstraints.

WhiletheUnitedStates(US)hasonlyfivepercentoftheworldspopulation,itconsumes24percent

oftheworldsenergyandonethirdoftheworldsmaterials3. AccordingtotheOrganizationfor

EconomicCooperationandDevelopment,theUSgeneratesmorewasteperpersonthananyother

countryintheworld. Municipalsolidwaste(MSW)generationinNewYorkState,estimatedat5.15

poundsper

person

per

day

in

2008,

is

greater

than

the

national

average,

reported

by

EPA

at

4.6

poundsperpersonperday,andthuswellbeyondthatofothercountries.

AsdevelopingcountriesstrivetoachieveastandardoflivingcomparabletothatoftheUSandother

industrializednations,thedemandformaterialsandtheenergyneededtoextractandprocessthem

willcontinuetoincrease. Itislikely,too,thatthecostsofenergyandmaterialwillincreaseaswell.

Unlesswechangethestatusquo,theenvironmentalandclimateimplicationsofthisgrowing

demandcouldbedevastating,andtheeconomicimpacttoNewYorkStatewillbeaburdento

individuals,businessesandespeciallymunicipalities. Neverhasitbeenmorecriticaltoexaminethe

wayweuseanddisposeofthematerialsthatfueloureconomy. Itissimplynolongersensibleto

expendenergyandresourcestoextract,transportandprocessmaterialsonlytousethemfor

minutesandthenthrowthemaway. Thechangehastostartnow.

Theroleofsolidwastemanagersintheglobalcontextissignificant. AsthisPlanclearly

demonstrates,wastedisposalfacilitiescontributetoclimatechangeandtherelatedenvironmental

degradation,whilewastepreventionandtheuseofrecoveredmaterialsinmanufacturingreduces

energyconsumption,greenhousegasgenerationandair,waterandlandpollutionandcreatesgreen

jobs. Itiscriticaltoexpandtheunderstandingoftherolesustainablematerialsmanagementcan

playinimprovingtheenvironment,locallyaswellasglobally. Whetheringovernment,private

industry,orasindividuals,allNewYorkersmusthelpconfrontthesechallenges. Allplayersinthe

materialseconomyarechallengedtocontinuallystriveforbetterplanning,smarterdesign,more

efficientmarkets,

and

ever

increasing

levels

of

materials

use

reduction

and

recycling.

3Source:USGeologicalSurvey;http://pubs.usgs.gov/annrev/ar23107/aerdocnew.pdf
http://pubs.usgs.gov/annrev/ar-23-107/aerdocnew.pdfhttp://pubs.usgs.gov/annrev/ar-23-107/aerdocnew.pdfhttp://pubs.usgs.gov/annrev/ar-23-107/aerdocnew.pdfhttp://pubs.usgs.gov/annrev/ar-23-107/aerdocnew.pdfhttp://pubs.usgs.gov/annrev/ar-23-107/aerdocnew.pdfhttp://pubs.usgs.gov/annrev/ar-23-107/aerdocnew.pdfhttp://pubs.usgs.gov/annrev/ar-23-107/aerdocnew.pdf


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BeyondWasteisaPlantocreateamoresustainablematerialseconomy. Thiswillrequirefostering

asystemwhereproductsandpackagingaredesignedtominimizewasteandmaximizetheuseof

recyclablematerialsandwherethereisinfrastructureinplacetorecoverandusethosematerials.

Thissystemwouldcapturetheeconomic valueofourmaterials,conservetheirimbeddedenergy,

andminimizegenerationofgreenhousegasesandpollution. ThisPlanwillleadNewYorkStateto

thisdesiredsystem. Inadditiontoreducingourrelianceondisposal,theNewYorkState

Department

of

Environmental

Conservation

(DEC)

projects

that

implementing

this

Plan

could

generatemorethan74,000jobs,reducenearly23millionmetrictonsofCO2equivalent(MTCO2E)

greenhousegasemissions,andsave259trillionBTUsofenergy.4

MovingBeyondWasterequiresincreasedattentiontoinfluencingproductandpackagingdesign,

whichwillrequiretheinvolvementofallplayersintheproductionandsupplychainproduct

manufacturers,distributors,retailers,consumers,andgovernment. Itwillalsorequireincreased

investmentinourrecoveryanddistribution/reversedistributioninfrastructure.Ultimately,itwill

turnthetrendonNewYorkStatesevergrowingwastestream.

Othermoretraditionaltoolswillbereforgedforthetaskofachievingatruesustainablematerials

management

approacha

combination

of

programmatic,

regulatory

and

policy

actions

that

reduce

oreliminatewasteordivertmaterialsforreuse,recyclingandcomposting. Torealizethisvision,

thestatewillneedtoupdate,strengthen,andexpanditsregulatoryandstatutoryauthority;obtain,

developanddedicateresourcesthatarenotyetinhand;useitssubstantialpurchasingpowerand

otheropportunitiestoleadbyexample,andachievecoordinatedcooperationfromalllevelsof

government,theprivatesectorandindividualNewYorkers. Accordingly,thisPlanidentifieswhat

thestatecandonowwithintheconfinesofexistingregulatorystructureandfiscalconstraints;what

itwillbeabletodowithexpandedauthority,andwhatitwilldowithnewresources. Itdefinesthe

stepsDECwilltaketoobtainthisexpandedauthorityandadditionalresources.

Whatisasustainablematerialseconomy?Inbroadterms,asustainablematerialsmanagement

strategyinvolves:

1. WastePreventioncreatingandimplementingacombinationofpoliciesandprogramsaimedatreducingthevolumeandtoxicityofwastegeneratedanddisposed,including:

a. packagingreductionthroughstewardshipandothermeans;b. productstewardship/producerresponsibilityforkeymaterialstreams;c. purchasingandpractices,bothpublicandprivate,thatadvancesustainabilitygoals;d. communityoutreachandeducation;ande. incentivesforwastepreventionthroughvolumebasedpricingforwastemanagement

programs,commonlyreferredtoasPayAsYouThrow(PAYT)orSaveMoneyAnd

Reduce

Trash

(SMART).

2. Reusesupportinganexpandedinfrastructuretoredirectitemsthatstillhaveavaluefortheiroriginalintendedpurpose(e.g.,clothing,furniture,buildingmaterials,etc.)fromthosewhono

longerneedthemtoindividualsandentitiesthatcanputthemtouse.

4ThemethodologyanddatausedtoderivethesefiguresisprovidedinAppendix1


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millionMTCO 2E.Achievinga90percentrecyclingratestatewidewouldyieldimpactsofan

additional23millionMTCO2Egreenhousegasemissionsreductionsandsaveanadditional259

trillionBTUsofenergy5. Wastepreventionhasanevenmoresignificantimpactongreenhousegas

emissions.Reducingmaterialsuse,throughproductandpackagingstewardshipinitiativesandother

means,wouldavoidtheuseofenergyandthereleaseofevengreateramountsofgreenhouse

gases.

Thestate

can

also

fuel

economic

development

and

job

creation

using

the

materials

that

are

not

currentlyrecycledbutultimatelycouldbewithnewprogramsandpolicy. Ingeneralterms,ona

pertonbasis,foreveryjobrequiredtooperatealandfillormunicipalwastecombustor(MWC),10

jobscanbecreatedtoprocessrecyclablematerialsandpreparethemformarket. Inthecaseof

organics,fourjobscanbecreatedincompostingthosematerialsforeveryonejobindisposal. Once

recycledmaterialsareusedinmanufacturing,thejobsratiobecomesevengreater,andthequality

andpayscalesofthosejobsishigher. Remanufacturingindustriesarethemostsignificantjob

creators,withbetween28and296jobsdependingonthetypeofremanufacturingforeveryone

indisposal6.

A2008reportbyProgressiveInvestorfoundthatwith$236billioninrevenuesin2007,recycling

industriesalreadyrepresentmorethantwopercentofthenationalgrossdomesticproduct. The

U.S.RecyclingEconomicInformationStudyPreparedforTheNationalRecyclingCoalitionbyR.W.

Beck,Inc.(July2001),foundthat174milliontonsofmaterialwerebeingrecycledperyearand

about1,100,000jobswerecreatedinthe"recycling"sector,includingcollection,processing,and

manufacturing.Thisequatestoabout6jobsper1,000tonsperyearrecycled.

NewYorkStatesEmpireStateDevelopment(ESD)EnvironmentalInvestmentProgramhasproven

that,infinancingrecyclingbasedbusinesses,itcancreatesignificantjobsandeconomicbenefit.

(ForasummaryofESDsinvestmentresults,seeAppendix6.2). AFebruary2009studypreparedby

DSMEnvironmentalServices,Inc,fortheNortheastRecyclingCouncil(NERC)foundthatNewYork

Statesrecycling

and

reuse

industries

directly

support

more

than

32,000

jobs,

with

less

than

5,000

of

thoseincollection.Abroadscaleincreaseinrecoveryefforts,asoutlinedinthisPlan,couldincrease

thegreenjobsrelatedtorecyclingbymorethan74,0007.

Atthedawnofthe21stcentury,societyisconfrontedbybroadandinterrelatedsocialand

environmentalchallengestoppedbyglobalclimatechangeandincreasedenergydemands. Inthis

context,itisnotenoughonlytoensureenvironmentallysounddisposal. Capturingtheeconomic

valueandimbeddedenergyinourmaterials,minimizinggreenhousegasimpactsofouractions,and

maximizingmaterialsandenergyefficiencyinoursystemsmustbekeydrivers.

5TheseconclusionsarebasedontheresultsofmodelingusingdataexplainedinAppendix1andsummarized

inSection7,materialscompositionandcharacterization,andtheNortheastRecyclingCouncils

EnvironmentalBenefitsCalculator.Formoredetail,seeSection4.

6InstituteforLocalSelfReliance,1997,aspublishedinWastingandRecyclingintheUS2000,Grassroots

RecyclingNetwork,p.27.

7AnexplanationofthemethodologyanddatausedtoderivethesefiguresisprovidedinAppendix1.


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ANewApproachforNewYorkState

AsNewYorkStatemovesforward,itmustaddressnewwaystoreducetheamountofwaste

generatedandfurtherreducetheamountofwastethatendsupinlandfillsandcombustors.

Improvementontheoldstrategiestopromotereuse,recyclingandreductionareoverdue,andthis

Planmapsrecommendationsforsuchimprovement. ThePlanalsoaimstotackletheunanticipated

increasein

waste

from

consumer

products

and

packagingthe

waste

that

is

undermining

and

has

essentiallynullifiedallwastereductioneffortstodate. Thisproblemmustbeconfrontedheadonby

engagingproductmanufacturersintheendoflifemanagementoftheirproductsandpackaging.

ThisPlanbeginstoaddresswhateachofthemanyplayersthestate,localgovernments,planning

units,privatesectorsolidwastemanagers,productmanufacturers,distributorsandretailers,and

individualconsumerscanachievecollectivelyandinpartnershipwithotherstatesandthefederal

government. Thechallengeissignificant,andprogresswillnotbemeasuredsolelyagainstasingle

numericalgoal. Successwillbemeasuredbysustainedandcontinualimprovementinmaximizing

recoveryandminimizingwaste. Remainingflexible,committed,andcoordinatedintheseefforts

willhelptofacethatchallenge. UsingthisPlantoraiseawarenessoftheseissuesiscriticalsothat

NewYorkersarecollectivelyengagedintheeffortandwillingtosupportthefundingneededto

ensureitssuccess.

ThisPlanlaysafoundationforthenextchapterinsolidwastemanagementinNewYorkState. It

identifiescriticalareasforlocal,stateandindividualactionandprovidesamenuofoptionsthatcan

helpcommunitiesonthepathtowardsustainablematerialsmanagement. Onthestate,regionalor

nationallevel,itpresentsastrategytoengageproductmanufacturerstomakeendoflife

managementcostsapartoftheireconomicequation. Doingsowillbegintoturnthetideand

ultimatelyreducewastegeneration.

Recognizingthatlocalgovernmentsareoftenthefirewallbetweenwasteandtheenvironment,DEC

iscommitted

to

partnering

with

local

communities

and

planning

units

that

grapple

with

these

issues

dailyintheireffortstoprovidesafe,affordablemethodsforsolidwastemanagementwhile

protectingtheenvironment. OnlythroughleadershipbyNewYorkincooperationwithcommitted

planningunitscanthestatesuccessfullyimplementthegoalsofthisPlan.

Goals

ThequantitativegoalofthePlanistoreducetheamountofwasteNewYorkersdisposeby

preventingwastegenerationandincreasingreuse,recycling,compostingandotherorganics

recyclingmethods. In2008,NewYorkersthrewaway4.1poundsofmunicipalsolidwaste(MSW)

perpersonperday,or0.75tonsperpersonperyear. ThePlanseekstoreducetheamountofMSW

destinedfordisposalby15percenteverytwoyears8. Achievingthiswillrequiretheengagementof

8ThereferencedpercapitawastedisposalgoalwillapplytoMSW(i.e.,thematerialsincludedinthematerials

compositionanalysisprovidedinsection7.1). Itdoesnotapplytoconstructionanddemolitiondebris,

biosolids,orindustrialwaste.


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manufacturersthroughproductandpackagingstewardshipandthedevelopmentofadditional

reuseandrecyclinginfrastructure,aswellasastrongpartnershipwithotherstatesandtheUnited

StatesEnvironmentalProtectionAgency(EPA).

ThequalitativegoalsofthisPlanareto:

MinimizeWasteGeneration MaximizeReuse MaximizeRecycling MaximizeCompostingandOrganicsRecycling AdvanceProductandPackagingStewardship CreateGreenJobs MaximizetheEnergyValueofMaterialsManagement MinimizetheClimateImpactsofMaterialsManagement ReemphasizetheImportanceofComprehensiveLocalMaterialsManagementPlanning MinimizetheNeedforExportofResidualWaste EngageallNewYorkersgovernment,business,industryandthepublicinSustainable

MaterialsManagement

StriveforFullPublicParticipation,FairnessandEnvironmentalJustice PrioritizeInvestmentinReduction,Reuse,RecyclingandCompostingOverDisposal MaximizeEfficiencyinInfrastructureDevelopment

Foster

Technological

Innovation

ContinuetoEnsureSolidWasteManagementFacilitiesareDesignedandOperatedinanEnvironmentallySoundManner

ThenewframeworkproposedinthisPlanseekstoputforwardpolicyandprogrammatictoolsand

optionsforplanningunitsandcommunitiesthatwillhelpensurestrongwastereduction,reuse,and

materialsrecoverythroughoutthestate,bothinareaswherethereisasubstantialprivatesector

roleandincommunitiesthatpracticeflowcontroloruseotheroversighttools. The

recommendationsdetailedinsubsequentsectionsofthePlanincludenewbroadpolicy,suchasan

updatedSolidWasteManagementActandaproductstewardshipframework,expandedfinancial

assistance

for

progressive

solid

waste

and

sustainable

materials

management,

and

education

for

consumersandbusinessestohelpthemreducetheirgenerationofwaste,aswellasdetailed

recommendationsforhowplanningunitscanbetterplanforrecoveryandstrategiesfordeveloping

and/orimprovingourrecoveryinfrastructure. Asapackage,theserecommendationswillleadNew

YorkStateonapathBeyondWaste.


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3. MATERIALSMANAGEMENTPLANNING, ROLESAND

RESPONSIBILITIES

3.1 THEHISTORYOF SOLIDWASTEMANAGEMENTPLANNINGIN NEWYORKSTATE

Whilethevalueofsolidwastemanagementplanningwasacknowledgedbyboththefederaland

stategovernmentsmorethan30yearsago,initialprogresswasintermittentandovershadowedby

effortstoaddresstheenvironmentalconsequencesofhazardouswastemismanagement.

ThefederalResourceConservationandRecoveryAct(RCRA)of1976requiredstatestodevelopsolid

wastemanagementplans,andtheNewYorkStateLegislaturerespondedwithChapter425ofthe

lawsof1977,whichrequiredDECtoprepareadraftcomprehensiveresourcerecoveryplan. DEC

preparedandsubmittedaplanin1978,butthelegislaturetooknofurtheractionuntil1980.

Chapter552ofNewYorkStateslawsofthatyearacknowledgedthedevelopmentofthedraftplan

requiredbyChapter425andrecognizedtheneedforsolidwastemanagementplanning. Itmade

DECresponsible

for

preparing

asolid

waste

management

plan

and

mandated

that

all

solid

waste

managementprojectsbeinaccordwiththeplan,oncecompleted.

DECpreparedadraftplaninaccordancewithRCRAandChapter552,butinfiscalyear8081

federalfundingforthemunicipalsolidwasteprogramwaswithdrawn,andfurtherdevelopmentof

theplanceased. Atthefederalandstatelevels,emphasisandfundingwereshiftedfromMSW

managementtohazardouswastemanagementprograms.

3.1.1 The1987SolidWasteManagementPlan(1987Plan)andUpdates

DECdrafted

the

1987

Plan

in

response

to

several

laws

and

concerns

that

arose

in

the

1980s.

First,

in

1983,theLongIslandLandfillLawmandatedthephaseoutoflandfillsinthedeepflowaquifer

rechargezonesonLongIsland,therebyencouragingthetransitiontoresourcerecoverythrougha

combinationofmunicipalwastecombustion(MWC)andrecycling,andthedevelopmentof

infrastructuretotransferwasteforlonghaulexport. Acrossthestate,groundwatercontamination

andoperationaldeficienciesatmanyolderunlinedlandfillsbecameaprimaryconcern. ByJune

1986,NewYorkStatehad358activelandfills,only47ofwhichhadvalidpermits,andseven

operatingMWCswithanothersixunderconstruction. Atthattime,availabledisposalcapacityin

NewYork,notincludingNewYorkCityswasteortheFreshKillslandfill,wasestimatedtobefour

years. ThisallledtotheconcernofaloomingdisposalcrisisinNewYorkState.

Inresponse,

Governor

Cuomo

called

for

the

preparation

of

aState

Solid

Waste

Management

Plan,

whichDECissuedinMarch1987. The1987Planarticulatedanintegratedwastemanagement

systemapproachtotheimpendingcrisis,andimplementationofPart360finallybroughtNewYork

StateintocompliancewiththeprovisionsofRCRAandthestatesownChapter425ofthelawsof

1977andChapter552ofthelawsof1980.

Aboutthesametime,onMarch22,1987,theMobro4000bargesetsailfromIslip,NewYork

carrying3,168tonsofbaledMSWdestinedforapilotprojectinMorehead,NCtobeconvertedto



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methane. OnceinMoreheadCity,NorthCarolinaofficialsbegananinvestigationandultimately

orderedthenowinfamousgarbagebargetofindanotherhomeforitsrottingcargo. Thisbegana

monthslongodysseythattookthebargeallthewaytoBelizeandbacktoNewYorkStateuntil

October1987,when,underanagreementwiththeNewYorkCityDepartmentofSanitation,the

garbagewasincineratedinNewYorkCityandtheashdisposedofinIslip. Althoughthesagawasan

embarrassment,thegarbagebargeincidentwaswidelypublicizedacrossthenationandbecame

emblematic

of

what

was

considered

at

the

time

to

be

a

solid

waste

disposal

crisis

that

lead

to

significantimprovementsinsolidwastemanagement.

The1987Planwasnotintendedasapanaceaforthestatesdisposalproblemsatthetime,but,

rather,representedthebeginningofachangeinsolidwastemanagementpracticestomeetboth

currentandfutureneeds. Itwasexplicitlyintendedtobethefirststepofwhatwasenvisionedtobe

alongterm,ongoing,solidwastemanagementplanningprocess. Thestatewastoupdatetheplan

annually(whichwassubsequentlyamendedina1992lawtobiennially)toaddressemergingissues

andrecommendactionstoimprovesolidwastemanagementinNewYorkState.Thisiterative

approachwasintendedtoprovideadynamicsolidwastemanagementplanningprocess.

The1987Plancontainedimportantgoals,includingagoaltoreduce,reuse,orrecycle50percentof

thewastestream(using1988asabaseyear)andarecommendedhierarchyofpreferredsolidwaste

managementmethods. The1987Plansetwhatwasseenatthattimeasvisionaryandaggressive,

yetachievable,goalsforatenyearplanningperiodwiththeintentofusingannualupdatestoadjust

policies,programs,plansandgoalstoensurecontinuedprogress.

ThefirstupdateoftheStateSolidWasteManagementPlan,producedinfiscalyear1987/1988,

revisedthe1987PlantoincorporatetherequirementsanddirectionembodiedintheSolidWaste

ManagementAct,passedin1988(describedbelow). Subsequentupdatesofthe1987Plandidnot

directlyreviseorreplaceportionsofthe1987/88Planupdate. Instead,eachupdatebecamea

standalonedocumentthatcharacterizedtheactivitiesundertakenwithinthestatewithrespectto

solidwaste

management

during

the

update

period.

In

time,

as

the

states

regulations

and

local

solid

wastemanagementplans(LSWMPs)weredevelopedandimplemented,theplanupdatesbecame

moreofareportingmechanismofachievements,obstaclesencounteredandcomparisonstothe

initialbaseyearofthePlan. ThePlanupdatesalsomaderecommendationsforaction.

Becausetheinitialtenyearplanningperiodendedin1997,the1997/1998updatewaspreparedto

serveasmorethanareport. It:

launchedanewfiveyearplanningperiod(19982003); identifiedobjectivesforthefiveyearplanningperiod; providedbaselinesolidwastemanagementdataforthenewplanningperiod;and summarizeddevelopmentsandprogressinsolidwastemanagementsincethelastupdateof

theplan.

DraftPlanupdateswerepreparedfor1999/2000and2001/2002. The1999/2000updatewas

approvedandreleased,butwhilethe2001/2002draftupdatewasreleasedforpubliccomment,it

wasneverfinalized. Therehavebeennoupdatessince.


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3.1.2 TheNYSSolidWasteManagementAct

Inresponsetothe1987Plan,theSolidWasteManagementAct(ECL270106,theAct)wassignedby

theGovernor,establishinginlawthePlanspreferredhierarchyofsolidwastemanagement. The

hierarchyestablishedthefollowingprioritiestoguidetheprogramsanddecisionsofDECandother

stateagencies:

a) First,toreducetheamountofsolidwastegenerated;b) Second,toreusematerialforthepurposeforwhichitwasoriginallyintendedortorecyclethe

materialthatcannotbereused;

c) Third,torecover,inanenvironmentallyacceptablemanner,energyfromsolidwastethatcannotbeeconomicallyandtechnicallyreusedorrecycled;and

d) Fourth,todisposeofsolidwastethatisnotbeingreusedorrecycled,orfromwhichenergyisnotbeingrecovered,bylandburialorothermethodsapprovedbythedepartment.

Inadditiontothehierarchy,theActestablished:

thestructureandexpectationsforregionalsolidwastemanagementplanningunitstoencourageregionalcooperation;

therequirementsandfundingforlocalsolidwastemanagementplansinaccordancewiththehierarchyofsolidwastemanagementmethods;

amandatethatmunicipalitiesadoptandimplementsourceseparationlawsorordinancesforrecyclablesfromallgeneratingsectorsby9/1/92(lessthanfiveyearsfromenactment);

and

DECsroleinfulfillingtheserequirements.TheActsrequirementswereintendedtoensurethatbothstateandlocalgovernmentswork

activelytowardestablishingenvironmentallysoundsolidwastemanagementsystemsthatintegrate

thehierarchyofsolidwastemanagementmethodsandemphasizewastereductionandrecycling,

usinglandfillsonlyformaterialsthatcouldnotbemanagedinamoreproductiveway.

Inbroadterms,theActhasbeenasuccessinspurringthedevelopmentofmunicipalrecycling

programsacrossthestateandmakingrecyclingopportunitiesavailabletomostNewYorkers. The

requirementforlocalgovernmentstoestablishsourceseparationprogramshasyieldedanincrease

inthestatesrecyclingrate. WhiletheActsimplementationlaunchedsuccessfulwasteprevention

andrecyclingprogramsandintegratedsolidwastemanagementsystems,itlacksamechanismfor

fosteringcontinualimprovementbeyondtheminimummandates. Furthermore,changesinthe

marketplacehave

led

to

legal

and

economic

realities

that,

in

some

cases,

undermine

the

states

solid

wastemanagementplanningconstructs. Therolesandresponsibilitiesofthevariousplayersinthe

solidwastechainmustevolvetorespondtocurrentconditions.


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3.2 ROLESANDRESPONSIBILITIES

3.2.1 TheRoleoftheState

Priorto1987,stategovernmentsroleinsolidwastemanagementwasprimarilyasregulator,

ensuringtheprotectionofpublichealthandtheenvironmentfrominappropriatedisposalpractices.

Thestate,throughDEC,regulatedthesiting,constructionandoperationofwastedisposalfacilities

throughpermitsandupheldthepermitconditionsthroughenforcement. Thestate,throughDEC,

alsoprovidedtechnicalassistanceandlimitedfinancialassistancetolocalgovernments. Themost

notablesourceoffinancialassistancepriorto1987wasthe1972EnvironmentalQualityBondAct,

whichprovidedloansfortheproperclosureofmunicipallandfillsandgrantsforMWCs.Thestate

didnotdictatetoacommunityhowtodisposeofitswaste;rather,itensuredthatacommunitys

wastedisposalpracticesdidnotimpairtheenvironmentorthreatenpublichealth.

ThroughtheAct,thelegislatureaffirmedtheprimacyoflocalandregionalgovernmentsinsolid

wastemanagementwhileclearlyarticulatingthestatesrole.Thestatewastofulfillitsresponsibility

toensureenvironmentally,economicallyandtechnicallyviablesolidwastemanagementprograms

by:

encouragingwastereductionandtheexpansionofmaterialsrecoveryprograms; establishingclearlyarticulated,responsiveandconsistentlyappliedregulatoryoversight;

and

providingafullrangeoftechnicalassistancetolocalgovernments.DECistheleadstateagencyformaterialsandwastemanagement. However,otherstateagencies

haveexplicitresponsibilityforcertainsolidwasterelatedprograms. EmpireStateDevelopment

(ESD)ischargedwiththeimplementationofthestatesSecondaryMaterialsUtilizationGrant

Program,throughwhichitinvestsinprojectsandcompaniesthatuserecycledmaterials.

TheOffice

of

General

Services

(OGS)

is

responsible

for

implementing

arecycled

product

procurementprogramandestablishingrecyclingprogramsinstateagencies. TheNewYorkState

EnergyResearchandDevelopmentAuthority(NYSERDA)providestargetedinvestmentsinsolid

wasteandrecyclingprojectsthatgenerateenergyorachieveenergyconservation.

Inaddition,allagencieshaveroutineandongoingrolesandresponsibilitiesforundertakingproper

environmentalstewardship,establishingwastepreventionandrecyclingprograms,andresponsibly

managingsolidwastewithintheirownoperations. TherequirementsoftheActwerebolsteredby

GovernorCuomosExecutiveOrder142,signedonJanuary16,1991,whichrequiredallstate

agenciesandauthoritiestoimplementfarreachingandaggressivewastereductionandrecycling

practices

and

support

recycling

markets

by

buying

products

made

with

secondary

materials.

9

This

orderremainedineffectuntilitwassupersededbyExecutiveOrder4,signedonApril24,2008by

GovernorPaterson. ExecutiveOrder4challengesstateagenciesandauthoritiestosetanexample

forcommunitiesandbusinesseswithregardtosustainabilityinoperationsandgreenpurchasing.

Theorderrequiresagenciesandauthoritiestoappointasustainabilityandgreenprocurement

9AreportontheprogresstowardimplementingEO142isprovidedinAppendix3.1and

athttp://www.ogs.state.ny.us/bldgAdmin/facmod/3RsAnnualReport07_08.pdf.


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coordinatortoleadtheseefforts.Itspecificallyrequiresstateagenciestoimplementwaste

reduction,reuse,recyclingandcompostingprogramsandtopurchaseproductsthatmeetkey

greencriteria,includingrecycledcontent,wastereduction,recyclability,compostabilityand

extendedproducerresponsibilityrequirements.

Inthecontextofsolidwastemanagement,thestatealsoperformsthefollowingspecificfunctions:

1.PolicyDirection:Asinotherissueareas,theexecutivebranch,throughstateagencyleadership,

developsmaterialsandwastemanagementpolicyinitiativesandprovidesdirectionforthe

administrationofprogramstocarryoutexecutivepolicy.Toensurethatlocalsolidwaste

managementplansandprogramsareconsistentwithstatepolicy,DECprovidesguidanceand

directiontolocalgovernmentsby:

ArticulatingthestatesvisionformaterialsandwastemanagementthroughthestateSolidWaste

ManagementPlan,makingrecommendationsonhowthatvisioncanbeachievedandsettingthe

contextfortheactionsoflocalgovernmentsandotherstakeholders.

Reviewinglocalsolidwastemanagementplans(LSWMPs)andsolidwastemanagementfacility

permitapplicationstoensureconsistencywiththestatesolidwastemanagementhierarchy,which

emphasizesmaximizingwastereduction,reuse,andrecycling;

Reviewingpermitapplicationssubmittedbyoronbehalfofamunicipalityformostsolidwaste

managementfacilitiestoensureconsistencywiththeLSWMPineffectforthemunicipalityand

confirmingthatacomprehensiverecyclinganalysis(CRA)isinplacethatidentifiesthematerials

availableforrecyclingandthestrategiesthemunicipalitywillimplementtoreduce,reuse,recycle

andcompostthosematerials;

Reviewingpermitapplicationsformostsolidwastemanagementfacilitiessubmittedbyoronbehalf

ofnonmunicipalentitiestoensurethattheproposedprojectisconsistentwiththestatesolidwaste

managementpolicyandincludesanassessmentoftheproposedfacilityasitrelatestotheLSWMP

inwhich

the

facility

is

located

and

the

planning

units

from

which

solid

waste

is

expected

to

be

received;and

Placingconditionsonpermitstoprohibitmostsolidwastemanagementfacilitiesfromaccepting

solidwastethatwasgeneratedwithinamunicipalitythathasnotmetcoreplanningrequirements

byeithercompletingaDECapprovedCRAorLSWMPorbeingincludedinanothermunicipalitys

approvedCRAorLSWMP.

2.TechnicalAssistance:DECroutinelyprovidestechnicalassistancetolocalgovernment,theprivate

sector,andthegeneralpublicthroughseveralmethodsandmeans,including:thesolidwaste

managementfacilitypermittingprocess;publicinformationmeetings; planningandpolicy

guidance;materials

and

waste

management

information

and

data,

and

training.

ESD

serves

as

the

statesrepositoryforrecyclingmarketinformationandassistsbothpublicandprivatesector

recyclersinaccessinganddevelopingmarkets. Inthatcapacity,ESDhasdevelopedarecycling

marketsdatabase,availableatwww.empire.state.ny.us/recycle.
http://www.empire.state.ny.us/recyclehttp://www.empire.state.ny.us/recycle


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3.PublicEducation/Information:DECprovidesvaluableinformationandguidanceonsolidwaste

managementrequirementsandissuestothepublic. Todisseminateinformation,DECuseswritten

materials,itswebsiteandothervenues,suchasconferences,seminarsandmeetings.(Foralistof

availableresources,seehttp://www.dec.ny.gov/chemical/8801.html) ESDprovidestoolsto

businesses,includingEnvironmentalImprovementResourcesforBusinessesinNYS,adirectoryof

stateenvironmentalassistanceprogramsavailable

at

http://www.nylovessmallbiz.com/growing_/environm.htm.

4.FinancialAssistance:Since1987,DEChasprovidednearly$700millioninfinancialassistanceto

municipalitiesandbusinessesforreduction,reuse,recycling,composting,recyclingoutreachand

education,andsolidwastemanagementprojects. Fundingsourceshaveincluded:the1972

EnvironmentalQualityBondAct(EQBA);the1986EQBA;theKansasStripperWellSettlement;the

PetroleumOverchargeRestitutionAct;theSolidWasteManagementAct;theEnvironmental

ProtectionFund(EPF),andthe1996CleanWater/CleanAir(CW/CA)BondAct. Today,theEPFisthe

onlyongoingstateassistancefundingsourceforsolidwastemanagementprojects. Otherstate

agencieshavealsoprovidedfinancialassistanceforwasteandrecyclingrelatedprojects.

Forexample,landfillclosureprojectshaveobtainedloansfromtheEnvironmentalFacilities

Corporation(EFC)throughtheStateRevolvingFund,andESDandNYSERDAprovidefinancial

assistanceforcertainwastereduction,recycling,andorganicsrecoverybusinesses. (Formore

informationonstatefinancialassistanceprograms,seeSection6.)

5.StatewidePlanning:DECisresponsibleforpreparingandupdatingtheStateSolidWaste

ManagementPlan(StatePlan)inaccordancewiththerequirementsofEnvironmentalConservation

Law(ECL)270103. ThestatePlanisintendedtoprovidedirection,guidanceandinformationon

solidwastemanagementandidentifypolicyrecommendations. Theupdateprocessdictatedinthe

ECLmakesthePlanalivingdocumentthatwillchangeasnewinformationbecomesavailableand

asplanningunitsidentifybothobstaclesandopportunitiesthroughimplementationoftheir

LSWMPs.

Thisiterative

process

is

informed

by

stakeholder

input,

feedback

from

planning

units,

LSWMPcompliancereportsandmodifications,andotherinformationavailabletothestate. By

monitoringlocalprogramexperiences,DECcangaugeprogresstowardstatewidegoalsand

objectivesandidentifytheneedfornewprogramstohelpovercomeobstaclesimpedinglocal

planningobjectives.

6.RegulatoryOversight:DECsroleasregulatoristhebackboneofitssolidwastemanagement

program. Throughregulationsandtheirenforcement,DECensuresthatlegalrequirementsare

upheldandthatpublichealthandtheenvironmentareprotected. ThroughitsPart360regulations,

DECregulatestheconstructionandoperationofsolidwastemanagementfacilitiestoensurethey

areprotectiveofpublichealthandtheenvironment.ThePart360regulationsalsodictate

requirementsforlocalsolidwastemanagementplanning.Theseregulationscanbeupdated

periodicallytoreflectnewlegalrequirementsanddevelopmentsintheindustry. Toenforceits

regulationsandpermitconditions,DECplacesenvironmentalmonitors(DECemployeesfundedby

permittees)atmanypermittedsolidwastemanagementfacilities.Wheremonitorsarenot

available,DECstaffcarryoutinspections,compliancecounselingandenforcement,sometimeswith

theassistanceofenvironmentalconservationofficersandtheStateAttorneyGeneralsOffice.
http://www.dec.ny.gov/chemical/8801.htmlhttp://www.nylovessmallbiz.com/growing_/environm.htmhttp://www.nylovessmallbiz.com/growing_/environm.htmhttp://www.dec.ny.gov/chemical/8801.html


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3.2.2 TheRoleofLocalGovernments

TheimplementationofsolidwastemanagementprogramsinNewYorkStatehashistoricallybeen

theresponsibilityoflocalgovernment. Thedaytodayactivitiesatthecoreofmaterialsandwaste

management(e.g.,separation,collection,recycling,transport,storage,transfer,anddisposal)occur

atthelocallevel,eitherbythelocalgovernmentsthemselvesorthroughcontractsoragreements

withprivateentities. Aspartofthatrole,municipalitiesmay:

acquirelandforwastemanagementanddisposalfacilities; constructsolidwastemanagementfacilities; provideorcontractforwasteandrecyclablescollectionservices; conductfacilitysitingstudies; manageapplicationprocessesforstatepermits; leadthestateenvironmentalqualityreview(SEQR)process; operateorcontractfortheoperationoffacilities; ensurecomplianceandreporting; enactflowcontrolordinances(seedetailsbelow);and educatethepublic.

Somelocalresponsibilityisspecificallyassignedunderstatelaw,mostnotablytheActs

requirementsforlocalitiesinthestatetohavemandatorysourceseparationlawsorordinancesin

placeandtodevelopandmaintainLSWMPsiftheyseekpermitsforsolidwastemanagement

facilities. UndertheAct(throughamendmentstoGeneralMunicipalLaw120aa),municipalities

weretorequiresourceseparationofrecyclablesinallgeneratingsectors(e.g.,residential,

commercial,institutional

and

industrial)

no

later

than

September

1,

1992.

Thus,

the

law

placed

the

responsibilityformandating,designingandimplementingrecyclingprogramsonlocalgovernments

andtheplanningunitstheycreated.Somelocalgovernmentsdonothavetheexpertiseorresources

toadequatelycarryoutallofthefunctionsdictatedintheactandhavereliedonsupportfromthe

privatesector(seesection3.2.3).

TheActalsoencouragedlocalgovernmentstojointogethertoformsolidwastemanagement

planningunitsandcreateLSWMPstoguidetheirprogramsandensurealignmentwiththestates

solidwastemanagementhierarchy10. Mostofthe64planningunitsinthestatefunctiononthe

countylevel,butseveralupstateandwesternNewYorkplanningunitsincludemultiplecountiesor

solidwastemanagementauthorities,whilesomedownstateunitsareorganizedonthecitylevel(in

NewYorkCityandNassauCounty)andthetownlevel(onLongIsland).

10Aplanningunitmustconsistofacounty;twoormorecountiesactingjointly;alocalgovernmentagencyor

authorityestablishedpursuanttostatelawforthepurposeofmanagingsolidwaste;anycityinthe

countyofNassau,ortwoormoreothermunicipalitieswhichDECdeterminestobecapableof

implementingaregionalsolidwastemanagementprogram.


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Since1990,60of64planningunitshavehadDECapprovedLSWMPs,andtwooftheremainingfour

havehadCRAsapprovedbyDEC. TheplanningperiodsfortheLSWMPshavevariedfrom10years

to20years. Asdiscussedmorefullylaterinthissection,LSWMPimplementationhasbeen

inconsistentacrossthestate.

AsevidencedbythedatainTable3.1,NewYorkStateisatacriticalpointinlocalsolidwaste

managementplanning,withmorethan70percentoftheplanningunitsinthestaterequiredto

submitnew

or

modified

plans

in

the

next

two

years.

In

at

least

eight

planning

units,

one

or

more

municipalitieshaveceasedactiveparticipationandhavenotjoinedanotherplanningunitor

developedaCRA.WhilethelackofaCRAmakesthemtechnicallyoutofcompliancewiththestates

regulatoryrequirements,theserequirementsareonlyenforceableinconjunctionwithapermit

actionorcondition. Foraprofileofeachplanningunit,seeAppendix3.3.

TABLE3.1

LSWMPStatus Number Percent ofTotal

NeverApproved 4 6%

Expired 7 11%

Expiration2009 4 6%

Expiration2010 30 47%

PlansExpiringafter2010 19 30%

Total 64 100%

3.2.3 TheRoleofthePrivateSector

Formorethanacentury,therehasbeenavibrantprivaterecyclingindustryfocusedontherecovery

ofpaperandmetals. Thisvitalrolecontinuestodaywithagreatlyexpandedmenuofmaterials

processedbyprivatecompaniesintomarketablecommoditiesandproducts. Virtuallyallmunicipal

recyclingprogramseventuallydependupontherecyclingindustryfortheultimateprocessingand

marketingofrecoveredmaterials. Therecyclingindustryhasdevelopedandimplemented

innovativestrategiesfortheprocessingandmarketingofmaterialsfromsuchsourcesaselectronics

scrap,tiresandendoflifevehicles.

Beyondthe

recycling

industry,

the

role

of

the

private

sector

has

grown

during

the

last

two

decades

ascompaniesincreasinglyprovideintegratedsolidwastemanagementservicestoplanningunits,

includingcollection,processinganddisposalofbothrecyclablesandwaste.Insupportofthose

functions,privatecompanieshavemadesignificantinvestmentsincollection,transportationand

disposalcapacityinNewYorkState.Infact,privatecompaniesmanagemostofthewasteinthe

state,eitherintheirownfacilitiesorbyoperatingmunicipallyownedfacilities,andtheyarethe

primarymechanismfortransportingwasteandmaterialsbothinandoutofstate.



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Assuch,theirroleisasignificantone,andtheirengagementiscriticaltothestatessuccessin

movingBeyondWaste.

Localgovernmentinteractionwithandoversightofprivatesectorcollectors,processorsandfacility

operatorsvariesthroughoutthestate. Somecommunitiesheavilyregulatetheactivityofthe

privatewasteindustry,usingtoolssuchasflowcontrol,contracts,registration,permitting,and

enforcement,whileothersprovidelittleoversight.

Althoughthestatesoversightofprivatewastecollectionservicesisminimalonlytransportersof

industrialwaste,regulatedmedicalwaste,andseptageareregulatedby6NYCRRPart364DEC

regulatessolidwastemanagementfacilities,whethertheyareoperatedbypublicorprivateentities,

throughthe NYCRRPart360regulations. Toensurecompliancewithregulatoryandpermit

requirements,someprivateoperatorsofpermittedsolidwastemanagementfacilitiesarerequired

tofundaDECmonitortooverseetheiroperations.

Inadditiontodaytodaywastemanagementactivities,localgovernmentsalsoincreasinglyrelyon

privateconsultingandengineeringfirmstosupporttheirprogramsandfacilitiesthroughplanning,

design,andconstruction. Furthermore,privatecompaniesarealsoconsumersofproductsand

packagingand

generators

of

waste.

In

their

role

as

consumers,

businesses

and

industries

can

help

todrivethemarkettowardlesswastefulandmorerecyclableproductsandpackaging. Forexample,

manylargecompanieshavebegunto requireminimalpackagingand thatproductsandpackaging

bedevelopedwithouttheuseoftoxicandhazardouschemicals. Intheroleofwastegenerator,

businessesandindustriesmustinstitutesourceseparationprogramsinconformancewithlocallaws

orordinancesandshouldsimultaneouslyworktoinstillarecyclingethicamongtheworkforce.

3.2.4 TheRoleofNewYorkStatesResidents

Nointegratedsolidwastemanagementprogramcansucceedwithouttheactiveengagementofthe

citizensof

the

state.

Indeed,

every

New

Yorker

is

affected

by

and

involved

in

materials

and

waste

management. Forwastereduction,recyclingandorganicsrecoveryprogramstosucceed,thepublic

mustparticipate. ThechoicesNewYorkersmakeinwhattheybuy,howtheyuseitandhowthey

disposeofitcanhavesignificantimpactsonmaterialsmanagementwastepreventingpurchasing

sendsasignaltocompaniesthatconsumersdontwantwaste;gettingmaximumuseandreuseout

ofhouseholditemsreducesmaterialsuse,andchoosingtorecycleorcompostreduceswaste.

Membersofthepubliccanalsoplayanimportantroleinlocalmaterialsandwastemanagement

planningandcaninfluencethedirectiontakenbytheirlocalelectedofficials. Thelocalplanning

processencouragesamplepublicinvolvementandparticipation.


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3.3 INDUSTRYCONSOLIDATIONANDFACILITYPRIVATIZATION

AsanticipatedandencouragedintheECL,theprivatesectorhasplayedanincreasinglysignificant

roleinprovidingsolidwastemanagementservicestoplanningunits. Theimplementationof

integratedsolidwastemanagementsystemshasalsocreatedenhancedopportunitiesforincreased

involvementoftheprivatesectorinvariousaspectsofmaterialsandwastemanagement.

Atthesametime,anationaltrendofsignificantconsolidationwithinthesolidwastecollectionand

disposalindustryemerged. Fewerlargecompanieshavegrowntodominatetheindustry,limiting

thecompetitioninwhatwasonceaverydiversefieldofplayers. However,ascompaniesgrow,

theirinvestmentcapabilityalsogrows,facilitatinggreaterexpansion,betterfacilities,advancement,

andopportunity.

Asaresult,theindustryhasestablished:

moretechnologicallyadvancedandconsistentlyoperatedandmaintainedfacilities;and greaterlongterminvestmentsinrecyclablesprocessing,wasteprocessinganddisposal

infrastructure.

Privatizationof

solid

waste

management

facilities

(i.e.,

private

ownership

or

operation

of

facilities

thatprovideapublicservice)hasalsobecomemuchmorecommonplace duringthelast20years

somuchsothatitisnowsometimesdifficultforlocalgovernmentownedsolidwastefacilitiesto

compete. Privatizationcanbeanattractiveoptionforplanningunitsbecauseitallowsthemto

providevariousservicesfortheirconstituencywithoutincurringthelongtermindebtednessand

riskassociatedwithalargecapitalprojectortheongoingoperationalcostsandmanagement

burdenassociatedwithoperatingmunicipalprograms. However,fullprivatizationwithoutthe

necessarysafeguardsobtainedthroughcompetitivenegotiatedprocurementcanhavenegative

consequences,essentiallyplacingthemunicipalityinapositionofdependencyonaprivatecompany

inamonopolysituation,therebylimitingitsoptions.

Recognizingboththepositiveandnegativepotentialofprivatization,somelocalgovernmentshave

usedahybridapproachwherebythematerialsandwastemanagementinfrastructureisownedby

thepublicsector,andoperationsarecontractedouttotheprivatesector.NewYorkCitysLSWMP

restsonthispublic/privatepartnershipapproachforitsrecyclingandwastetransferfacilities. This

typeofstructurereducestherisktothepublicentitybyensuringthecapacityisalwaysavailable,

whileofferingthebenefitsandefficiencyofprivateoperations.

Whetherprivatizinganentiresystemorjustfacilityoperations,localgovernmentscanmaximizethe

benefitsofprivatizationandminimizetheriskofmonopolybyusingcompetitiveprocurement

procedures,developingrigorouscontractingprocessesandcarefullynegotiatingcompensation

rates.


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3.4 OVERSEEINGPRIVATELYOPERATEDWASTEMANAGEMENTSERVICES

Thereareseveraltoolsavailabletolocalgovernmentstohelpensurethatsolidwasteservices

providedbytheprivatesectorareconsistentwithandsupportiveofwastereduction,reuse,

recyclingandorganicsrecoverygoalsandthesolidwastemanagementinfrastructuredevelopedby

thelocality. Thosetoolsincludeflowcontrollegislation,registrationorpermittingprograms,and

contractualrequirements.

Flowcontrolreferstolawsorordinancesenactedbylocalgovernmentstodirectorotherwise

regulatethemovementofsolidwastegeneratedwithintheirjurisdictionbydesignatingtransfer,

recycling,disposal,orotherfacilitiesatwhichthematerialwillbemanaged. Flowcontrolcanbean

importantfinancialandplanningtooltoensuredeliveryofsufficientsolidwastetosatisfydebt

paymentsforcapitalintensivefacilitiesandtogeneraterevenuethatcansupportwastereduction

andrecyclinginitiatives. Italsoensuresthatmaterialsaredirectedtoafacilitythatthemunicipality

determinesissafeandapproporiateforhandlingitswaste. Whileimplementationofflowcontrol

ordinanceshasbeenhamperedbylegalchallenges,in2007theUSSupremeCourtheld,inUnited

Haulersv.OneidaHerkimerSolidWasteManagementAuthority,thatflowcontrolordinancesare

constitutional

if

used

to

support

an

integrated

solid

waste

management

program.

(For

draft new york state solid waste management plan

Documents