draft new york state solid waste management plan
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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.
7 BeyondWastePlan DRAFT
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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13 BeyondWastePlan DRAFT
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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16 BeyondWastePlan DRAFT
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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18 BeyondWastePlan DRAFT
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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20 BeyondWastePlan DRAFT
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
22 BeyondWastePlan DRAFT
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23 BeyondWastePlan DRAFT
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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26 BeyondWastePlan DRAFT
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.
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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.
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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.
29 BeyondWastePlan DRAFT
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30 BeyondWastePlan DRAFT
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
top related