Title
Recommendation to Adopt the 2025 Zero Waste Implementation Plan Update.
This project is categorically exempt from further environmental review pursuant to California Environmental Quality Act (CEQA) Guidelines Section 15308 (Actions by Regulatory Agencies for Protection of the Environment). (Public Works 26141630)
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To: Honorable Mayor and Members of the City Council
From: Adam W. Politzer, Interim City Manager
EXECUTIVE SUMMARY
In October of 2024, City Council received an update on the preparation of the draft 2025 Zero Waste Implementation Plan (2025 ZWIP), including community engagement efforts. During the study session, City Council provided feedback on the draft 2025 ZWIP focus areas as well as proposed priority programs. Consistent with City Council feedback, staff completed the final 2025 ZWIP (Exhibit 1) including the diversion and cost analysis which informs the recommended Zero Waste programs. This report also covers the results of the statistically valid resident survey which was performed as part of the community engagement for the project. Unlike prior ZWIPs, the 2025 ZWIP does not include a specific goal date for Alameda to achieve Zero Waste. It instead focuses on the need for ongoing culture change and equitable investment in needs across segments of Alameda. Staff recommends the City Council adopt the 2025 ZWIP. Any associated budget requests for the programs included in this 2025 ZWIP will be brought back to City Council as part of an upcoming budget process.
BACKGROUND
As a leader in sustainability, the City Council adopted its first ZWIP in October 2010. The 2010 ZWIP provided a set of recommendations and guidance for the City of Alameda (City) to achieve its goal of zero waste: 89% diversion of material from the landfill by 2020. Zero waste is a philosophy and design framework that promotes not only reuse, recycling, and conservation programs, but also, and more importantly, emphasizes sustainability by considering the entire lifecycle of products, processes, and systems.
The ZWIP was updated in 2018. At that time, the City had achieved an 81% diversion rate. To continue towards zero waste, five key strategies were proposed in the 2018 ZWIP:
1. Support Zero Waste Culture in Alameda
2. Conduct Targeted Technical Assistance with Commercial and Multi-Family Sectors
3. Create a Food Recovery Program and Enhance Organics Management
4. Update Alameda’s Construction and Demolition Debris Recycling Ordinance and Conduct Outreach
5. Expand High Diversion Franchise Agreement
On October 17, 2023, staff provided City Council with an update on progress made implementing these five strategies of the 2018 ZWIP and reported an 81% diversion rate as of calendar year 2022. Staff Report 2023-3415 <https://alameda.legistar.com/LegislationDetail.aspx?ID=6374132&GUID=CBFBBDBA-9B5A-426D-AE6F-D4E80F44EFC8&Options=ID%7CText%7C&Search=zero+waste&FullText=1>
Further in-depth analysis was needed to assess the effectiveness of the 2018 ZWIP and determine Alameda’s continued path for achieving zero waste. City Council approved moving forward with the next ZWIP update and awarded HF&H Consultants, LLC (HF&H) an agreement to complete the work.
On October 15, 2024, staff presented an initial update on the project to City Council.
Staff Report 2024-4426 <https://alameda.legistar.com/LegislationDetail.aspx?ID=6884830&GUID=BA004C6A-6D63-4018-BD77-1B05C2CFDDEB&Options=ID%7CText%7C&Search=zwip&FullText=1> Below is a summary of the information provided to City Council in October 2024.
A main objective of the 2025 ZWIP update is to further integrate zero waste within the Alameda community and into City plans and policies (e.g. General Plan, the Climate Action and Resiliency Plan (CARP) and Alameda’s Diversity, Equity, Inclusion and Belonging initiatives). This aims to create a holistic, integrated, long-term plan for Alameda, with a focus on moving beyond diversion to sustainability. The ZWIP update was structured to have a menu of mid- and long-term programmatic options that balance goals and costs. The update includes a cost-benefit analysis, prioritization of programs and policies, and evaluation of phased implementation to future-proof Alameda in achieving zero waste. Having a menu of options will allow the City to be flexible when circumstances dictate a short-term change in direction. Before recommending programs and their impact, staff needed to first hear from the community to understand challenges and opportunities in moving Alameda towards zero waste.
Community Engagement
The 2025 ZWIP Update included significant community engagement with a focus on equity and inclusion to further build on Alameda’s zero waste culture and remove barriers that restrict certain populations from participating. Engagement activities happened over the summer of 2024 and included community meetings, focus groups, listening sessions and presentations to the business community. These engagement activities are detailed in Section 3 of the 2025 ZWIP (Exhibit 1).
A statistically valid resident survey was conducted in September 2024. In keeping with the project’s equity and inclusion goals, the objective of this survey was to provide the City with an accurate and unbiased snapshot of the community’s attitudes towards zero waste policies and programs. At the time of the October 2024 City Council reporting, survey results were still being compiled, and survey results and analysis were slated to be included in the final 2025 ZWIP and used to inform program development.
The below listed themes and priorities were consistent from the community throughout the engagement process.
• Increase education and outreach to empower residents to successfully implement zero waste practices.
• Remove barriers to participation in current recycling programs and increase opportunities for diversion of more materials.
• Use both incentives and enforcement to ensure accountability.
• Provide more opportunities for reuse.
On October 15, 2024, City Council received an update on the preparation of the draft 2025 ZWIP, including community engagement efforts. During the study session, City Council provided feedback on the draft 2025 ZWIP focus areas as well as proposed priority programs. There was overall support for the 2025 ZWIP and City Council did not indicate any major changes needed for the proposed focus areas or priority programs. It was highlighted that there is an opportunity for cross-connection between the ZWIP efforts and those of the CARP, as well as integration with Alameda’s youth and existing Alameda Unified School District (AUSD) programs such as the Green Schoolyards initiative. Additionally, feedback highlighted the need to prioritize ongoing education and outreach and provide specific support to the muti-family sector. Ensuring there is sufficient capacity and availability for the bulky program was identified as a priority, as well as the desire to focus on bulky item collection versus drop off events. Finally, support for additional efforts around illegal dumping was highlighted, including the need for enforcement of the program.
DISCUSSION
To accomplish the Zero Waste goal set forth in the first two ZWIPs and continued in this ZWIP update, Alameda must achieve 89% diversion from landfill. At the time the draft 2025 ZWIP was prepared, the 2022 diversion data was used to inform analysis and program recommendations. Alameda’s 2022 diversion rate was 81%. Since the preparation of the report, Alameda’s 2023 diversion data has been calculated and the City’s rate is 80%.
The final 2025 ZWIP presented tonight (Exhibit 1) aims to close the gap from the existing diversion rate of 80% and the goal of 89% diversion of material from the landfill.
Residential Survey Results
Following City Council’s feedback in October 2024, staff completed analysis of the statistically valid survey. A random sample of 350 of Alameda’s residents participated in telephone and online surveys over a period of 14 days. Demographic and geographic characteristics of survey respondents were carefully monitored during the data collection phase to ensure the final sample profile reflects the demographic makeup of the community, which supported the equity goals of the project. The survey results helped the staff understand the program and policy needs of all residents, including those that may not have been able to participate in the community meetings or focus groups, those that may be participating in zero waste but are not account holders, and those that have not been previously engaged or had a chance to weigh in. Understanding how people view and interact with zero waste efforts is a critical component for designing effective programs that will reach those not already active within the zero-waste community.
The results of the survey are presented in Attachment B to the 2025 ZWIP. In summary, a majority of Alameda residents support Alameda’s Zero Waste goals but relatively few have heard of ZWIP. Further, there is support for protecting the environment and conservation, both of which are highly motivating. However, confusion about how to recycle less common materials and how to sort are barriers that result in more materials being thrown away/sent to landfill. Finally, residents are more supportive of to-go ware that is compostable versus restaurants providing reusable containers. Survey results informed the development of the final programs included in the 2025 ZWIP.
Alameda’s Diversion Rate and 2025 ZWIP Goal
The 2025 ZWIP proposes maintains the 89% diversion goal from prior ZWIPs, however it is proposed that Alameda’s Zero Waste work now continue in perpetuity. As such, the 2025 ZWIP does not propose a specific date to achieve the goal but rather continued investment in and evaluation of programs to sustain the effort. As the City closes in on the last percentage points to achieving zero waste the work will need to focus on culture change and its many nuances. The City will also need to continue to navigate and adapt to the evolving regulatory environment of waste management. The 2025 ZWIP commits staff to provide regular reporting to City Council, stakeholders and the community on program implementation and progress towards the 89% goal.
The 2025 ZWIP proposes 12 programs which are expected to yield a 4.46% increase in Alameda’s diversion at program maturity. These programs are designed specifically for Alameda’s needs and work in tandem with the broader regulatory climate. The recommended programs are essential to the culture change needed to progress Zero Waste in the City and support the key values set forth in other City Plans including equity, access, and empowerment of residents and the community. These programs are recommended as essential to Alameda’s Zero Waste future.
Additional diversion may be obtained with the changing regulatory landscape in California regarding waste. For example, the Plastic Pollution Prevention and Packaging Producer Responsibility Act (Senate Bill 54) is anticipated to significantly reduce single-use plastic waste by making producers financially and logistically responsible for packaging. While new legislation is largely positive and will assist towards obtaining the 89% diversion rate, the legislation may also have impact on Alameda’s programs and how they are implemented. The 2025 ZWIP is designed to be adaptable to these changes.
2025 ZWIP Programs
The 2025 ZWIP presents 12 programs to be implemented as the next phase of Alameda’s Zero Waste work. Four (4) of the 12 programs, as presented to City Council in October 2024, continue to be designated as priority programs that will be implemented first. Programs in these areas target materials that are difficult to recycle and dispose of. Additionally, these programs support equity goals and are responsive to community feedback to extend programs to those with less access. The four priority programs are noted in the description of the 12 programs below.
The presented programs align with the four focus areas presented to City Council in October 2024: Behavior Change, Waste Reduction, Reuse, Construction and Demolition. The primary focus area for each program is noted below.
Program 1: Conduct a City Zero Waste Rebrand
This program will include hiring a design firm to develop a new brand profile for the program (e.g., logo, colors) and template materials, as well as developing robust public education and outreach materials. This will also update current education materials and the Zero Waste Program webpage with the new branding, as well as develop a suite of new public education and outreach materials (e.g., brochures, guides, flyers, videos) that can be distributed as part of the other recommended programs. The program also includes collaborating with third parties, such as working with Alameda County Industries (ACI) to update their education materials and identifying influential community organizations for collaborations on education campaigns and messaging. Focus Area: Waste Reduction
Program 2: Conduct a Multi-Family Dwelling Bulky Program CBSM Campaign (Priority)
This program will conduct a Community Based Social Marketing (CBSM) campaign targeted at increasing awareness of and participation in the bulky item collection program at multi-family properties. This campaign will also serve as the first CBSM plan developed as part of the City’s ongoing CBSM program described below in Program 3. Focus Area: Behavior Change
Program 3: Conduct Annual CBSM Campaigns
This program will conduct on-going CBSM campaigns to identify the barriers and benefits to participation in waste reduction programs and offer targeted education to various communities across the City. The first CBSM campaign will be targeted at multi-family properties, as described above in Program 2. After that, the focus of these campaigns will shift year to year based on the specific needs of each target audience identified through CBSM processes. Targeting the multi-family sector first will help increase diversion and address the unique barriers and benefits of this particular sector, as well as create positive ripple effects to all other programs by increasing participation and fostering a culture of sustainability with residents of the City. The program will include conducting an annual evaluation of the prior year’s CBSM campaign to inform the design of the next year’s campaign and a standard operating budget to pay for the staffing and direct costs of implementing the identified campaign. The size of the CBSM campaigns may vary depending on the targeted behaviors and the operating budget may cover one or multiple CBSM campaigns each year. Focus Area: Behavior Change and Waste Reduction
Program 4: Develop Guidelines for Permitted City Events
This program will implement a zero waste program for special events that require a City permit to operate (approximately 42 per year). These events can serve as a role model for the community. Efforts will include but are not limited to developing policies and guides, which may address areas such as source reduction, use of sustainable vendors, education and signage, acceptable food ware alternatives and encouragement for reuse. The program will also require more robust reporting to allow the City to monitor program progress over time and identify specific areas of improvement. The City will provide infrastructure and education materials, monitor events, and provide on-going support with zero waste event practices. Focus Area: Waste Reduction
Program 5: Develop Zero Waste Policies for City Departments
This program will develop internal staff policies to encourage zero waste for City operations and support implementation of the policies through training and monitoring. The policies will be developed in a manner that allows for variation by department, based on specific needs. This program includes Zero Waste Program staff conducting interviews with each department and developing department-specific action plans to implement policies. For example, some departments may require a dishwasher for reusable food ware programs whereas other departments may focus on solutions such as removing desk-side trash containers to encourage use of sorting stations and reusable materials. Focus Area: Waste Reduction
Program 6: Provide Small Business Support and Resources
This program will provide additional resources and support specifically to small businesses to implement zero waste practices within their business operations. This will include reinitiating technical assistance visits conducted by a third-party contractor. These visits will be targeted at small businesses rather than large generators, with a greater focus on zero waste practices and reuse. The City can develop tools such as a “Zero Waste Start-Up Kit” for local businesses as part of this assistance. The technical assistance will also include general outreach such as providing educational materials, as well as in-person engagement, and exploring ways to engage with businesses in their opening phase (versus post-opening). In an effort to continue to build positive relationships with small businesses, this program will also recognize businesses that are succeeding at zero waste practices, such as being featured on the City’s website or social media or receiving awards or decals that can be displayed in the businesses’ windows. Focus Area: Behavior Change
Program 7: Develop a Grant Program for Take Away Reusable Cups
This program uses a phased-in approach to promoting reusables, with an initial focus on developing a grant program to provide funding to small businesses to transition to reusable to-go cups. This approach aligns with the feedback received during the engagement process, which included strong support for reusables from stakeholder meetings but lower support for reusables from survey results. This variation in support indicates that a slower transition to reusable policies that focus first on developing broad based support for the idea of reuse infrastructure may be necessary for widespread effectiveness. The proposed grant program will include awarding 10 grants of $5,000 each per year over a span of five years to small businesses. This funding can be used to develop reusable cup programs, such as partnering with reusable cup return services. This program will also include development of education and outreach materials about the grant program. After the first and third year of the program, staff will evaluate the program to determine whether it should be expanded to other reusable materials or service types. Focus Area: Reuse
Program 8: Expand Construction and Demolition (C&D) Program
To increase diversion of construction materials from the landfill, this program expands the existing C&D program to smaller C&D projects (approximately 100 new projects). In addition, the expanded program will have increased education to support projects and include monitoring compliance. It is important to note that small construction projects have unique features and barriers compared to larger projects, such as generating less material and having less space at project sites for large debris boxes. This program will include a “Fast Track” option for small construction projects that decide to have ACI collect their mixed C&D box Focus Area: Construction & Demolition
Program 9: Conduct Enforcement for Illegal Dumping (Priority)
This program will enhance monitoring of illegal dumping, including installing cameras and signage at key illegal dumping hot spots and conducting follow-up enforcement in response to violations. Based on analysis of illegal dumping hot spots from the City’s current data, the program anticipates that 20 cameras will be installed, including lighting and informational signage about not illegally dumping. In addition to enforcement and monitoring, illegally dumped materials that are collected will be processed to recover reusable and recyclable materials. While the program’s focus is on behavior change, once materials have already been illegally deposited the City can support its diversion goals by processing this unique material stream that would otherwise be sent to the landfill. This program is designed to be implemented in tandem with the bulky item program described in Program 2 that provides education regarding collection alternatives to common illegally dumped materials. Focus Area: Waste Reduction
Program 10: Pilot an Education and Resource Program for Alameda’s Low-Income Community (Priority)
This program will solicit services for a third-party to develop and implement strategies that increase reuse and recycling opportunities for the City’s low-income community. The program will initially be implemented as a pilot program, requiring further evaluation prior to large-scale implementation. An example of this type of partnership is the City of Alameda Housing Authority’s partnership with LifeSteps, who provides educational and support services (workshops, educational services, after school programs, community building, and case management) for low-income and senior populations. This program will focus on identifying opportunities to increase the affordability of and access to zero waste programs (e.g., hosting free repair and upcycling workshops and offering additional bulky item disposal options). Focus Area: Waste Reduction
Program 11: Pilot a Cash for Trash Program (Priority)
This program will pilot a “Cash for Trash” program, similar to the program conducted in the City of San Jose. The City’s Cash for Trash program will establish one or more drop-off sites where unhoused residents can collect and return bags of trash and receive compensation for each bag of trash collected. Staff will solicit for services from a third-party organization to conduct a one-year pilot program and subsequently evaluate whether the program should be extended and/or modified. Focus Area: Waste Reduction
Program 12: Develop and Increase Resources for Existing Reuse Markets
The City currently has existing services for reuse, such as ACI’s reusable materials collection under its franchise agreement. This program allows residents to separate, label, and set out reusable items for ACI to collect and deliver to a sorting and donation facility, as part of the annual bulky and on-call waste collection services. Additionally, local community organizations support reuse through repair events and upcycling programs. However, these markets are often underutilized if not properly advertised. Historically, the City has distributed StopWaste resources as an educational tool for businesses and residents regarding reuse, such as StopWaste’s “Re:Source” guide. While this has been beneficial, there is an opportunity to go further by making resources specific to Alameda so residents and businesses are empowered to reuse locally. This program will develop a comprehensive guide to existing reuse markets and businesses within the City. Focus Area: Reuse
Cost and Diversion Analysis
The costs and diversion analysis figures presented in section 4.B of the 2025 ZWIP (Exhibit 1) are estimates. Actual implementation costs and associated program diversion will depend on the way the programs are implemented.
City Council’s consideration of the 2025 ZWIP tonight does not include any action to fund the programs in the report. If City Council adopts the 2025 ZWIP a budget for each selected program will be brought for City Council approval as part of the City’s budgeting process. The City has several potential revenue sources to consider for future budgeting including the City’s franchise agreement, Alameda County Source Reduction and Recycling Initiative of 1990 (Measure D) funding, and the General Fund. Additional funding sources and considerations are further described in Section 4.C of the 2025 ZWIP.
ALTERNATIVES
• Adopt the 2025 ZWIP as presented.
• Provide revisions to adopt an amended 2025 ZWIP.
• Do not adopt the 2025 ZWIP and provide additional direction to staff.
FINANCIAL IMPACT
There is no financial impact to the City from adopting the 2025 ZWIP. Programs recommended by the ZWIP will be brought to City Council separately for funding approval.
MUNICIPAL CODE/POLICY DOCUMENT CROSS REFERENCE
This action is consistent with Alameda Municipal Code Chapter 21, Solid Waste and Recycling and the City of Alameda CARP (2019), the General Plan (2022), ZWIPs (2010, 2018), and the City’s Strategic Plan (2023) for Project CC9 to update the Zero Waste Implementation Plan and provide public technical assistance.
ENVIRONMENTAL REVIEW
In accordance with CEQA, this project is categorically exempt from further environmental review pursuant to CEQA Guidelines Section 15308 (Actions by Regulatory Agencies for Protection of the Environment). The ZWIP is intended to guide the City in the reduction in waste generation and greenhouse gas emissions, thus protecting the environment.
CLIMATE IMPACT
Implementation of the ZWIP will further allow Alameda to divert waste, including organics, from the landfill, which reduces methane emissions. The importance of reducing methane emissions from municipal waste sent to the landfill is codified in California’s Senate Bill 1383 passed in 2016.
RECOMMENDATION
Adopt the 2025 Zero Waste Implementation Plan Update.
Respectfully submitted,
Erin Smith, Public Works Director
By,
Liz Acord, Public Works Coordinator
Financial Impact section reviewed,
Ross McCarthy, Finance Director
Exhibit:
1. 2025 Zero Waste Implementation Plan (ZWIP)