HomeMy WebLinkAboutMINUTES - 03201990 - EA.1 TEA
TO; E .sE..t
BOARD OF SUPERVISORS
FRoM: Environmental Affairs Committee
Supervisor Tom Torlakson, Chair
DATE: Supervisor Nancy Fanden
March 20, 1990
SUBJECT; ST'9 C'OUI1'C�
Report on the Household Hazardous Waste Program
I
SPECIFIC REQUEST(S) OR RECOMMENDATION(S) & BACKGROUND AND JUSTIFICATION
RECOP94ENDATION
1. Accept the report from the Joint Committee on Household
Hazardous Waste on the implementation of Phase I of the
Household Hazardous Waste Program.
2. Encourage the curbside collection of used oil with the
understanding that this type of program' s success will vary
from community to community, and that the use of a curbside
collection program for used oil should be decided by
individual communities.
BACKGROUND
The staff -to the Joint Committee on Household Hazardous Waste
presented the attached report to the Environmental Affairs
Committee at our March 12, 1990 meeting. The Committee discussed
the relative benefits of curbside collection of used oil, as well
as some of the concerns. Although concerns (e.g. liability,
spillage) were expressed regarding curbside collection of used
oil, programs such as the one operated by the City of Mountain
View have been extremely successful and have not experienced any
of these problems. It - is recognized that the decision to
implement curbside collection of used oil should be on a
case-by-case basis, _based on the specifics of -individual
communities. The Household Hazardous Waste Committee has
discussed the possibility of - curbside collection only with
respect to used oil. The _Committee is not contemplating the
collection of other types of household hazardous waste at
curbside.
The Household Hazardous -Waste Committee is also, promoting a
service station network and a marina network for used oil
collection. In addition, :;-the Committee is investigating
incentives for-' service stations to accept used motor oil from the
public.
CONTINUED ON ATTACHMENT: YES SIGNATURE:
RECOMMENDATION OF COUNTY ADMINISTRATOR X RECOMMENDATION OF BOARD COMMITTEE
APPROVE OTF{Eg
SIGNATURE(S): Supervisor Tom Torlakson Chair Su erv's r Nancy Fanden
ACTION OF BOARD ON Match 20, 1990 APPROVED AS ECOMMENDED X OTHER
VOTE OF SUPERVISORS
1 HEREBY CERTIFY THAT THIS IS A TRUE
X UNANIMOUS (ABSENT ) AND CORRECT COPY OF AN ACTION TAKEN
AYES: NOES. AND ENTERED ON THE MINUTES OF THE BOARD
ABSENT: ABSTAIN: OF SUPERVISORS ON THE DATE SHOWN.
Community Development (Orig. Dept.)
=c: Joint Committee on Household Hazardous Waste ATTESTED IJ 9 O_ _
(via Health Services Dept.) PHIL BATCHELOR. CLERK OF THE BOARD OF
Cities (via CDD)
Solid Waste Haulers (via CDD) SUPERVISORS AND COUNTY ADMINISTRATOR
Sanitary Districts (via CDD)
W st County JPA (via CDD) BYE
X382;1-83 News Media (via CDD) DEPUTY
,4
County Admi-nistrator
HOUSEHOLD HAZARDOUS WASTE (HHW) PROGRAM
WORK PLAN FOR PHASE I IMPLEMENTATION
JANUARY 5, 1990
BACKGROUND:
The Household Hazardous Waste Committee was established in January,
1989 by the Solid Waste and Hazardous Materials Commissions. Its
charge has been to develop policies, program guidelines and
timelines to establish an ongoing system for the collection and
disposal of HHW. A major component of this system will also
include a public education program to encourage consumers to
purchase less toxic products, and to use, recycle and dispose of
them properly.
The committee is coordinating the following areas of
responsibility:
* developing collection, recycling and disposal options and
logistics
* designing a public education campaign
* assisting the general public and reducing the amount of
HHW being generated
* promoting recycling efforts
* consulting with franchisors to develop franchise and
permit agreements
* consulting with franchisors to finance a collection and
disposal program
* researching liability issues and solutions
* liaisoning with regional efforts to reduce HHW and
promote collection and disposal programs .
Both the. Hazardous Waste Management Plan and the Solid Waste Plan '
encourage HHW collection programs to be established by franchisees .
The HHW Committee is overseeing the implementation of these
programs:
The Hazardous Waste Management Plan (Pages 6-8) and the Solid Waste
Management Plan (pages 8-14 ) state:
Disposal: The public should be provided with safe, accessible, and
convenient locations to recycle and dispose of household hazardous
waste. This may be achieved by:
1 . Promoting the recycling of household hazardous wastes,
such as waste oil, car batteries, and latex-based paints .
2 . Requiring all waste collection companies and other
appropriate agencies or companies to provide regular
pick-up and or/collection points for household hazardous
waste recycling as appropriate. Franchisors and
franchisees are encouraged to work together to develop
and promote such programs.
3. Requiring solid waste transfer stations to operate
household hazardous waste collection, recycling, and
disposal programs .
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4 . Requiring commercial hazardous waste management
facilities to accept household hazardous waste at a
recoverable cost when no other alternatives are available
in the local area.
5. Advocating the adoption of State Legislation that would:
a. Encourage and facilitate recycling of hazardous
waste statewide through such mechanisms as tax
incentives, manufacturing reprocessing, market
development, and legal clarifications of recycling
definitions .
b. Reduce administrative, financial, and legal
barriers to household hazardous waste facilities;
and
C. Develop financing mechanisms such as a surcharge or
deposit on products that become household hazardous
wastes to encourage the recycling, or proper
treatment, storage, and disposal of household
hazardous wastes.
The committee decided to split the establishment of a collection
and disposal program for household hazardous waste into two phases .
Phase I provides for the collection and recycling of used oil,
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latex paint, and car batteries. Phase II provides for the
collection, recycling and disposal of all other HHW.
This work plan addresses the implementation of Phase I of the
project. Used oil, latex paints, and car batteries have been
identified because they comprise the bulk of the HHW waste stream,
and because there are viable recycling options currently available.
Phase I : Expand the recycling of used oil, latex paint, and car
batteries in Contra Costa County. The following guidelines should
be followed when establishing these programs:
o Provide permanent facilities in at least four sectors of
.the county (east, west, north central, south central) .
o Solid waste programs should must establish programs to
accept used oil, latex paint, and car batteries . They
can do this by working with their franchisors (cities,
sanitary districts) by providing either a drop off point
and/or curbside pickup as appropriate, or franchisee
corporation yard.
o Develop screening guidelines to guard against
contaminated wastes being brought to the recycling
program.
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o Assure that the programs are operating on a regular
publicized basis (at least one time per month) and be
readily accessible to all communities in each franchisee
service area.
o Develop guidelines on liability controls for accepting
wastes from the public.
o Integrate collection program into a long-term public
education program regarding waste minimization and
recycling.
The committee strongly encourages the coordinated efforts of the
county, cities, sanitary districts, solid waste collection
companies, community recycling centers and others to achieve
implementation of the program. The work plan is in draft form
only. It needs the approval and commitment of all key agencies and
organizations before it is adopted for implementation.
The following is a brief synopsis of the problem of each type of
waste, and local needs and resources to manage recycling. The next
steps needed for implementation with a proposed timeline is
included in the final section of the work plan.
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USED OIL
BACKGROUND:
Used oil and paints are the largest, in quantity and volume, of all
hazardous wastes generated by Contra Costa households . According
to an Environmental Protection Agency study, the number of do-it-
yourself oil changes is increasing nationwide due. to the rising
cost of oil changes at service stations and the availability of
inexpensive motor oil at discount stores. However, most
neighborhood gas stations are no longer accepting used oil from do-
it-yourselfers. Service stations that were once paid to collect
oil must now pay to have it hauled away. According to the
California Waste Management Board, approximately 40 percent of
recyclable motor oil is recycled statewide.
Without convenient disposal, frustrated oil changers resort to
pouring hazardous oil down sewers and storm drains, in backyards
and vacant lots, and in garbage cans and dumpsters . Fluid oil can
rapidly leach through porous soils and find its way into surface
and groundwaters. One gallon of used oil can contaminate a million
gallons of drinking water.
Likewise, boat owners face similar dilemmas in properly disposing
of used oil . With 62 marinas, over 11,000 berths and 33,902 boat
owners in Contra Costa County, few disposal options are available
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to them and many are unaware of the significance of the problem.
Some pour used oil in or near the water, thus directly
contaminating our county's natural water system. Because oil has
been identified as a source of pollution in the San Francisco Bay,
the San Francisco Bay Conservation and Development Commission is
currently researching the extent of the problem as well as possible
solutions .
USED OIL STATISTICS
YEAR CALIFORNIA 1987 Contra Costa 1987
(estimates)
Volume of Oil
sold 243 million gallons 6 .5 million gallons
Volume of Used Oil
Available for
Recycling 138 million gallons 3 .72 million gallons
Volume of Used
Oil Currently
Collected _
for Recycling 81 million gallons 2.18 million gallons
Volume of Used
Oil Recycled 57 million gallons 1 .54 million gallons
Percent of Used
Oil Recycled 47% 41%
Amount of Used
Oil Unaccounted
For 81 million gallons 2. 18 million gallons
59%
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LOCAL NEEDS AND RESOURCES: .
Contra Costa has limited availability of used oil collection
programs (see attached map to be developed) . Many areas of the
county have no reasonable access to collection services, and the
public who is trying to use responsible disposal methods become
frustrated when they are told to drive several miles to the nearest
collection point.
The general public is also often confused and/or ignorant about the
proper disposal methods . A comprehensive public education campaign
is essential if there is to be an increase in the amount of used
oil collected in Contra Costa County.
Multiple resources are available to assist in promoting used oil
recycling. The county, cities, sanitary districts, garbage
collection companies, service stations and community recycling
centers can all play a role in developing the oil recycling
infrastructure in Contra Costa. The refinement and implementation
of this work plan will establish a comprehensive infrastructure of
used oil recycling options in Contra Costa.
GOAL OF A USED OIL COLLECTION AND RECYCLING PROGRAM:
The goals and benefits of oil collection and recycling systems are
to:
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o Prevent oil from entering landfills and potentially
leaching into surface and groundwaters;
o Prevent oil from entering storm drains and sewers, and
causing water pollution;
o Prevent backyard and other illegal dumping to prevent
soil and water contamination and accidental poisonings;
o Provide consumers (including boat owners) with accessible
and responsible methods of collection and recycling;
o Recover a valuable resource;
o Conserve the nation's and world's finite supply of crude
oil.
o Save energy and resources otherwise needed to develop
and refine virgin oil;
o Comply with state and federal hazardous waste laws.
OBJECTIVES:
(1) Franchisees provide either curbside or drop-off recycling
programs as described below.
(2 ) Other key participants (county, cities, sanitary
districts, community recycling centers, etc. ) coordinate
a spectrum of other recycling services for the community.
INTEGRATED APPROACH USING ABOVE OPTIONS:
Each community is encouraged to develop a collection program that
best meets local needs. By incorporating many of the above options
(particularly in lieu of curbside pick-up) the public can be served
with accessible and affordable disposal options .
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CURBSIDE RECYCLING PROGRAMS:
Curbside collection is by far the most convenient form of proper
disposal for at home do-it-yourselfers . The Bay Area communities
of Los Altos, Palo Alto, Sunnyvale and Mountain View provide this
service as part of their residential curbside recycling programs .
a In Mountain View and Sunnyvale, residents are asked to leave used
oil in gallon containers at the curb with other recyclables .
Plastic gallon jugs are available at no charge from the recycling
company. Recycling trucks are equipped with racks to hold one-
gallon plastic containers; the truck drivers collect the full
containers and replace them with empty ones. In other locales,
trucks carry oil tanks. Full containers are emptied into the tanks
and empty containers disposed of in bins alongside.
In Contra Costa County, Contra Costa Resource Recovery Service in
Martinez and Port Costa Recycles provide curbside collection free
of charge to their customers .
Section 25250.15 of the California Health and Safety Code, exempts
curbside collection of used oil from the requirements for hazardous
waste disposal. Programs must comply with terms outlined in
franchise agreements. Liability is assumed by the franchising
agency or hauler.
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DROP-OFF COLLECTION:
Drop-off services have been provided at many permanent and
temporary locations throughout the Bay Area. "Permanent" locations
include recycling centers; transfer stations; landfills; and city,
county, and private corporation yards. Temporary sites have
included household hazardous waste collection days and shopping
malls . These sites and other options are discussed below.
Recycling Centers: Several recycling centers throughout the Bay
Area accept used oil. In E1 Cerrito, the E1 Cerrito Recycling
Center collects approximately 500 gallons of used oil each week
(27 ,000 gallons annually) and at no charge to the public. At
present, California Oil Recyclers picks up the oil at no cost to
the center. Pacific Rim Recycling in Walnut Creek offers used oil
recycling at a nominal cost to the public. Pleasant Hill Bay Shore
accepts used oil free of charge to its customers in their Antioch
and Pacheco corporation yards.
Transfer Stations and Landfills: Most solid waste transfer
stations and landfills have for many years maintained tanks on-site
for their own used oil and accept oil from the public. These
locations are most convenient for small businesses that regularly
haul their own wastes to the station or landfill. As the
facilities tend to be in remote locations away from population
centers, they are relatively inconvenient locations for do-it-
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yourselfers . Nonetheless, transfer station and landfill operators ,
report that their tanks are frequently used and they plan to
maintain this service.
Public Maintenance Yards: Generally every city and county
maintains one or more maintenance yards for its own vehicles and
equipment. In addition, many state agencies and special districts,
such as bus districts, maintain corporation yards throughout the
state. As these yards usually store used oil for their own
vehicles and equipment, they are natural locations for drop-off
collection. However, few localities have taken advantage of this
arrangement. Nevada City and Santa Monica have successfully done
so. Personnel requirements, and local fire and safety regulations
must first be considered.
Corporation Yards: Several private corporations have opened their
tanks to public disposal. Pleasant Hill Bayshore Disposal, for
example, accepts oil from its rate-payers at its corporation yard.
Drop-Off at Points of Purchase: Many places that sell oil, such
as service stations and auto supply stores, also provide oil
changes and maintain used oil tanks on-site for their own purposes .
Relatively few of these retailers accept oil from the public, but
could be encouraged to do so.
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Mobile Collection: Evergreen Oil has equipped an "Oil Mobile" to
collect oil at shopping centers and other much-visited locales.
The Oil Mobile can collect 1500 gallons per day, has been very
popular and collected about 97,000 gallons in 1988.
Marinas: Some marinas, particularly the larger ones, provide boat
owners with a tank or drum for collecting oil.
SERVICE STATION NETWORK:
The California Waste Management Board (Board) maintains a list of
service stations that collect used oil from the public. A random
check of these sites indicates that the charge for disposal ranges
from $0.25 to $1.00 per gallon. This information is available to
the public on the Board's Hotline (1-800-553-2962) .
The Board is working to establish collection networks comprised of
haulers that transport used oil at no charge to the service
stations when they collectively guarantee at least 2000 gallons to
be picked up in a minimum number of stops. In exchange for the
free pick up, service stations agree to accept used oil from the
public without charge. The Santa Monica Recycling Program operates
a network.
San Mateo has made arrangements with fourteen service stations for
free public collection. In exchange, San Mateo has reduced the
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generator fees paid by service stations to the county.
Ventura County encourages service stations by reducing their waste
generator permit fees by 75 percent if the person issued the
license certifies that the station (a) maintains a used oil storage
tank or tanks with the capacity for at least 100 gallons at each
licensed location, (b) accepts up to four gallons of used oil per
day without charge, and (c) conspicuously displays a sign
advertising willingness to accept used oil without charge.
LATER PAINTS
BACKGROUND:
Paint is one of the most common items used and stored in
residences . Paint products are widely used for painting interior
and exterior walls, ceilings, trim, furniture, fences and decks.
Included in this category are undercoatings, sealers, primers,
stains, preservatives, and other architectural coatings .
Homeowners typically repaint building interiors and exteriors every
5-10 years depending on the surface finish and exposure conditions .
Public areas and places with high traffic may be repainted more
frequently. Householders often have difficulty estimating their
paint needs and err on the side of buying excess paint rather than
risk running short. Leftover paint is kept for touch-ups and
future projects. Over the long term, the result is an accumulation
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of partially-used or yet-to-be-used paints, solvents and associated
equipment on a shelf or in a cabinet. Older homes tend to have
large paint stockpiles from many previous painting projects. In
older neighborhoods (established before the predominance of latex
paints) , storage of solvent-based paints is common. Lead-based
paint - which is no longer manufactured or sold, may still be
stored among old solvent-based paints.
The most frequent disposal method for paints, according to a three-
city household survey, was in household trash. ( "Disposal of
Hazardous Wastes by Small Quantity Generators - Magnitude of the
Problem, " by Lorene Jackson Russell and Emy Chan Meiorin,
Association of Bay Area Governments, Oakland, California. 1985) .
Householders are often unaware that solvent-based paints are
classified as hazardous and are surprised when sanitation workers
refuse to accept paint cans. In some cases, householders resort
to illegal disposal. However, the majority of householders
continue to store paints for lack of any available safe disposal
methods . On such occasions when a community holds a household
hazardous waste collection event, the programs are generally
inundated by householders trying to relieve their homes of stored
paint.
It is important to note that Phase I of the HHW program will
address only latex paints, which are currently recyclable. Oil and
lead-based paints, solvents, and specialty products will be
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addressed in Phase II of the program. Latex paint is not currently
classified as a hazardous waste by the State Department of Health
Services. It is a waste disposal problem and recycling programs
should therefore be developed.
LATEX PAINT STATISTICS:
In 1985, ABAG and the University of Arizona conducted a study of
regular household trash from weekly pickups at 1,022 Marin County
single-family households ( "A Characterization of Hazardous
Household Waste in Marin County, California, " by William Rathje,
D.C. Wilson and W.W. Hughes. A report to the Association of Bay
Area Governments, Oakland, California. 1985) .
ESTIMATED AVERAGE HOUSEHOLD PAINT GENERATION RATE 1986 - 2000
Average Household Bay Area Contra Costa
1986 1 .51 lbs/yr 1585 tons/yr 203.8 tons
2000 1.51 lbs/yr 1900 tons/yr 244 .3 tons
Paint and related products stored for months and years constitute
the greatest volume of materials brought to one-day household
collection programs in the Bay Area. In a series of collection
programs conducted for 12 cities in Alameda County in 1987, each
household participant brought an average of 26 . 82 pounds of
solvent-based paint products and thinners, and 25. 12 pounds of
latex paints for a total of 51 .94 pounds (Rathji, Wilson, Hughes) .
The household participation rate at these events is typically
around 1% .
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ESTIMATED POTENTIAL ANNUAL PAINT DISPOSAL
FROM LONG-TERM STORAGE 1986-2000
Average Household Bay Area Contra Costa
1986 51 .94 lbs/year 545 tons/year 70 tons/year
1990 51 .94 lbs/year 654 tons/year, 84 tons/year
These are amounts stored in homes that would gradually be disposed
of over many years. Without a community hazardous waste collection
program, the paints would most likely be improperly put in the
trash, or taken in self-haul loads to landfills .
LOCAL NEEDS AND RESOURCES:
At this time, the Pleasant Hill Bay Shore Disposal Company offers
the only drop-off point for latex paint for Contra Costa residents.
They have a permanent location in Pacheco and a satellite location
in Antioch on a monthly basis.
An ongoing collection program needs to be developed by local
communities. The HHW committee can coordinate the planning of the
collection program.
GOALS OF LATEX PAINT RECYCLING PROGRAM:
* provide a responsible method for residents to dispose of
excess paint,
* reduce the volume of paint being improperly disposed of
in sewers, storm drains , trash, etc. ,
* reduce landfill disposal volumes and conserve limited
landfill capacities,
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* recover a useful resource, and provide a product for use
by non-profit and civic organizations and groups with
limited funds.
OBJECTIVES:
The most practical system for collecting latex paints is to offer
a series of centralized drop-off points throughout the county.
These drop-off points could be operated on a permanent basis, or
through special collection day programs in each city. Franchisees
should establish a latex paint drop-off point in their service
area. It is recommended that latex paint drop-off is provided
concurrently with used oil drop-off. Several logistical guidelines
should be adopted when operating a latex paint collection program.
* Keep white paints separated from pigmented paints. The
white paints can be bulked and used without recycling.
* Establish a scrap metal recycling program for empty paint
cans .
* The transportation of the paint to the recycler can be
costly. Communities should coordinate pick-up and
transportation of paint to the recycler in Southern
California.
* Franchisees will be required to accept the costs of
recycling the paint. The recycled paint is returned to
the franchisee. A use and distribution system for this
paint should be developed with local communities .
. Graffiti abatement programs, schools, community centers,
senior housing projects have all successfully used
recycled paint products at a tremendous fiscal savings .
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LEAD ACID (CAR) BATTERIES
BACKGROUND:
Car batteries can pose a significant environmental health hazard
when not disposed of properly. Sulfuric acid, lead acid, solder,
and other metals can contaminate soil and ground water if batteries
are buried in the ground or are recycled improperly. For example
in Contra Costa County, Cook Battery in Oakley, formerly a car
battery recycling operation, indicates the type of environmental
damage caused by improper disposal of batteries . Due to improper
industrial processes and disposal, serious soil contamination (more
than 1000 times recommended EPA limits) resulted. and the site was
placed on the State Superfund list. Although there was no direct
public health impact from this contamination, the potential for
contaminated drinking water or the exposure to children to lead
poisoning from playing in neighboring yards does pose significant
concern for the proper disposal of lead acid batteries.
Most car batteries are purchased and installed at service stations,
or by commercial mechanics and are therefore recycled through
established industrial routes . For example, Sears at Sun Valley
Mall sells approximately 500 batteries per week and recycles
approximately the same amount. Most people are therefore
exchanging their old batteries for new ones at the time of
purchase. The home mechanic has limited options, however, and may
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well be illegally disposing of car batteries in the trash, burying
them in the ground, or storing them in a garage, tool shed or
backyard.
While there are no exact statistics on the number of car batteries
being stored at Contra Costa residences, experience of household
hazardous waste collection programs throughout the state indicates
there is indeed a need for collection points for batteries being
stored by home mechanics.
CAR BATTERY STATISTICS
CITY QUANTITY COLLECTION METHOD
PARTICIPANTS COLLECTED TIMEFRAME (# PARTICIPANTS)
San Bernardino 84 batteries 1987 - 88 Permanent
69 batteries 1987 .- 88* Round Ups
110 batteries 1988 - 89* Round Ups
San Francisco 192 batteries First year Permanent
San Jose 900 batteries 2 days Round Ups**
(2200)
Antioch 238 batteries 6 days Round Ups (400)
Pacheco 93 batteries 5 months Permanent (451)
* These round-ups occurred in 3-4 locations in the county.
**These round-ups were particularly successful due to extensive
advertising.
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LOCAL NEEDS AND RESOURCES:
Several large battery recycling companies operate in Contra Costa
County. These companies are transfer stations for car battery
recycling. The drop-off collection points established under Phase I of
the Contra Costa Hazardous Waste Program can utilized these companies
to ship car batteries to large industrial smelters and metal recyclers.
THE GOAL OF CAR BATTERY RECYCLING PROGRAM:
o To provide a responsible method for residents to dispose of
car batteries .
o To reduce the number of car batteries being improperly stored
in garages or improperly disposed of in the ground, trash,
creeks, etc.
o To recover a useful resource for reuse in the manufacturing
of car batteries and other metal products .
OBJECTIVES:
The most practical method for collecting car batteries is to offer a
series of centralized drop-off points throughout the County. These
drop-off points can be operated on a permanent basis and can be
incorporated with the used oil and latex paint drop-off points provided
by each franchisee.
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The logistic for the collection and storage of car batteries should pose
no barrier to the offering of these services . Franchisees will need to .
establish a relationship with a local battery recycling company to
accept the batteries that are collected. It is possible that several
drop-off points may want to pool the batteries collected so they can be
transported to the recyclers in bulk volumes.
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COMMITTEE ACTION STEPS AND TIMELINE
ACTION MONTH
1. Work plan meeting with franchisees/ors 1. October
1989
2. Report to Hazardous Waste and Solid
Waste Commissions and to the Board of
Supervisors 2. October
3. Finalize draft work plan and sample
contract language 3. Nov-Dec
4 . Establish implementation committee 4. December
5. Training on used oil and latex
paint recycling 5. January
1990
6 . Assist franchisors in developing contract
language and implementation plans for oil
and paint recycling programs 6 . Nov-March
7 . Establish used oil network with service
stations 7 . Nov-Jan
-8. Develop, fund, implement public education
campaign 8. Dec-ongoing
9 . Goal for implementing Phase I HHW program
in Contra Costa County 9 . March
10. Require recycling programs in landfill and
transfer station permits 10. Long-Term
MA:md
1/3/90
oilrpt.ma
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