12/14/1992 - Packet City of Tigard
NOTICE
THE DECEMBER 14, 1992
SOLID WASTE ADVISORY COMMITTEE
HAS BEEN CHANGED TO
MONDAY, DECEMBER 21, 1992
7.00 P.M.
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AGENDA
SOLID WASTE ADVISORY COMMITTEE
DECEMBER 14, 1992, 7:00 PM
TIGARD CIVIC CENTER - TOWN HALL CONFERENCE ROOM
13125 SW HALL BOULEVARD
TIGARD, OREGON
1. CALL TO ORDER
2. ROLL CALL: WOGEN DISPENZA IRWIN
JACOBS McREYNOLDS SULLIVAN
VACANT
3. CALL TO AUDIENCE FOR NON-AGENDA ITEMS
4. APPROVE MINUTES: 11/16/92
5. UPDATE ON SOLID WASTE ISSUES
A. TIGARD FRANCHISE TERM STATUS
B. ANNUAL REPORT FORMAT STATUS
6. SERVICE STANDARDS DRAFT REVIEW
7. OTHER BUSINESS
A. NEXT MEETING - JANUARY 25TH? (1/18 iB a public holiday)
8. ADJOURNMENT
TO ENSURE A QUORUM TO CONDUCT BUSINESS, PLEASE CALL LIZ NEWTON AT 639-4171,
EXTENSION 308, IF YOU ARE UNABLE TO ATTEND.
LE/SWAC.AGN
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MEMORANDUM
CITY OF TIGARD, OREGON
TO: Tigard Solid Waste Haulers
FROM: Loreen Edin, Admin. Services Manager
DATE: December 7, 1992
SUBJECT-- Meeting Announcement
DAY/DATE: MONDAY. DECEMBER 14, 1993
TIME: 1:00 PM-4.00 PM
PLACE: TIGARD CMC CENTER - FANNO CREEK CONFERENCE ROOM
If you have any questions, or would like to add an item to the agenda, or if you are unable to attend,please contact
me at 639-4171.
AGENDA
1. AUTOMATED CURBSIDE PICKUP- discontinued until franchise ordinance term is resolved.
2. PERFORMANCE STANDARDS- Discuss entire draft- BRING YOUR COPY
4. NEXT MEETING - 1/11/92 1-4 PM- Performance Standards Discussion and curbside automation
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MEMORANDUM
CITY OF TIGARD, OREGON
TO: SWAC Members
FROM: Loreen Edin
DATE: December 7, 992
SUBJECT: 12/14/92 Agenda
Agenda # 5.A - Enclosed is a copy of the Council meeting packet which has been
delivered to Council with the 12/15 packet.
Agenda # 5.B - I will be meeting with the Washington County Wasteshed Technical
Committee on Thursday, 12/12/92, to hopefully determine what the form will be for
the 1992 annual report. I'll give a verbal update Monday evening.
Agenda # 6 - Please bring your copy of the draft service standards for
discussion. This was distributed at the last SWAC meeting.
Agenda # 7 - Since January 18, 1993 is a public holiday, would you like to
schedule a meeting on the 25th?
*MOO
MEMORANDUM
CITY OF TIGARD, OREGON
TO: Pat Reilly
FROM: Loreen Edin
DATE. December 7, 1992
SUBJECT.• SOLID WASTE ORDINANCE TERM REVIEW
HISTORY
Council began to express a different philosophy regarding length of franchise terms as early as the rate
increase hearings in the Spring of 1991. On 11/17/92, the Council requested a public meeting be
scheduled for 12/15/92 for the consideration of the term of the Solid Waste Ordinance. Specifically,
Council wished to discuss whether to allow the automatic renewal of the 10 year franchise to continue or
whether to terminate the automatic renewal. Council may act to continue the automatic renewal or may,
by majority vote, decide to terminate the automatic renewal before 12/31/92. This process does not
require a public hearing and is described in TMC Section 11.04.050 (attached for your reference).
ACTION SINCE 11/17/92
Since Council has expressed a desire to have a shorter franchise term (5 to 7 years being discussed at
the 11/17/92 meeting), staff has been working with the Solid Waste Franchisees to negotiate alternative
language proposals for Council consideration. Staff and Franchisees have discussed amending the
ordinance to allow the set term of 10 years to begin a 'count down"should Council terminate the automatic
renewal. When a time certain is reached in the count down process (i.e. when a 5 or 7 year term is left)
amendment language adopted now could become effective again inserting an automatic renewal clause.
This plan could be adopted as a franchise ordinance amendment, amending Section 11.04.0508.
Attached is a comparison of Tigard's franchise ordinance term with 13 other cities in the tri-county area.
Since there are three franchisees with different management philosophies, staff has been unable to obtain
consensus for one proposal for an ordinance amendment. Therefore, the process for franchise ordinance
amendments has not been met to allow a change in the language before December 31, 1992. TMC Section
11.04.080C requires proposed amendments be presented to the Solid Waste Advisory Committee (SWAC).
After the Committee prepares a recommendation for Council, a Council public hearing must be held prior
to adoption of amendments. The franchisees may, but are not required to, accept the proposed
amendments if Section 11.04.0508 is modified.
12/15/92 COUNCIL OPTIONS
At the public meeting on 12/15, the Council can take action to continue or terminate the automatic renewal
terms of the Solid Waste Franchise Ordinance. Should there be a desire to consider adoption of amended
language regarding the franchise term, Council should direct staff to begin the process of amending the
existing franchise. The negotiations, presentation to SWAC, and then scheduling of a Council public
hearing is anticipated to take 45 to 60 days.
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4. Nothing in this subsection shall prevent the franchisees from instituting
on-route recycling prior to a council determination nor from including
income and expense in the rate justification section.
5. Section 11.04.070 (11) requires franchisees to provide the opportunity to
recycle, to include on-route recycling, in accordance with applicable
law. This subsection is intended to provide a process by which the
Council may create on-route recycling requirements in addition to those
found in other applicable law.
11.04.050 Franchise--Term-Automatic renewal when.
A. The rights, privileges and initial franchise granted herein shall conJherein
be in full force to and including the thirty-first day of December 1988
to terms, conditions and payment of franchise fees to the city as set
this chapter.
B. Unless the council acts to terminate further renewals of the franchisgranted, each January 1st, the franchises are automatically renewed f
of ten years from the January 1st renewal.
11.04.060 Franchise--Fees.
A. Effective July 1, 1978, as compensation for the franchise granted to each
franchisee and for the use of city streets, the franchisee shall pay to the city
a fee equal to three percent of gross cash receipts resulting from the solid
waste services conducted under the franchise. Such fees shall be computed on a
quarterly basis and paid within thirty days following the end of each quarter
calendar year period. Each franchisee shall maintain an adequate bookkeeping
system showing the gross cash receipts resulting from the solid waste services
conducted under the franchise. Records shall be open at all times for audit by
authorized personnel designated by the city administrator.
B. Wilful misrepresentation of gross cash receipts by a franchisee shall constitute
cause for immediate revocation of the franchise, pursuant to Section 11.04.080
of this chapter.
C. The franchise fee shall be in lieu of any business license or regulatory fee or
tax, but shall not be in lieu of any ad valorem tax, imposed by the City of
Tigard.
11.04.065 Franchisee Records.
A. Franchisee shall keep accurate books and records related to all solid waste
activities. Such books and records shall be open to inspection by the City, its
attorney, or other authorized agent at any time during the franchisee's business
hours.
B. The City may audit or review said books and records as it deems necessary.
Information obtained from such audits or reviews may be used to determine the
amounts due to the City under the provisions of this franchise agreement. Such
information may also be used by the City to determine costs of particular
services, to determine changes to the schedule of solid waste rates, or for any
other regulatory purpose related to the administration of this chapter. The City
shall maintain the confidentiality of such records to the extent allowed by the
Oregon Public Records Law. However, the City may provide information obtained
pursuant to this franchise to other governmental agencies involved in the
regulation of the provision of solid waste services. If such information is
shared, the City shall, prior to delivery of the information, receive a written
assurance from the receiving agency that the confidentiality of the information
shall be maintained to the extent allowed by the Oregon Public Records Law.
11.04.070 Responsibility of franchisee.
A. The Franchisees shall:
1. Resource-recover or dispose of wastes collected at sites approved by the
city that are in compliance with Chapter 459, Oregon Revised Statutes and
regulations promulgated thereunder;
Effective 1/16/92 Page 6
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SOLID WASTE ORDINANCE COMPARISONS
CITY FRANCHISE TERM AUTOMATIC RENEWAL
CLAUSE
BEAVERTON 5 year No
DURHAM 5 year No
FOREST GROVE 5 year Yes
GRESHAM 5 year No
HILLSBORO 7 year No
KING CITY 4 year No
LAKE OSWEGO 7 year No
MILWAUKIE 20 year No
OREGON CITY 10 year No
SHERWOOD 10 year Yes
TIGARD 10 year Yes
TUALATIN 5 year No
WEST LINN 10 year No
WILSONVILLE 3 year Yes
FOLLOWING IS A BREAKDOWN OF FRANCHISE TERMS FOR THE 14 CITIES:
3 YEAR - 1 - with it being automatically renewable
4 YEAR- 1
5 YEAR - 5- with 1 being automatically renewable
7 YEAR- 2
10 YEAR - 4- with 2 being automatically renewable
20 YEAR- 1 - with termination consideration available every 5 years
THE AVERAGE IS 7.5 YEARS FROM THE DATE OF GRANTING THE FRANCHISE. SINCE 4 OF THE
14 CITIES GRANT AUTOMATIC RENEWALS, THE ACTUAL TIME LEFT ON THE AGREEMENTS IS
NOT REFLECTED IN THIS REVIEW OF ORDINANCE LANGUAGE.
Dated 1224/92 - L. Edin
LE:CC12.15
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SOLID WASTE ADVISORY COMMITTEE MINUTES
NOVEMBER 16, 1992
1. The meeting was called to order at 7:01 PM.
2. ROLL CALL: Present: Eldon Wogen, Chairman
Cece Dispenza Don Jacobs
Mark Irwin Gerry McReynolds
Tom Sullivan
Tom Miller, Miller Sanitary Service
Mike Leichner, Pride Disposal
Larry Schmidt, Schmidt's Sanitary Service
Bill Martin, Wash. County Haulers' Assn. Dir.
Liz Newton (left at 8:00 PM)
Councilor Valarie Johnson (left at 8:00 PM)
Loreen Edin, Staff Liaison
3. CALL TO AUDIENCE FOR NON-AGENDA ITEMS - No one appeared before the
Committee to speak.
4. APPROVE MINUTES: 09/21/92 - Motion by Committee Member Irwin, seconded by
Committee Member McReynolds to approve. Approved by unanimous vote of
Committee present.
5. BROADENING COMMUNITY PARTICIPATION UPDATE - Councilor Johnson noted that
her Council term expires 12/31/92 and that this would be the last time she
would be meeting with SWAG. She expressed her appreciation to the SWAC
members and franchised haulers for their hard work!
Liz Newton distributed handouts describing the review of the City's board
and committee structure. After meeting with all boards and committees and
holding a Board and Committee Chair meeting, there seemed to be strong
support for broadening the structure to deal with more "big picture"
issues. Council had determined that filling any vacancies on boards and
committees should be deferred until the review of citizen involvement
structure is completed. Councilor Johnson noted that if there were any
terms expiring of existing members, Council would reappoint for a six
month term to retain continuity during the transition.
Council and staff will be working with citizens to develop Citizen
Involvement Teams or a "CIT" concept. These will be neighborhood based
and there has been discussion of having perhaps 4 areas throughout the
City to encourage participation on a larger scale. Councilor Johnson
stated that a final plan should be in place during the first half of 1993.
Committee Member McReynolds stated that he had just heard of a similar
concept at the League of Oregon Cities. He noted that there is growing
concern state-wide that citizens should have the opportunity to review all
issues facing local government and that standing committees often reduce
the effectiveness of citizen review with a narrow focus. He also noted
that SWAC had discussed disbanding over the last few months.
Councilor Johnson stated that a review of the existing standing committees
would need to be done to determine if they would be effective and
appropriate under the CIT approach. She noted that the Transportation
Advisory Committee is being disbanded and one current member is being
appointed to an existing Planning Commission vacancy. Another Advisory
Committee member will be appointed in January to the Planning Commission
when Wendi Hawley resigns to take her position on the City Council.
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PAGE 3 OF 3
SWAC MINUTES
11/16/92
B. Annual Report - Loreen Edin noted that the Washington County
Wasteshed Technical Committee had determined it would be in the best
interest of the Wasteshed to have all Cities use the same report
form. Coopers and Lybrand have suggested modifying the assumptions
used for the financial report. Other areas of discussion are
limiting owners/related party compensation expensed and perhaps the
deletion of disposal revenue and expenses from the rate of return
computation.
C. Automation of Residential Collection - Haulers have been preparing
a proposal which would consider service and financial impacts of
some type of automation of curbside collection for residential
customers. The haulers have also been looking at adding Yard Debris
at curbside in early 1994, since Metro has required this service by
7/1/94 if there are available markets. Haulers believe that the
Commercial rate subsidy will have to be changed before automation
can be a reality for Tigard. This will be an agenda item for SWAC
review at the December meeting. A copy of the haulers, draft
discussion paper was distributed for SWAC information.
8. OTHER BUSINESS: Next meeting was requested to be scheduled for 12/14/92
in order to not hold a meeting during the week of Christmas.
9. ADJOURNMENT: Motion by Committee Member McReynolds, seconded by Committee
Member Dispenza to adjourn. Approved by unanimous vote of Committee
present at 8:41 PM.
PAGE 2 OF 3
SWAC MINUTES
11/16/92
Councilor Johnson asked for comments from the Committee members regarding
the future role or need for SWAG. Committee Chair Wogen stated that SWAC
had been very task oriented. He supported the CIT approach and wondered
how the rate structure issues (i.e., commercial subsidy) would be
addressed. Both Committee Member Dispenza and Sullivan expressed concern
that there continue to be education of the citizenry in solid waste issues
and that the CIT members become educated on all the issues they would deal
with. Committee Member Sullivan noted that a committee process moves
slower than is good on "cutting edge" issues like the changes in the solid
waste industry. Committee Member Irwin stated that a CIT with 60+ members
would find it difficult to come to consensus. Both Councilor Johnson and
Liz Newton discussed that meetings would not be for the purpose of voting
or coming to consensus, but rather a town hall/open forum for presentation
of information with a time for questions and input. The Planning
Commission and Council hearing process would still be available for
citizens wishing to "testify" on any particular issue. Mike Leichner
stated that government is seen as a maze. With the CIT process there
seemed to be more chance for citizens to have input and receive
information so they can understand issues and decisions even if they can't
agree with the decision. Committee Chair Wogen expressed some concern
about the CIT structure and Committee Member Dispenza stressed that it
would be essential that the City Council and Staff be responsible to
educate the people. Councilor Johnson noted that she and the Council had
been concerned about educating citizens on a broader base for a long time
and that was one reason why the CIT plan eventually was proposed.
Liz Newton noted that she would be going back to Council in December for
further direction. Council had expressed their desire to have this
resolved and a citizen involvement process in place by July 1, 1993.
Councilor Johnson & Liz Newton left the meeting at 8:00 PM
6. PROMOTIONS UPDATE - 11/7/92 Yard Debris Depot
Loreen Edin reported that the depot was successful in that 60-70 compacted
yards were expected and at the end of the day there was 160 compacted
yards (equivalent to about 4500 garbage cans) of debris taken to Grimm's
Fuel! She expressed thanks to the haulers for their hard work as well as
the SWAC members who helped. Many people were turned away at the end of
the day.
After discussing ways to streamline the process next year, the Committee
consensus was that there is a need for more Yard Debris Depots in the
future. Staff should consider moving the site to Cook Park, allow Tigard
residents only to dump (check ODLs) , have a chipper available, not allow
loose brush (must be bundled), form lines for quick drop off and one for
larger loads, allow a defined portion to be dropped off for no cost and
determine cost for material over that portion, and perhaps hold 1 depot in
the Spring (early) and two or more in the Fall.
7. UPDATE ON WORK WITH HAULERS
A. Service Standards - Loreen Edin noted that she and the haulers had
been meeting since May to develop a draft. Copies were distributed
to allow SWAC members a chance to read for comment at the next SWAC
meeting.
PAGE 3 OF
SWAC MINUTES
11/16/92
B. Annual Report - Loreen Edin noted that the Washington County
Wasteshed Technical Committee had determined it would be in the best
interest of the Wasteshed to have all cities use the same report
form. Coopers and Lybrand have suggested modifying the assumptions
used for the financial report. Other areas of discussion are
limiting owners/related party compensation expensed and perhaps the
deletion of disposal revenue and expenses from the rate of return
computation.
C. Automation of Residential Collection - Haulers have been preparing
a proposal which would consider service and financial impacts of
some type of automation of curbside collection for residential
customers. The haulers have also been looking at adding Yard Debris
at curbside in early 1994, since Metro has required this service by
7/1/94 if there are available markets. Haulers believe that the
Commercial rate subsidy will have to be changed before automation
can be a reality for Tigard. This will be an agenda item for SWAC
review at the December meeting. A copy of the haulers, draft
discussion paper was distributed for SWAC information.
8. OTHER BUSINESS: Next meeting was requested to be scheduled for 12/14/92
in order to not hold a meeting during the week of Christmas.
9. ADJOURNMENT: Motion by Committee Member McReynolds, seconded by Committee
Member Dispenza to adjourn. Approved by unanimous vote of Committee
present at 8:41 PM.
OCT 20 192 09:12 r �O SERVICE DIST. 503 241 7417 P.3
PROPOSED ACiMTIES FOR FY 93-94
ANNUAL WASTE REDUCTION PROGP,4Nf
I. Continuation of Ongoing R•ograms
—.al GQ-Verninent Activity
Cuutinue to maintain,promote, and enhance the activities begun in years one, too and three of
the Annual Waste Reduction Program. Continue assessments of adding materials to curbside
collection programs as warranted by volumes of material available, technical and economic
feasibility of oolleotion,and adequacy of markets.
Metro SuppoR
• Provide coordination, technical assistance, and funding to support activities begun in yeas
one, two and three of the Annual Waste RedwAion Prng an.
• Provide tceluiiW Wunuatiutu un curbside collection systems.
2. Multi Family Recycling
Local Government Activitv
Continue the installation of recycling systems in multi-family complexes. Provide mcycling to
all multi-family complexes by June 30, 1994.
Metro SuMort
• Provide technical assistance on multi-family recycling systems.
• Cmirdinate training progrems for apartment owners/managers.
• ..PrOULOW tttulti family recycling through Recycling Information Center and other resources.
• Provide partial funding for multi-gamily container systems, decals, promotional educItional
materials, and on-site preparation expenses.
3. "Bray Recycled"
Local CoySmMQ Agiyftx
Establish and implement price preferences and policies consistent with piocurrinent lKrliues or
the 1991 Oregon Recycling Act, (Senate Bill 66). Establish bid and contract Wiguage Char
requires recycled products from contractors where feasible. Record and report on purchases of
recycled products. Include percentage of all purchases, money spent, and percentage ingot:
over prior years. Cooperate in projects that demonstrate the use of recycled products.
Mears?StlpppA
r
OCT 20 '92 09:12 MET--• SERVICE DIST. 503 241 7417 P.4
• Assess the Long-term adequacy of collection.programs established to meet the July 1, 1991
requirements of the Ra;oraal Yard Debris Recycling Plan, processing capacity and the
market demand.
• Provide assistance in determining and managing the impact of the rogion-wide curbside
collection resulting in additional volumes of material and market capacity.
7. Weight Based hates
Local Government_&tiyity
Plan a program that will amcss the issues and measure the impacts of implementing a weight
base4 rate structure. Tlik program should utilize Metro's CommeroW Weight Generation
Study, and consider recommendations concluded by the Study. .
Me . Sunnort
• Provide recommendations to local governments based upon Commercial Weight
Generation Study.
• Provide technical assistance on measuring the impacts of a weight based rate stntcnim.
8. Building Design Review
Local Government Activity
Require that recycling areas be incorlwrated into the constnwtion of all now multi-family,
commercial, institutional, and-industrial developments. Such recycling areas must provide
adequate space and access to facilitate effective recycling on the part of building users and
efficient recycling on the part of haulers.
Metro Suanort
• Provide background and technical information through Metro's Model Ordinance.
• Assist with adapting the model into local codes for adoption.
9. Construction 1 Damolitioa Drbrk Recycling
Local Government Activity
Incorporate the utilization of wastructioiVdemolition recycling facilities into any local
government renovation or development prujocLs when economically feasible. Promote the use
of such facilities by distributing educ ationallinformational brochures to all local contractor
during constructiot9demolition projects.
OCT 20 192 09:13 ME- ` SERVICE DIST. 503 241 7417 P.5
• Provide specWwadons and technical information on recycled materials and products with
recycled content.
Provide 2ssistanee in the set up of procurement tracking systanis.
• Develop and distribute recycled product procurement lata cantahsing product information
W model language for soliciting and evaluating recycled products procurement bid..
4. In-House Recycling
T lx;a1 Government Activity
Expand existing in-house recycling pingnams through distribution of promotional and
education fliers and including mUtional inawials as practical. Record and report recyclioD
rate information.
Metro Suaoorl
Provide technical assistance to Recycling Coordinators and others on how to expand in-
house waste reduction and recycling efforts.
Make available Metro-produced videos and documents on recycling.
S. Waste Reduction Program Planning
Local Government Activity
Participate With Metro and citizen involvement process to design Five Year(FY1994i-95 -
FY1999-2WO) Waste Roduction Program and yearly activities.
Metro Sipnort
• Host meetings to diBCuss, rleetign and plan Five Year Waste Reduction Program.
6. Yard Debris
Local Government Activily
Provide on-route curbside collection service according to recommendations bast-Al on
evaluation of long-term processing capacity and market demand.
Metro Support
OCT 20 192 09.13 MET 0 SERVICE DIST. 503 241 7417 P.6
*0✓
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Provide,information regarding recycling and recovery options.
• Dcvelop and distribute a "How To Guide" on Construction/Demolition Debris Rezycling.
10.Household Hazardous Waste
Kcal Government Activit
Continue to promote hazardous waste minimizatiuu activities and the use of Metro's household
.hazardous waste disposal facility. Whenever possible, utilize(lie availability of reusable
hazardous waste materials from Metro's facility.
metr_ c=�S�m�,cyit
• Continue campaign to promote hazardous waste minimization and proper disposal
techniques.
• provide educational brochures on HHW.
• Provide consulting services to local guvrrnments detailing possible hazardous waste
minimization activities and proper handling and disIxisal tw1miques.
The Farmingt I"(,Light-based
collection system in operation.
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Commun �t�es Wemgh
Mermits Of Rates {:
By Katya Andresen
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® Waste managers are pricing is volume-based rates. More (SRRE) in their solid waste plaAs.
developing volume- than 200 communities in 19 states According to General Manager
p g have some form of volume-based David Portwood, Health Sanitation
and weight-based rates, according to Lisa Skumatz of Service considered both weight- and
unit pricing to bring Synergic Resources Corp., Bala volume-based rates. "We felt weight-
Cynwyd, Pa. Skumatz, who is based based rates would result in too many
equity to service fees in Seattle, has worked extensively customer complaints and too much
and to encourage with the city of Seattle's volume-and paperwork," says Portwood. He m°+
residents to reduce weight-based rate programs. feared customers would deny they
Glen Morris of the Research Tri- had thrown away the number of
waste and recycle. angle Institute in Research Triangle pounds of waste indicated on their
Park, N.C., says he has identified at bills. "In the past, we've had cus-
Funding of residential waste col- least 150 communities with volume tomers complain about bills for extra #z:'
lection is undergoing a gradual or weight-based rates, and estimates bags they denied disposing, and we
but significant shift. Histori- that number could be significantly felt the weight-based rates billing v5
cally, fixed fees or general taxes have higher with the addition of numer- would create a similar situation," he
paid for collection services, but a ous new programs in the last year. says.
number of communities and haulers The vast majority of these programs Portwood decided a simpler ap-
are implementing unit pricing,which are volume-based systems, accord- proach would be a variable can sys-
charges residents for the volume or ing to Morris. tem with three sizes of cans with
weight of the waste they dispose. The three major types of volume- three respective service fees. The
The trend stems from escalating base rates are bag systems, tag sys- firm's 9,500 residential customers
disposal costs, the need for waste re- tems and variable cans, though can choose a 40-, 60- or 90-gallon
duction and recycling and the de- some hybrid or combination pro- can for weekly collection. The size of
mand for equitable service fees. Unit grams exist. can is entered into the firm's com-
pricing, also known as variable Bag and tag systems charge resi- puter system and used to calculate
rates, attempts to demonstrate to re- dents for the number of bags dis- sanitation fees.
sidents the direct economic link posed. Residents pay a fee for each The fees are designed to cover the
between their own disposal habits specially marked bag, or tag to be cost of disposal rather than to
and the costs of landfilling. placed on a bag, that they purchase. prompt recycling with significant
Reducing costs for waste man- Variable can systems charge resi- financial incentives, according to
agers is another goal of variable dents fees for the size of cart used. Portwood, who says, "I don't like the
rates. Waste managers use the sys- Health Sanitation Service, Santa negative incentive of high rates for
tem to reduce the tonnage of land- Maria, Calif., has opted for this type large containers."
filled waste, increase the volume of of system. The move was prompted Rates are based on the cost of col-
recyclables and recover operations by the need for cost-effective collec- lecting and disposing the average
costs. Of course, these savings must tion, customer convenience and weight of a given container at the
be weighed against the costs of new California's AB939 law, according to landfill, which charges a tipping fee
equipment, training and manage- CEO Pat Higgins. AB939 requires of$45 per ton. These calculations
ment of the program. that all counties develop a Source result in a $4 difference between the
The most common form of unit Reduction and Recycling Element monthly charge for the 40-gallon can
1 8 w o r l d w a s t e s
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Seattle's experiment with weight- waste produced. Seattle's results three-month test period. Almost 48
based rates using bar-coded carts were attributed to the fact the city percent of the customers felt the
and a static crane scale. did not have a curbside recycling pilot gave them incentive to reduce
program, and to the fact that house- waste and recycle. "The system
service vs. the 90-gallon can service. holds compacted their waste into works because it shows people in
About 10 percent of the firm's resi- smaller cans, resulting in less waste their bills how expensive it is to deal
dential customers switched to small- volume but higher weights. with waste. They can see how they
er sized cans when the program was can lower costs through waste
implemented in August, according to Weight-Based Systems reduction,"says Skumatz.
Portwood. Customers that opted for The recent development of weight- The most popular aspects of the
smaller containers felt that with based systems is an attempt to more program among residents were equi-
recycling they did not need the stan- accurately measure the amount of table fees, incentive to reduce waste d
dard 90-gallon can they previously waste residents dispose. and bills that explained what they
used. Many decided they wanted the Skumatz tested weight-based were paying for.
flexibility of the 90-gallon can so rates in Seattle, though her aim was While weight-based rates can
they could dispose of yard waste to test the feasibility of weight-based bring many benefits, Skumatz urges
when necessary. There was not a rates in general, rather than to each waste manager to analyze his
charge for the initial switches, but achieve high accuracy levels. She or her own community to determine
resident who change sizes now must also wanted to measure customer the system's cost effectiveness.
pay a $7.50 fee to cover the cost of reaction and manufacturer interest. Considerations should include recy-
cleaning and replacing their can. "I developed the concept of'gar- cling markets, rural vs. urban geog-
Seattle has had a variable can sys- bage by the pound'because I wanted raphy, landfill fees (both short and
tem since 1981. Residents can to find a way to charge for smaller long term), existing systems and pro-
choose 30-, 60- or 90-gallon carts or increments of waste than the can grams and residents' waste disposal
a 19-gallon mini-can. The charge for system allowed. I am a believer in habits. If the community has invest-
the mini-can is$11.50 per month for providing the right pricing signals to ed in automated collection, variable
weekly collection. The 30-gallon can customers,"she explains. can or weight-based pricing may be
is $14.98, and the 60- gallon and Skumatz felt volume-based rates appealing because these methods
90-gallon cans are $29.96 and had the disadvantage that cus- are compatible with the automated
$44.94 respectively. tomers had no incentive to set out system.
Volume-based rates have been less waste than the subscription Potential problems of weight-
"the most effective aspect of Seattle's level of their can because they would based systems should also be con-
recycling program," according to not achieve any additional savings. sidered, including accuracy, illegal
Skumatz. She says variable cans Skumatz tested the weight-based dumping and increased operator
prompted a 24 percent recycling rate system in Seattle from February work.
in Seattle before the formal recycling 1990 through March 1991. For most Another consideration is timing.
program was begun in 1987 and of the field test, cans were bar coded Skumatz says good times to intro-
1988. and weighed on a static crane scale duce a program are when tipping
According to Charging Households mounted on the back of trucks. fees go up; when recycling programs
for Waste Collection and Disposal: Later, a two-week trial was held with are started; when people feel current f="
The Effects of Weight or Volume- a dynamic system using a modified rates are unfair; when a contract is
Based Pricing on Solid Waste tipping arm and radio frequency up;when billing is being changed; or
:.
Management, a 1990 report for the identification tags. when a city needs to free up tax ,
EPA by Paul Kaldjian, pay-by-the- The 1,500 tested residential ac- authority. .
bag systems in Perkasie, Penn., and counts were then sent mock bills, The city of Farmington, Minn., is
Ilion, N.Y., resulted in 41 percent which Skumatz generated on her developing weight-based rates for
and 37 percent respective reductions home computer. Fees were struc- many of the same reasons as Se-
in the weight of waste produced.The tured according to a two-tiered sys- attle, with the additional goal of
reductions achieved were attributed tem that charged a flat rate plus a designing accurate weighing sys-
to both unit pricing and the cities' charge for weights under 25 pounds tems. The city's work is the most t
recycling programs. or a higher charge for weights over exhaustive to date on weight-based
The report's study of the Seattle 25 pounds. systems. ,
variable can system revealed a small Skumatz estimates the system Another motivation behind the
increase in the first year and a slight resulted in a 15 percent reduction of Farmington project— encouraging
decline the second year in pounds of waste generation by weight over the diversion of recyclables and com-
2 2 w o r 1 d w a s t e s
a.
j
postables to future process acili- most fair way to go. Elderly rbc the program, which has been in
ties — has become less important dents, in particular, feel it improves place for four years, has greatly
since plans for the facilities have the equity of the fees. They don't reduced dumping in ditches and
been tabled, according to Robert throw out as much, yet they have other improper disposal habits.
Williamson, a consultant to the pro- had to pay the same fees as large Matthys advises residents to keep t'
I ject and former project manager. families." their cans indoors until pickup day,
The city has provided refuse col- though problems have been minimal
lection service for 40 years to resi- Dumping On The System so far and"People are generally hon-
dential and commercial customers. The most serious concern of resi- est."
It currently services about 2,200 res- dents is improper dumping, accord- For commercial customers, the
idential accounts.Total waste gener- ing to Matthys. Many fear that other city provides a dumpster locking ser-
ated in 1990 was 4,378 tons, of people will place waste in their carts vice. On request, the city will place a
! which 650 were yard waste and 633 to avoid the fees. Business owners lock mechanism on dumpsters that .
were recyclables. worry that residents will dump their releases when the dumpster is in-
Williamson predicts the Farming- waste in commercial dumpsters. verted for emptying. Commercial
ton system will increase recycling The issue applies to both variable customers also can opt to place pad-
rates by approximately 10 to 15 per- can and weight-based systems, locks on dumpsters, provided they
cent through "charging residents for because both charge residents for remove the locks for several hours
what they throw away. We have the amount of waste placed in carts. on collection days. Because employ-
made the price of disposal sufficient- With bag and tag volume systems, ees are often the culprit with im-
ly high to made a difference in peo- cheating on disposal is less of a proper dumpster disposal, William-
ple's habits." By keeping residents problem because residents are son advises businesses to educate
informed of their disposal habits, he charged when they purchase the employees on proper dumpster use.
r reasons, the program will build bags/tags. Perhaps a more effective deterrent
awareness and understanding of To minimize potential problems, is that police can be notified when
landfill disposal costs. The current Farmington has tried to "head off bags of non-commercial garbage are .
weekly voluntary recycling participa- volunteer dumpers at the pass,"says found near or in commercial dump-
tion rate is 56 percent and averages Williamson. Two annual Saturday sters. Police sort through the bags,
17 pounds of material per stop. drop-off days are held to collect fur- finding bills or other proof of the
The system is in the early phases niture, mattresses, tires, batteries, garbage owner, and locate the cul-
of implementation, but there already used oil and other materials. Re- prit.
has been significant positive public sidents can drop off the items at no Williamson says the cost of overall U
response, according to Russ Matt- charge, although they indirectly operation of the system will be recov-
hys, assistant city engineer and pro- fund the program through standard ered by the avoided costs of waste
ject manager. "People feel it is the sanitation service fees. Matthys says reduction and recycling. While recy-
'R C
ECI
r>
k
;r
WHERE IT'S BIN. WHERE IT'S GOING.
As recycling evolves,the advantages of bags are becom- For information on bag-based recycling,and methods
Ing clear. being developed to recycle the bags themselves,call 9-5:30 EST.
With a one-way trip from the curb,bags reduce time per Hefty Help Line 1-800-2A3-5790
stop up to 33%.So bag-based recycling requires fewer trucks
and manhours.And often eliminates the need for new,multi-
compartment trucks. �e
It also encourages compliance,by fitting in with the
consumer's usual trash disposal routine. ®Mobf[1992
2 6 Circle No. 15 on Reader Service Card w o r l d w a s t e s
i
{
cling markets are sufferinre of individual waste abatement; andoes allow the operator to key in
Area's high tipping fees make recy- appropriate calibration techniques. special codes for out-of-sequence
cling a cost effective alternative, says The weight-based fees will consist carts, empty carts and carts that
Williamson.Tipping fees are current- of a flat service fee and a charge of cannot be emptied because of a car
ly $70 per ton, and Williamson ex- $.03 to $.05 per pound of waste. blocking the garbage truck's access.
pects them to rise. Residents will be billed quarterly. A The RFID system does not require `<*
The system uses the city's existing mock billing trial was scheduled for sequenced collection because it
! automated side loaders. New equip- this fall to acquaint residents with gathers account information from a
ment, including weighing devices, the system and their disposal habits, tag placed on the can. An antenna
on-board computers, containers and as well as to work out any potential on the lifting arm reads the informa-
a central database were funded bugs. The actual weight-based tion from the tag transponder and
sthrough a grant from the'Ruin Cities billing is expected in January 1993. transfers it to the on-board system.
Capital Assistance Grant Program of Waste is weighed using strain gage
} the Metropolitan Council. William- Bar Codes And RFID load cells. Strain gage systems are
son estimates the cost of the equip- Farmington is testing two account designed to weigh a can by measur-
ment at$8,000 to$11,000 per truck data gathering technologies:bar cod- ing the strain the can exerts on the
and $4,000 to $6,000 per office/ ing and radio frequency identifica- lifting arm, or some other structural
mainframe computer. tion (RFID). With the bar code sys- element of the equipment. Currently,
} Evaluation of the system is being tem, the truck operator receives a the system lifts the cart, halts for
3 provided by the Municipal Solid printout with each account address two seconds, then weighs the cart.
Waste Innovative Technology Eval- and respective bar code. The print- The net weight is calculated by sub-
! uation (MITE) program of the EPA. out is inserted into an on-board tracting a standard tare (empty)
"The program was selected for MITE printer with an automatic drive. The weight from the gross weight. Will-
because the concept of unit pricing reader is then fixed onto the printer iamson says he hopes to have a dy-
is attractive in solid waste manage- and scans the bar codes as the namic system that weighs in motion
ment, and to date the efforts have printer returns at each address. within six months.
been primarily volume based. The When the account bar code is read, The standard tare weight has not
pay by the pound system was worth the operator enters the weight. At created any accuracy problems thus
investigating," says Charlotte Frola, the end of the day, the data is down- far, according to Williamson. Using
a Solid Waste Association of North loaded onto the mainframe computer standard tare weights can be a prob-
America project officer involved in and prepared for automatic quarter- lem when ice or snow in the bottom
the MITE program. The MITE evalu- ly billing. of a cart, or some other foreign mat-
ation will analyze the cost effective- This system has the disadvantage ter, adds to the weight of the cart.
ness of the system; its reliability, of forcing the operator to work in a Systems that weigh the cart empty
accuracy and efficiency; the degree set sequence on the routes, but it as it is lowered are designed to alle-
a
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2 8 Circle No. 17 on Reader Service Card w o r l d w a s t e s <';
i
v?ate this potential inaccur%-.,,, the NIST, is higher: for example, 1/2 ,,die system,"Williamson explains. z
-Eventually, Farmington plans-to the tolerances listed above. Farmington calibrates scales three
install a system that can perform The tolerance ranges apply to times daily to ensure accuracy. If an
this function. However, Williamson gross, tare and net weights. This error is discovered, that day's data is
says problems have been minimal means, for example, that cart lifters thrown out. The data is replaced by
with the standard tare weight will have to meet the standards a mean figure computed for each
because most residents keep their when they weigh the cart full as it is account.
carts indoors, and any snow or ice raised (gross weight); when they Communication and cooperation
that does build up on the cart is weigh the cart empty as it is lowered between operators and management
knocked off when the cart is lifted. (tare weight); and when they com- also is crucial.According to Matthys,
Williamson is working with the pute the difference in weights (net this has been the largest problem
Minnesota Office of Weights and weight). with the Farmington project. s.
Measures to develop a set of accura- The truck operator has not always
cy standards. The standards are Reassessing Accuracy kept management informed of prob-
based on Class IV accuracy levels, Williamson feels these levels are lems that have occurred and damage
with some modifications. The cur- too stringent and plans to bring the to the vehicle, says Matthys. Con-
rent requirement for on-board scales standards he is developing with the sequently, during one and a half
is Class III accuracy, as adopted by state office before the NIST for incor- months of the collection testing, .;
the National Conference on Weights poration into the Handbook. Current accuracy problems could not be
and Measures (NCWM) and listed in accuracy has been within one to two explained. The discrepancies turned
National Institute of Standards and pounds for weights ranging from 45 out to be caused by damaged load
Technology (NIST) Handbook 44 (see to 200 pounds, he says. Williamson cells, which the operator had not
"Assessing Scale Accuracy," World monitors the accuracy on his test reported. Three load cells have been
Wastes, October 1992, page SS4). route of 40 cans. After the automat- damaged so far, according to Matt-
Class III accuracy sets step toler- ed truck weighs the cans, William- hys.The lifting arm is equipped with
ances, or standards for the accuracy son weighs the cans with a platform two cells.
of various weight ranges. For exam- scale and compares the results. "You really need to look at who
ple, for a scale indicating 1 Ib. divi- The system's accuracy will be key you are putting in the cab of your
sions, a tolerance of 1 lb. must be to winning residents' trust and trucks," agrees Williamson. "The
maintained for the first 500 lbs.; 2 approval for weight-based rates, operator of the truck has taken on a
lbs. for 501 lbs. to 2,000 lbs.; 3 lbs. Williamson notes. Residents should whole new set of responsibilities with
for 2,001 to 4,001 lbs.; and 5 lbs. for be thoroughly educated and kept weight-based rates. The billing func-
4,001 to 10,001 lbs. informed about the issue. "We must tions of your whole system have
The acceptance tolerance, or origi- be painfully honest with them, and essentially moved from accounting
nal accuracy of the scale required by share information on the progress of to the truck operators. They need to
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4e very aware, caring and willi Va., is considering weight-based 'r400olint because he anticipates the cur
•monitor the system and provide rates to encourage recycling. But the rent $33.36 per ton tipping fee will .r.
feedback." city also wants to accommodate cus- more than double in October 1993.
Williamson recommends in-depth tomer demand for more equitable Another city looking at weight-
training for operators. This training fees. Like Farmington, Hampton has based rates a few years down the
not only is crucial to operations and found most residents want their fees road is Victoria, British Columbia.
maintenance, but also to the cus- to fairly reflect the amounts of waste Glen Millbury from the city of
tomers who pay according to the they dispose. Victoria recently visited Farmington # ry
data collected. to study its progress in weight-based
The importance of customer edu- Fairer Fees systems. "Right now, we have a vol-
cation and cooperation has been Currently, Hampton is making ume-based bag system, but we're `
illustrated by another city's expert- some effort to accomplish both these going to be considering weight-based
ence as well. Durham, N.C., recently ends by charging service fees of rates in 1994. We'll sit tight till then
looked into weight-based rates to $1.15 per week for residents that and wait for Farmington's results,"
increase its 15 percent recycling recycle and $2.66 per week for rest- says Millbury.
rate, only to encounter strong public dents who do not recycle. To qualify Many communities and haulers
opposition. The opposition prompted as a recycler, resident must put out share that sentiment, seeing variable
the city council to table the idea recyclables twice per month. A bar rates as the wave of the future.
indefinitely. code on the recycling cart is scanned Volume-based rates already have
"There was strong citizen resent- by the operator and downloaded become an integral part of a number
ment at having to pay for their waste onto the main computer system. of cities' programs. But excepting a
disposal," says William Perry, Dur- This system has resulted in a 92 few pioneers, weight-based rates '
ham's sanitation director. percent recycling rate for a recent systems are still more theory than
The city's sanitation fees are built month, says John Ellis, the city's practice.
into property taxes, so the idea of a public works operations manager. As Williamson points out in
separate fee for waste collection was That is a significant increase over Farmington, there are still many r
construed by most residents as an the initial pilot of the program, complex issues to be handled in unit
added expense.The fact that proper- which resulted in a 60 to 65 percent pricing. "Establishing a weight-
ty taxes would still exhibit an annual rate. based program is not just an intu-
v kms'
increase added to that perception. Ellis hopes to get the city on a itive thing," he notes. "We've found ;
Perry says the city was looking pay-by-the-pound system within two the system has more angles than a
into a system with scales on the years, when the technology has been protractor." ■ ;
lifter arms of the side-loading vehi- more fully developed and tested. He
cles and;bar-coded carts. says further waste reduction and Katya Andresen is associate editor
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r
Ws/ashington County Haulers Ast,. iation
PO Box 1622
wit A Beaverton, Oregon 97075-1622
503-644-2761
Bill Martin, Executive Director
November 19, 1992
To: General Members
From: Bill Martin
RE: Beaverton School Recycling
The Association has received acceptance to the proposal made to
Beaverton School District on expanded school recycling.
To assure that all companies that provide service to a school in the
Beaverton School District understand the program as proposed, the
following discussion points should help clarify any misunderstandings prior
to implementation. The Beaverton School District has been provided a
copy for distribution to appropriate personnel.
Curbside Materials: Most of the standard items collected by the
residential curbside collection program shall be collected at all
schools. For school recycling these curbside materials include
cardboard, newspaper, tin cans, magazines, separated glass
containers, aluminum, ferrous metal, and non-ferrous metal. It is
each companies option to collect these materials with the
residential truck or to set up separation collection for high volume
items, i.e. cardboard. Motor oil and milk jugs (plastics) are not
required to be collected.
Official Containers: The standard "red bin" was offered to each
school for recycling for curbside materials only. Companies are
obligated to provide bins only for the above listed items. It seems
appropriate that up to three bins be given to each school for
materials placed at the curb for collection. "Red bins" are not
required to be provided for any other use.
Mixed Waste Paper: The collection of mixed waste paper is a
separate program from the curbside materials collection. It is each
company's option on the most appropriate method to collect mixed
waste paper. You may add the mixed waste paper to your
residential recycling truck or collect with a separate truck.
Associated Members Providing Solid Waste & Recycling Collection Service to:
the cities of Banks, Beaverton, Cornelius, Durharn, Forest Grove,
Gaston. Hillsboro, King City, North Plains, Sherwood, Tigard,
Tualatin, Wilsonville and Washington County
- Information Hotline: 641-4337
The internal school collection containers will be each school's responsibility
to provide. The hauler may provide them at your option. If you choose not to
provide internal containers, reference such requests to the mixed waste
paper marketing agent you will be using.
Providing outside storage at each school for collected mixed waste paper is
not a requirement but will be determined by the type of collection truck you
use. If collected by front or rear packer truck, it would be consistent with
our commercial service to provide a 1 or 2 yard (or appropriate size)
commercial container.ger if collected by a speciaHzed truck, carts nr cans would
be appropriate. If collected by your residential recycling truck, work with
your school on the most appropriate method of storage and collection that
fits your collection truck.
In all instances, the school needs to work with each company to assure that
collected mixed waste paper is prepared for the type of collection each
company will provide.
Milk Cartons: The collection of milk.cartons is also a separate program from
the curbside materials collection. It is each company's option on the most
appropriate method to collect milk cartons. You may add milk cartons to
your residential recycling truck or collect with a separate truck.
The internal school collection containers will be each school's responsibility
to provide. Again, the hauler may provide them at your option. If you choose
not to provide internal containers, reference such requests to the milk carton
marketing agent you will be using.
Providing outside storage at each school for collected milk cartons is not a
requirement but will be deteri-nii ied by -Lhe type of coNection truck you use. If
collected by front or rear packer truck, it would be consistent with our
commercial service to provide a 1 or 2 yard (or appropriate sized)
commercial container. If collected by specialized truck, carts or cans would
be appropriate. If collected by your residential recycling truck, work with
your school on the most appropriate method of storage and collection that
fits your collection truck.
In all instances, the school shall bag and seal all collected milk cartons for
odor/leakage control. Further, the school needs to work with each company
to assure that collected milk cartons are prepared for the type of collection
each company will provide.
Y
Collection Schedule: Curbside materials will be collected on the weekly
schedule established for the school neighborhood. This may be adjusted in
the case of separated material collection, i.e. cardboard.
It is the responsibility.of each school to determine the frequency of
collection for both mixed waste paper and milk cartons. The school has the
option in mixed wastepaper and milk cartons to either call the company
when collection is required or establish a regular schedule for collection. The
frequency should be worked out with each company by each school due to
the differences in collection methods offered by the companies. In all
instances, each company and each school should work to assure that
containers are full (not half empty nor overflowing) at time of collection to
assure maximum cost effectiveness of the program.
Recycling Charges: Curbside materials will be collected at no charge to the
school. Mixed waste paper and milk cartons collection is a fee for service.
The rate for collecting mixed waste paper and milk cartons shall be based
upon the established Beaverton/Washington County rates for the volume and
frequency of collection required by each school for each item with a 29.28%
price reduction (subject to annual adjustments) based on avoided disposal
costs. Each school and their collection company needs to work out the
volume requirements of each material to be recycled.
As an example, a school that has a 2 yard container of mixed waste paper
collected inside the City of Beaverton once each week will be charged
$103.17 ($145.88 - $42.71 (29.28%)). This rate would be subject to
change upon establishment of new container rates by the City and by the
County or City annual rate review determining new disposal percentages.
Additionally, this rate is subject to the market price remaining at $0. If the
market price drops below zero, the resulting cost of recycling at the depot
would be added to the collection charge. However, if the market price goes
above zero, the resulting sale value of the material would be deducted from
the collection charge.
Waste Reduction: In order that the added service of collecting mixed waste
paper and milk cartons do not add to the existing service charges, each
school has the responsibility to reduce the waste services required. Only by
reducing waste services requirements can each school add specialized
recycling services at the same overall cost or experience a reduction in their
past charges.
To give participating schools time to adjust to reducing their waste and
increasing their recycling, each company shall establish a moratorium on any
rate changes from past billings for the first 3 months after the school first
establishes mixed waste paper and/or milk carton recycling program. Past
billings shall be represented by the typical monthly charge over the previous
12 months. Each company shall note the recycling charge and/or reduced
waste service charge on their regular waste bill but will not include either
into the regular total bill. Charges for extra garbage collected is not included
in this rate moratorium.
Program Coordination: Each company is encouraged to undertake this new
program with the understanding that the policy of charging for recycling is
being tested. To assure a smooth implementation, each company should
follow each of these guidelines in establishing their individual collection
programs. In the event of problems not covered in this discussion, each
company should check with the Association on possible solutions. The
Association can then inform all the participating companies of decisions
reached.
The success of this program and the policy of a recycling charge is very important
in future discussions with local governments on expanded commercial recycling.
Call the office for clarification on these issues or for any other questions.
cc: Beaverton School District
Laura Dobyns
Washington County & Cities
C:\wp51\wcha\beaysch3.mem