Pay As You Throw Recycling Preliminary Report
Preliminary Staff Report
Pay-As- Y ou- Throw Program
Salina
Christina Coiner
. City of Salina Solid Waste Intern
August 17, 2006
Purpose of Report
This report offers information regarding the waste management systempay-as,,:you-throw
(PA YT). The report is intended to give general information aboutP A YT and its advantages and .
disadvaIlt.age.s,to <t ~ity like Salina, Kansas. Although this report provides information about
P A YT and the implementation of such aprogram, this report does not provide aproposalfor a
certain type of system. This reportisintendea to provide" general inforInation about "PA YT
~ystems and the many ways to implement such a sy~tem.
What is Pay-As,,: You,,: Throw?
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Pay-as-you-throw, or variable-rate..:pricing, is a system in which customers pay for
refuse nlanagement based on the amount oftrash that they throwaway. The
concept is similar to the way that other utilities are billed-by the specific amount
that is used. The customer that throws away less trash pays less than the customer
that throws away more trash. Those who recycle and reuse their waste are
rewarded financially for their efforts. PAYT programs reduce the amount of waste
that goes to the landfill by creating an incentive for customers to recycle and
reduce their waste.
When their waste impacts them financially, customers begin to look at refuse differently.
Curbside and other recy~ling prognulls ,"ong with compo~ng <I.I1d yard Wl)$tt:: progratlls flourish
in communities with P A YT. . In typical flat-fee solid waste' systems, customers may' not thiiik' .,
about reducing, reusing, or recycling the items they are throwing away. When disposingofth~se
items affects their pocketbooks, residents may begin to look for alternative ways to use or get rid
of their waste. Many residents of Cities that have implemented the program ehjoy having control
over their waste and the cost of its disposal.
AdViiiftages of Pay-As- You- Throw
PArt is a system that has been implemented by over 6,000 communities orall sizes in the
United States and many commUnities arotihd the world. A few states, such as Perthsylvania, have
mandated that all communities implement a P A YT system because of its many benefits. The
Environmental Protection Agency (EP A) strongly encourages communities to implement P AYT
and has many publications with extensive research, recommendations, and information about
PA YT that are very beneficial to a city looking to implement the program. Also, the Midwest
Assistance Program (MAP), a non-profit organization that provides technical assistance to riiiaI
communities in the Midwest, is supportive of the program and has publications of its own about
PA YT in the Midwest.
There are many advantages to a P A YT waste management system. These typically include:
increased waste reduction and prevention, increased participation in recycling programs, and
increased equity.
P A IT is aimed at reducing the amount of waste that goes to landtllls. Although many
C6mmilllities are aware of the benefits of recycling and redUcing waste, residefitS do hOt fully
begin to look at their waste composition and how to reduce it until they are affected by it
financially. P A YT gives the residents an incentive to begin looking at their waste and how to
properly dispose of it in order to keep our landfills in use as long as possible.
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P A YT offers an increased environmental awareness as residents begin to look much more closely
at their waste. According to Lisa Skumatz of the Skumatz Economic Research Associates, Inc.,
in "Measuring source reduction: pay-as-you-throw/variable rates as an example,"communities
that implement a P A YT system can expect a decrease of about 16% in waste sent to landfills.
About one-third of this goes to recycling, about one-third goes to yard waste diversion, and about
one-third is completely avoided through source reduction. Recycling programs, especially
curbside become very popular and successful in such a system. Many cities have doubled the
amount of yard waste composted and the amount of materials recycled after implementing a
P A YT program.
P A YT creates an equitable system for customers. The fairness of the system is easy to
understand as residents who have more waste pay more than those who have less. This type of
system is just like utilities, which are billed according to the amount used rather than a flat rate.
Disadvantages of Pay-As- Y ou- Throw
P A YT systems have seen success as the amount of waste collected decreases and the amount of
waste recycled increases. Despite its many advantages, there are potential problems with a P A YT
program. Typical problems include illegal dumping, multi-family housing, resident perception of
fairness, recovering expenses with an unstable revenue, and building a public consensus.
Major hurdles for a city like Salina would be fmding the best system for Salina's needs and goals,
educating residents, enforcing illegal dumping regulations, creating a fair system for special
populations, selecting and distributing containers, competing with private haulers, and creating a
bigger recycling program that would require more equipment and personnel.
Case Studies
Case studies were chosen based on their P A YT system and their similarity in size and region of
Salina, Kansas. Since there are only three known P AYT systems in Kansas, cities in other states
were contacted. The three known cities in Kansas with P A YT are EI Dorado, Westwood, and
Eureka. Although many of the case studies were of cities where the waste program is operated
municipally, one of the cities included in this information contracts with a private hauler.
Loveland, CO, with a population of 50,608 is the city closest in size to Salina ill this region with a
PA YT program. EI Dorado, population 14,000, is the only city of significant size in Kansas with
a PAYT program (both Westwood and Eureka have populations under 3,000). . The other cities
contacted were Bettendorf, Iowa (population 31,275), Jefferson City, Missouri (population
40,000), and Edmond, Oklahoma (pop~lation 68,315).
Contacts from each participating city were asked questions regarding the decision process, design
and implementation (planning, startup operational expenses, resources, budgeting, associated
programs), analysis and results (statistics, pn)blems), public opinion (before, after), and lessons
learned (planning, public opinion, operations, and elected officials).
Information gained from the case studies can be very beneficial in implementing a P A YT
program. The case studies revealed possible advantages and disadvantages and advice about
implementing a P A YT system. This information along with help from other regional contacts
could be very helpful when planning and implementing a P A YT system. .
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City of Bettendorf. IA
l:ertel/do/:f. II /'o/llllal;ol/: J 1.275
Reason for P AYT:
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· . Hell? pay for cUrbside re9ycling proW"1IJP 'll
~. Could no longer rely onfimds fromproperty,tiixes
!City '" tMjI, ~
';;J; No, nohtllowed in cit ~ ~ III &I,
Volume-based II
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The City of Bettendorf, IA (population 31,275) began its PAYT system in 1995 as a way to help
pay for a curbside recycling program and to become a self-supporting service (property taxes
covered trash collection until 2004). The program was modified in 2002 to become a completely
variable-rate, self-supporting service. For waste, residents have a choice of carts or stickers in a
variable container system.
Bettendorf has a curbside recycling program and a yard waste program that are paid for by waste
fees. Recycled materials are picked up in split carts (materials are separated into two main
categories) and sent to the publicly owned recycling facility where they are processed. Since
implementation, the City has seen steady amounts of materials diverted from the landfill and an
estimated 25% of recycled material each year. Along with curbside recycling pickup, yard waste
and bulky items are also picked up once every four weeks.
Bettendorf struggled with the public in the beginning, but the council stayed firm on their
decision and the City no longer hears complaints. Staff, residents, and elected officials seem to
be satisfied with the program in its current form. They have a fairly minimal problem with illegal
dumping because of their bulky item pickup program. Bettendorf does not have to worry about
private haulers competing for business because, due to an ordinance, all residents must pay for
the service.
An example of the cart
sizes offered by the City of
Bettendorf
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City of Edmond. OK
1;"dl1ll/lId. 01\" PI/fllllalil/II: 6S.315
I> ~. Improve operating. efficiency and ecpnomics II! ;12 ,
Increase recycling ~
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The City of Edmond, OK (population 68,315) implemented a PAYT system in 1995 to improve
operating efficiency and the economics of the old system. The City of Edmond had two options:
increase the monthly flat fee or change the collection system or methods so that it was more cost
efficient. The City decided to change the system and methods to a carts/bags variable container
system.
They successfully operate a transfer station for recycling, but do not have a yard waste program.
They use very large carts (105 gallon) compared to the other P A YT systems researched.
Surprisingly, many of their residences have more than one 105 gallon cart. This is more than
likely because they do not have a yard waste program and their yard waste is part of the regular
refuse collection. Also, they do not significantly raise prices for a larger cart or for an additional
cart. This reduces the incentive to recycle and reuse waste.
The City of Edmond uses an automated system for collection. This causes problems on the street
with vehicles or other objects hindering their ability to collect the cart. In recent studies, residents
have rated their satisfaction of the program very high, and it seems as though the staff and elected
officials are also satisfied.
An example of
Edmond's 3 container
options
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City of El Dorado. KS
U Dorado f\S Poplllalioll: 14.fI(}fI
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Added apurbsi~ recyclingprogpml.' ill m ~
Reduce waste sent to the lilndfill.ill>
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Reasoll for P A.. YT:
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Minimal problems, enforce ticketsbf$lOO ~
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Public Service Annou.ncementsbn T'V~mailers
El Dorado (population 14,000) is the only city in Kansas with a population larger than 3,000 with
a P A YT system. The system was created as a way to provide a curbside recycling program to
residents. El Dorado already had a bag system for collection, so a bag PAYT system was
implemented. Because the system only uses bags, collection trucks and methods are much less
complicated and time-consuming than cart systems.
The City of El Dorado has a single-stream facility for recycling. They have about 30% of their
waste stream diverted through recycling efforts. One problem with the system is the turnover rate
of employees to staff the recycling facility because of the difficulty of work and the low wages.
The city is working to try to eliminate this problem.
Citizens seem to be very satisfied with the program, but it has taken much effort by staff to get
the support of elected officials. The program seems to be successful in its efforts to decrease
waste sent to the landfill and increase recycling.
One of the City ofEI Dorado's rear-load,
single stream recycling trucks
The City of EI Dorado operates a
municipal recycling center
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City of Jefferson City. MO
.le.Uenol/ Ci~r. .110 Populatiol/: 4tJ.O()()
Reason forPAYT: 00 .
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Monthl re cli rate:
" Yard waste s stem:
Yard ,waste rate:
Re c1ed material rate: \II
Materials diverted from
landfill:
'Problemwth illegal
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Education of residents:
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Adv~~''to city ~oups and in. the newspaper, hold t()~h~l
',!meetings to get input fromresidents !Illll ~ I' '" ~ !Ii'
Jefferson City, Missouri, population 40,000, contracts with private haulers for all of their waste
management. They have had a PAYT system in place for about 30 years, so the community is
used to the program. Currently, the program uses a combination bag/cart container.
Jefferson City has had many failed attempts at curbside recycling, but the community uses drop-
off recycling centers around the city. Also, a drop-off location for yard waste has been successful
as a free service to the community.
Town meetings have been a great way for Jefferson City employees and elected officials to keep
in contact with the community in order to fully understand the opinions of the public.
Jefferson City offers both bags and carts as
container options
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City of Loveland. CO
I-tIl'dl/lul. co l'opl/lllliol/: 51),(i1l8
III
. ReduCe employee injuries
i d1 :~e~ded ~ew !l~,ev , ~ ~ II m ill ~ rn~
. '. 'Lessen dependence on landfill
,..~ Increase Rec cling m ~
Reason for P A Y"I':
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Recycling syste~~~
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Monthl re' " clin" rate:
Yard waste s stem:
Yard waste rate: ~
Rec c1ed material rate:
Matenals diverted from
'landfIll: ~ .~ ~
. Problem with illegal"
dum in : ~
Education of residents: Ii<
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The City of Loveland has a very involved P A YT program. The program was first created as a
way to reduce the amount of employee injuries from overloaded trash cans. Loveland was at a
point where a new fleet and a recycling program were needed, so they implemented a P A YT
system. The program combines bag/cart containers in a multi-tiered system.
The City of Loveland currently uses a split-body recycling truck and system as the customers
must sort their materials into two categories-paper vs. container (plastics, aluminum). They will
be switching to a single stream system where all recyclable materials will be collected without
any sorting. Recycling is $5.25 per month and is a fee that all residents must pay, even if they do
not recycle or receive collection service from .
the City. This type of system promotes
recycling as residents realize they are paying
for recycling anyway, they might as well use it
to save money on their trash. Yard waste and
trash are collected by automated trucks.
The Solid Waste Superintendent, Bruce
Philbrick, recommended using a single-stream
recycling facility and making sure private
haulers cannot take away customers.
The City of Loveland's split-bin recycling system
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Summary and Evaluation of Case Studies
Planning Process-
The planning process should be given a lot of time and effort. If the program is well-designed
according to the needs of the communitY, then the program will run much more smoothly. There
are many resources and contacts available to help with the planning and implementation process.
Associated Programs-
A system like P A YT needs to have other programs in place that allow residents. to get rid .of their
waste in other ways, such as a recycling program and a yard waste program. Curbside collection
of yard waste and recyclables is the best option for a city implementing P A YT. This gives the
resident a convenient way to minimize his or her waste. Some of the cities studied have split ..
trucks and bins for recycling and have seen great recycling rates whereas others only have drop-
off recycling and only see a small amount of recycled material.
A single stream system is best for the type of volume of recycled material that can be created by a
.p A YT system. Having a single stream system allows for the reuse of trash trucks for recycling
trucks, making them almost interchangeable if something happens. Single stream also cuts down
on the amount of time spent. at the curb as items are separated at the recycling facility. The'
problem with single stream is that currently in Salina there is no facility that can handle a single
stream recycling system.
Operations-
Four of the five PAYT programs listed as case studies are run by the city, whereas only one
program studied is run by a contracted private hauler. There are many operation options that can
make a big difference on the type of P A YT system implemented. The types of associated
programs implemented have different consequences. There are many options, such as split-trucks
and split-bins for recycling, automated trucks, or having a four-day work week for employees.
Deciding to do curbside pick-up, whether it be curb-sort or a type of single stream system has an
affect on the type of fleet and amount of employees ne,eded. Also, employee work load should
also be taken into consideration as employees may be tied up selling the bags/tags, diStributing
~arts, or dealing with customer questions and complaints, especially during the first few months
of implementation.
Illegal Dumping-
After researching the five cities, it is evident that enforcement will be necessary in order to stop
illegal dumping before it becomes a problem. Although illegal dumping is an anticipated
problem with PAYT, there seems to be only a minimal problem with illegal dumping in cities
similar to Salina with a P A YT system. The cities surveyed reported that the amount of illegal
dumping did not increase with the implementation of P A YT.
Satisfaction Rates-
In all of the P A YT systems studied, it seems as though all parties (citizens, elected officials, and
staff) are satisfied. Although all cities surveyed reported having difficulty with resident
resistance; most have now found that the residents enjoy the program and understand why theirscity switched to a P A YT system.
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Budget-
All of the cities surveyed are fully self-supported through the fees charged to residents for
service. P A YT isa great way to hold customers accountable for the amount of waste they have,
but there are many budgeting issues that come along with having unstable revenue. As customers
begin to dispose of less waste, they will be paying less for trash service. In order to cover these
expenses, it is recommended that a two-tiered or multi-tiered system be implemented. In such a
system, there is a flat fee per month for service and then residents are charged per container or
based on a subscription level. Although subscription carts do not provide the same incentive to
recycle, it is a more fmancially stable option.
Implementin2 a P A YT system
Recommendations: Identify, Survey, Educate, Select a System, and Pilot
Detailed planning is required to implement a P A YT system. There are many steps involved in
creating the right system for a specific community. If done properly, implementation of such a
system will take a few years as you must identify goals and needs, survey citizens, educate the
community, select a system for implementation, and conduct a pilot progf'am.
ldentify- .
P A YT is a very flexible program that should be decided upon only after thorough investigation of
the goals and needs of the current collection system. There are many things to consider: current
container, current fleet, recycling facility, recycling program, yard waste fleet, yard waste
program, current rates, private haulers, budgeting, special populations, and customer satisfaction.
There are many advantages to a P A YT system, but it may not be the right system for every city.
Identifying the current situation and the possible outcomes of such a program is a great way to
start a successful program. There are many resources available to help with this process:
publications from the EP A and the MAP, and regional contacts with these organizations who are
more than willing to discuss issues and generate ideas about goals and needs.
Survey-
A citizen survey would be the best way to understand the cOInmunity's stance on a P A YT
program. Such a survey would be very beneficial in creating a program that the citizens would
like and participate in. Survey questions should address the issues at hand and aSk the residents
what would be the most equitable way to deal with this problem. Most residents will then realize
that P A YT is a viable system for solid waste management. Sample surveys from the cities
contacted for this report have been collected for future use.
Educate-
The involvement ofthe community will have a large impact on the success of the program. The
whole community should be educated in order to promote cooperation and understanding the
choices. Ifthe City decides to start a PAYT program, education and involvement of the
community should occur many months or years prior to implementing a P A YT program and
~hould continue after the program is implemented.
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Select of a System-
There are many ways to create a P A YT system. Communities must tailor a system based on what
will work best for their situation, needs, and goals. Every community is different, and refuse
collection is no exception. Systems can be as simple or complicated as necessary to fit the
community.
Types of Programs
There are two main types of programs used in PA YT: weight-based and volume-based. Weight-
based programs require the residents to pay a certain amount per pound of waste, requiring a
complex system of measurement, record-keeping, and billing. Volume-based programs charge
the customers per bag or can that they set out, requiring residents to comply with particular rates
based on container type/size. Types of volume-based options include: bag, tag/sticker, and
subscription/container. Table I shows the advantages and disadvantages of each system.
Billing Options
P A YT systems also have many billing options. There are three main types of billing:
proportional, variable container, and two-tieredlmulti-tiered.
· Proportional systems charge a flat price for each container and all containers are the
same size. For example, for each 32 gallon bag set out, the customer is charged $2.00.
This type of system is useful as it promotes the reduction of waste and allows customers
to only put out trash when necessary, creating a better option for customers with very .
little trash.
· Variable container systems allow customers to choose the container size that best suits
their waste needs. Prices are set according to the size of container chosen. Customers
with large containers pay more than customers with small containers.
· Two-tiered and. multi-tiered systems set a montWy fee to cover the costs of the
municipal solid waste management and an additional charge per unit. This type of
system is good for holding customers accountable as well as creating a steady income for
aiding in the support of providing the service.
Selecting the best system for the community is one of the biggest factors in a programs success.'
There are many things to consider when selecting the type of P A YT system:
I. What are the best billing and container options for Salina, KS?
2. Will the system require new equipment or employees?
3. Is the system convenient for the customer and the collector?
4. Will the system be self-supporting?
5. What are the possible problems with this system?
6. Will this type of system encourage the reduction, reuse, and recycling of waste?
7: Is the system efficient?
8. What are the necessary recycling and yard waste programs that should be implemented
along with this program?
9. What impact will this system have on the city operated landfill?
P A YT programs can be as simple or as complex as necessary in order to fulfill the needs and
goals of the community. Current and necessary resources and equipment need to be taken into
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consideration. By reusing most of the resources and equipment that the City already has, City
staff can greatly reduce start-up costs.
By impacting customers financially, the City of Salina would be creating a strong incentive for
residents to recycle. The current recycling system would need to be modified in order to
accommodate.for the increase in recycling by customers.
Pilot-
A pilot study is the best way to gain a reliable understanding of the costs and feasibility of a
P A YT program in Salina. A pilot program would allow the customers and the City to experiment
with a P A YT program without fully investing in a system that may not succeed. By conducting a
pilot study of only a small portion of the city, it will be easy to determine whether or not such a
program will work and fulfill its goals: P A YT creates an uncertainty when it comes to revenue
because you do not know exactly how much will be charged to each resident each month. A pilot
program may make the City more aware of the P!ojected.revenues and costs of operation. Rates
can be adjusted accordingly as the amount of waste diverted and waste collected is better
understood. .
Conclusion
P A YT seems to be a viable option to manage solid waste based on environmental goals and ideas.
Creating a P A YT program can take several years of planning, but it can be worth it in the long
run; Local elected officials, citizens, and staff seem to enjoy the equity of the system and the
added incentive to recycle. There are many benefits to having a P A YT system, and these should
be further .researched by the City of Salina. There are many useful contacts and organizations
. that would be willing to help Salina if it is decided to continue research on the topic of P A YT. If
it is decided to continue research, follow-up reports will have more detail and give direction as to
what will be the best system for Salina.
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