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HomeMy WebLinkAbout06/00/1990, 5 - ENVIRONMENTAL COORDINATION/SOLID WASTE STAFFING ' 4�►i ll City Of Sary UIS OBISPO MEETING DATE: l COUNCIL AGENDA REPORT 11E11 NUMBE FROM: John Dunn, City Administrative Offic4�a Prepared By: Deb Hossli, Administrative Analyst SUBJECT: Environmental Coordination/Solid Waste. Staffing CAO RECOMMENDATIONS: 1. That the Council direct staff to convene an Environmental Activity Coordination Committee composed of key representatives from each department responsible for environmental programs in an effort to improve coordination and communication between City departments and other governmental agencies when responding to environmental issues. 2. That the Council approve the creation of a three year half- time contract Solid Waste Coordinator position in the Public Works Department to address staffing needs associated with planning and implementing Assembly Bill 939, the California Integrated Waste Management Act of 1989, and other solid waste related tasks identified in this report at an estimated cost of approximately $25,000 annually. REPORT-IN-BRIEF In developing the 1989-91 Financial Plan, the City Council established a goal in their Work Program to improve coordination and communication between City departments and other governmental agencies when addressing environmental issues. In response to this goal, staff has conducted an organizational review of the City's environmental program management. The purpose of the organizational review has been to examine how the City presently manages its environmental programs, identify areas in need of improvement and provide the Council with recommendations for improving the City's response to environmental issues. In conducting the organizational review, staff developed an Environmental Activity Inventory (EAI) which catalogues every environmental function or activity presently managed by the City. The EAI provides summary information for each environmental function or activity, such as what the function entails, who performs it and the reporting requirements attached to it. The review of the EAI revealed: * That the City takes a decentralized approach to environmental program management. Under this method, individual operating departments within the City take responsibility for implementing and monitoring environmental programs. Examples of this include the Community Development Department assumes responsibility for the environmental review process and the Fire Department assumes responsibility for City hazardous waste programs. R E C E I V E JU;j . 1990 SAAt� CAI 41111IIII1pMll city of San suis OBlspo COUNCIL AGENDA REPORT Council Agenda Report Page Two * That the decentralized or departmental assignment approach to managing environmental programs has generally been quite successful and the City's environmental programs are located in the appropriate departments and operate efficiently. * That the City's solid waste program is in need of greater attention as a result of the passage of Assembly Bill 939, the Integrated Waste Management Act of 1989. This legislation totally reorganizes solid waste management in California. Counties, with the assistance of cities, are required to prepare countywide Integrated Waste Management Plans. Among other things, these plans must show how cities and counties will reduce their waste streams 25% by 1995 and 50% by 2000. The requirements of this legislation are significant and will have a far reaching impact on the City. Once the review of the EAI was completed, staff conducted a survey of other cities to determine how others managed environmental programs. A total of eight cities were surveyed and two basic approaches were identified: some variation of decentralized environmental program management (as is practiced in San Luis Obispo) or centralized environmental program management. The only centralized model staff found was located in the City of San Jose. Under their model, an Office of Environmental Management was created as a division of the Administrative Office. The office coordinates the City of San Jose's energy management, water resources, waste management, and environmental protection programs. After thoroughly reviewing the information compiled in the survey, staff concluded: * That most smaller cities practice some form of decentralized or departmental assignment environmental program management and cite program cohesiveness, staffing efficiency and cost effectiveness as the primary reasons. * That the primary benefit of centralized environmental program management lies in improved coordination and communication levels. In addition, few cities practice centralized environmental program management and only larger cities can realistically support this type of structure given cost considerations. s- a- I�IIIIIIII�II�glNlll city or SM LUIS OBISp0 MIGM COUNCIL AGENDA REPORT Council Agenda Report Page Three * There are several examples where decentralized or departmental assignment environmental program management is integral to a program's success. The environmental review process required by the California Environmental Quality Act (CEQA) represents a good example of this. * The city can make improvements in the inter-departmental and inter-governmental communications regarding environmental programs. After considering the information gained during the organizational review, staff developed the following recommendations for the City Council's consideration to best respond to the conclusions reached: * Determine that the decentralized or departmental assignment approach to environmental management is appropriate under present circumstances. * Recognize that benefits can be gained from incorporating selected successful elements of centralization into the City's organizational structure and begin by convening a citywide committee of key departmental representatives responsible for environmental programs. * Authorize staff to work with the Personnel Director to create a three year half-time contract Solid Waste Coordinator position within the Public Works Department at a cost of up to $25,000 annually (which includes monies for furnishings and other necessary equipment) to oversee the planning and implementation of AB 939 as well as other solid waste tasks identified in this report. DISCUSSION Background over the past several years, environmental protection has become an issue of extreme importance all over the United States. Growing public awareness over issues relating to water and air quality, solid and liquid waste disposal, hazardous waste disposal, and others has created a demand for more rigorous programs to protect the environment. Political bodies throughout the country have responded to these demands by enacting more stringent environmental control legislation, promoting programs that conserve and reuse natural resources, and making greater attempts to educate the public regarding the value of protecting our environment. 111191�I11 MY Of San LUIS OBISPO � Nii% COUNCIL ACENOA REPORT Council Agenda Report Page Four Since the early eighties, the State and Federal governments have enacted several comprehensive legislative packages overhauling standards for water quality, air quality, and hazardous waste management. In addition, the state recently enacted Assembly Bill 939, the California Integrated Waste Management Act of 1989. Under this legislation, counties are required to prepare, with the assistance of cities, Integrated Waste Management Plans. Among other things, these plans must demonstrate how cities and counties will reduce their waste streams 25% by 1995 and 50% by 2000 or face civil penalties of up to $10,000 per day for failing to comply. The adoption of new environmental protection programs, coupled with public demands to become more proactive and innovative in approaching environmental issues, has had a significant impact on local government agencies. In the past, the City has responded to State and Federal mandates and public concerns by taking a decentralized approach to environmental program management. Under this method, individual operating departments within the city are assigned responsibility for implementing and monitoring environmentally related programs. The Council has expressed a desire, however, to improve coordination and communication between City departments and other governmental agencies when addressing environmentally related issues. To fully respond to the Council's goal, staff has recently conducted an organizational review of the City's environmental program management. The focus of the organizational review, and the purpose of this report, has been to thoroughly analyze how the City presently manages its environmental programs, identify areas in need of improvement, and provide the Council with several alternative solutions to improve the City's response to environmental issues. Staff Analysis In conducting the organizational review, staff set out to first determine whether the departmental assignment approach to environmental program management was effective and what areas, if any, are in need of improvement. This was primarily accomplished through closely examining how the City currently manages this process and surveying other cities for alternative management options. Information to evaluate the effectiveness of the City's existing approach was gained through a detailed review of the EAI. The survey of other cites allowed us to identify and evaluate alternative management options available to the City. Ljs city or San GUIs OBISPO Ilii% COUNCIL AGENDA REPORT Council Agenda Report Page Five Analysis of the Environmental Activity Inventory (EAI) As part of the review of the EAI, staff developed an organizational placement matrix (see attachment 1) for all of the City's environmental programs. The evaluation confirmed that the City does use the method of assigned departmental responsibility to manage its environmental programs. Activities related to the environment can be found in nearly. every department; some programs are indirectly related to the environment and comprise very minor components of a department's responsibilities while others are directly linked to the environment and represent integral elements of a department's responsibilities. In developing the matrix, staff examined each environmental activity by first asking whether the activity could function independently. It was felt that from an operational perspective, the only real candidates that could benefit from centralization were those that could operate on a stand alone basis. Once this was determined, staff attempted to ascertain whether the activity was currently operating successfully. In the cases where it appeared there was room for improvement, staff then attempted to identify whether greater gains in communication or coordination could be achieved by developing methods for improved communication and coordination within our existing structure or by structural organizational changes involving centralized environmental coordination. Close review of the EAI revealed that in most cases, department assigned environmental program management has worked successfully in the City. Staff found that, generally, the City's environmental programs were located in the appropriate departments and operated efficiently. The only significant exception to this finding was identified in the area of solid waste. Staff found that this program was in need of greater attention. It is important to note, however, that the need for improved response in this program is more the result of inadequate staffing available to address current issues as opposed to improper organizational placement. Solid Waste Concerns With respect to solid waste issues, staff has found that the passage of Assembly Bill 939, the Integrated Waste Management Act of 1989, will have a significant impact on the City's responsibilities in this area. As mentioned earlier in this report, AB 939 totally reorganizes solid waste management within California. Counties, with the assistance of cities, are required to prepare countywide Integrated Waste Management Plans. Among . 5 city of San LUIS OBISPO COUNCIL AGENDA REPORT Council Agenda Report Page Six other things, these plans must show how cities and counties will reduce their waste streams 25% by 1995 and 50% by 2000. The legislation also requires each county to establish a Solid Waste Management Task Force that serves in an advisory capacity to the Board of Supervisors for planning and implementing AB 939. The San Luis Obispo County Solid Waste Task Force is composed of representatives from the county, each city, the solid waste industry, the recycling industry, the public, and environmental groups. The effects of AB 939 on the City are far-reaching. The City is required to prepare a Source Reduction and Recycling Element (SRRE) , for incorporation in the countywide plan, that sets out how the City will achieve the recycling goals established in the legislation by July of 1991. Specifically, in developing the SRRE's, the City will be required to submit: * a waste characterization study that identifies the components of the City's waste stream. * a source reduction program and implementation schedule that shows how the City will achieve the solid waste reduction goals contained in the legislation through a combination of recycling, source reduction and composting. This includes identifying the facilities that will be needed to insure the reduction goals can be attained. * a recycling program and implementation schedule that shows how the City will achieve the solid waste reduction goals contained in the legislation. This component will also have to demonstrate how the City will improve the markets for recycled materials. * a composting program and implementation schedule that shows how the City will achieve the reduction goals contained in the legislation. * a solid waste facility capacity plan that projects the disposal capacities needed to accommodate the City for the next fifteen years. * a public education and public information campaign that increases public awareness and participation in recycling, source reduction, and composting program. � ►�Illllf�p����jl city of San Luis OBISPO WVZW COUNCIL AGENDA REPORT Council Agenda Report Page Seven * a plan that identifies the total implementation costs of AB 939 and sets out financing mechanisms that will be used to fund the implementation costs. * a special waste plan that demonstrates how wastes such as asbestos and sewage sludge will be handled and disposed. * a household hazardous waste program and implementation schedule that shows how the City will collect, treat, and dispose of hazardous waste. Prior to AB 939's passage, the City's responsibilities for solid waste were basically limited to negotiating and administering the garbage franchise agreement and monitoring the County's solid waste planning activities. An analyst position within the Public Works Department devoted a small portion of his time to ensure that this responsibility was met for the City. This person has other major job responsibilities that are necessary to the proper functioning of the Public Works Department. Therefore, for all practical purposes, the City does not have any available staff specialized in the area of solid waste to respond to the requirements of AB 939. As a result of recommendations from the Solid Waste Task Force, the Board of Supervisors has authorized County staff to solicit for consultant services to assist each city with preparing their SRRE's and the County with preparing the Countywide Integrated Waste Management Plan required by AB 939. (During the May 1, 1990 meeting, the City confirmed its support for the consultant concept by approving a Memorandum of Understanding with the County and six other cities in the county. A $1.00 per ton tipping fee surcharge will be used to finance the costs of the consultants) . Using a consultant to prepare these documents is estimated to cost the average household in the City between 11 and 13 cents per month and will be assessed through increased solid waste collection rates. (It should be emphasized, however, that the 11 to 13 cent price figure addresses resource needs through the planning phase of AB 939 only. Once the City's SRRE has been adopted, it is likely that additional resources will be needed for the implementation phase of AB 939. ) The County expects to have a consultant on board by August 1, 1990. Even with the assistance of consultants, compliance with AB 939 within the timeframe established by the legislation will be difficult. Monitoring the progress of the consultant, along with making preparations to implement the 'legislation, is expected to 411Wjjj city of sAIS OBISpo U WOOD COUNCIL AGENDA REPORT Council Agenda Report Page Eight be extremely time consuming. The fact that most cities and counties in California are relatively unfamiliar with programs to achieve the intent of the legislation further contributes to the expected difficulty in attaining the timeframe set out in the legislation. It is likely that cities and counties throughout California will be struggling together to develop first time programs responding to AB 939. In addition to AB 939, there are several other critical solid waste related tasks that are not receiving adequate attention due to lack of available staff. This includes such activities as full implementation of the City's recycling plan, development of procurement policy that requires the use of recycled products whenever possible, and implementation of community education programs to increase city residents recycling awareness. Inadequate staffing also precludes the City from pursuing development and implementation of more creative and innovative programs to respond to the solid waste crisis, such as developing programs that encourage the creation of recycling markets in the City. There is also a host of legislation currently under - consideration by the state legislature that strengthens provisions of AB 939 and creates new solid waste requirements to complement the legislation's effectiveness. Maintaining a familiarity with all the legislative activities relating to solid waste alone, has become a significant task. All of these activities are important elements of the City's total response to California's solid waste management planning efforts. Finally, the most substantial component of the City's solid waste concerns lies in the area of implementation of AB 939. The planning efforts alone for AB 939 require tremendous effort from the City. However, the real burden will be seen in the implementation phase of AB 939 where the City will be required to meet the goals established in the legislation. Survey Results Once the review of the EAI was completed, staff surveyed cities to determine how others managed environmental programs (see Attachment 2) . As discussed earlier in the report, staff found that most of the surveyed cities practiced some form of decentralized or departmental assignment management of environmental programs and cited staffing efficiency and program cohesiveness as the primary reasons. Many cities admitted that decentralized environmental program management did have its drawbacks with respect to communication and coordination levels. However, it still represented the most realistic approach for smaller cities with limited staffing resources. 0►Wl111RC11$ city Of San LUIS OBISPO COUNCIL AGENDA REPORT Council Agenda Report Page Nine Centralized environmental program management was the alternative organizational structure that was identified as part of the survey. The City of San Jose currently practices this approach. Under their model, an Office of Environmental Management was created as a Division of the Administrative Office. The office coordinates the City's energy management, water resources, waste management, and environmental protection programs. The Office has been in existence for five years and has 45 employees. The primary benefit to San Jose's organizational structure, housing their major environmental programs under one department, lies in the area of improved coordination of response. In a City as large as San Jose (population: 740,000) , it is much easier to promote a common and consistent message to the community regarding the environment when all the programs are coordinated by a single department or division. Public access is also improved when related programs are centralized. In addition, centralized management promotes greater levels of communication and encourages sharing of common information in areas such as public education. Comparing A Centralized Organizational Structure to the City's Present Organizational Structure In comparing the benefits of the City's existing approach to managing environmental programs to a centralized environment, such as in San Jose, staff reached two conclusions early in the analysis. First, city size bears a direct relationship to the type of organizational structure used to implement environmental protection programs. The survey conducted by staff, while limited, indicated that few cities practice centralized environmental program management and only larger cites can realistically support this type of structure given cost considerations. Secondly, staff concluded that there were several instances where decentralizing environmental program management was an integral part of the program's success. With respect to the first conclusion, the city size relationship, staff's research found that larger organizations can best benefit from centralized environments. The reason behind this lies a city's distribution of functions related . to protecting the environment. In a City the size of San Luis Obispo, a large number of our employees function in very general roles. As a result, many of our environmental activities represent small components of existing position's job assignments. As an example, protection of the City's creek habitat, an environmental activity performed by the Community Development Department, represents a small portion of one Planner's responsibilities. Another example can be found 011'111'lMAi city of San LU's osispo MOZZO COUNCIL AGENDA N A RERORT Council Agenda Report Page Ten in the Police Department. Enforcing vehicle emission violations is the responsibility of all traffic officers, but represents a minor part of each officer's total job assignment. Extracting small portions of job assignments throughout the City that relate to environmental protection and placing these activities into a centralized environment would be inefficient and difficult to achieve from a staffing perspective. It is not likely that the City could hire a single position with the 'expertise to accomplish a wide variety of environmental tasks, potentially ranging from creek habitat protection to vehicle emission violations enforcement. The City would have to hire additional staff to accomplish this as the need for the Planner and the Traffic Officer would remain even though small components of their jobassignments relating to environmental protection would be assigned to others. This example serves to illustrate the difficulty a smaller city with diverse responsibilities would have in centralizing environmental program management without adding new staff to accomplish this. A reverse situation, however, exists in many larger cities, such as San Jose. In a larger sized city, with a greater pool of employees, it is common to have many specialized positions responsible for a single activity. This type of arrangement allows a city greater flexibility in choosing a centralized approach. With respect to the second conclusion, staff found that there were several environmental programs that clearly operated more successfully in a decentralized manner. An example of this can be found in the environmental review process (CEQA) . This process represents a highly integrated component of the development review process and a major overall responsibility of the Community Development Department. The success of this process lies in the department's ability to concurrently review the physical components of a proposed development along with its potential environmental impacts. It would be inefficient to extract the environmental review (CEQA) function from the Community Development Department in an effort to centralize environmental activities. Any gains in coordinating environmental programs would be offset by the losses in staff efficiency and cohesiveness of the development review process. Finding and Conclusions After considering the information gained while conducting the organizational review of the City's environmental program , a s►mi1ll��M1JJJi city of san Luis osispo WHiMs COUNCIL AGENDA REPORT Council Agenda Report Page Eleven management, the staff reached several important conclusions that have been listed below: * The City's past approach of integrating environmental programs into operating departments that best complement the activity has generally been quite successful. It is premature for the City to consider centralizing the management of environmental programs as cost-effective improvements would not be gained in the short term. * Improvements can be made in inter-departmental and inter- governmental communications regarding environmental issues, and programs should be implemented to accomplish this. * The City must place additional emphasis on responding to the newly mandated solid waste programs and a plan should be developed to comply with the mandates of Assembly Bill 939. Recommendations In order to best respond to the findings and conclusions reached after conducting the organizational review, staff is recommending that the City Council take the following actions: * determine that the decentralized or departmental assignment approach to environmental management is appropriate under present circumstances. * recognize that benefits can be gained from incorporating selected successful elements of centralization into the City's organizational structure and begin by convening a citywide committee of key departmental representatives responsible for environmental programs from the Community Development Department, the Public Works Department, the Utilities Department (including Water Conservation) , the Fire Department, and the Administrative Office. As proposed, the Environmental Activity Coordination Committee would be chaired by the Administrative Office, meet on a monthly basis to discuss the progress of environmental programs, and provide updates on internal City activities and other governmental agency activities that would interest or affect members of the Committee. This would help to increase the level of coordination and communication between City departments as well as the other governmental agencies that play a major role in the City's environmental programs. The committee would also N11Jf AWJli city of San Liuis osispo jNORM@ COUNCIL AGENDA REPORT Council Agenda Report Page Twelve be charged with continually . identifying and evaluating areas where the City could improve its delivery of environmental services. * authorize staff to work with the Personnel Director to create a three year half-time contract Solid Waste Coordinator position within the Public Works Department at a cost of up to $25,000 annually (which .includes monies for furnishings and other necessary equipment) to oversee the planning and implementation of AB 939 as well as other solid waste tasks identified in this report. A proposed job specification has been attached for Council review (see attachment 3) . It is staff's opinion that by adopting this recommendation, staff will be in an excellent position to begin addressing the Council's concerns with environmental program management at a reasonable cost to City residents (costs of this recommendation will be discussed in the Fiscal Impact section of this report) . In addition, by devoting a half-time position to solid waste management, the City will be in a better position to define and coordinate the roles and responsibilities of the City, the County, the garbage company and private recycling firms in responding to solid waste issues. It should be emphasized that staff is recommending a contract position as opposed to permanent position because the total impact of AB 939 cannot be measured until the Integrated Waste Management Plan is adopted by the State and the City begins the implementation phase. Staff fully believes that solid waste management requirements will become a permanent municipal responsibility and therefore this position will also become permanent. However, because San Luis Garbage Company has recently hired a recycling coordinator and the County's proposed budget contains a recommendation for an additional position to coordinate AB 939, staff is recommending a conservative approach to additional staffing at this time. It is felt that these additional resources will help to reduce the City's responsibilities with respect to planning for AB 939 and implementing our Recycling Plan. Again, additional resources may be needed once the City reaches the implementation stage of AB 939. CONCURRENCES The Public Works Director, the Community Development Director, the Personnel Director and the Finance Director have reviewed and approved this report. 011111AW11111 city of San LUIS osIspo 11096 COUNCIL AGENDA REPORT Council Agenda Report Page Thirteen FISCAL 331PACT Staff estimates that it will cost approximately $25,000 annually to fully implement the recommended approach. This includes sufficient monies to fund the costs of the position's annual salary and benefits as well as furnishings and other necessary expenses. Should the Council adopt this recommendation, staff would recommend that first year implementation costs ($25,000) be financed with monies already appropriated in the Administrative Office's budget specifically to address staffing needs resulting from this organizational review. (It will be necessary, however, to transfer these monies to the Public Works Department's budget as the position would be located there. ) The City's general fund would be fully reimbursed for the first year costs, as well as future year costs, through increases to monthly garbage collection rates. Staff estimates that residential garbage rate increases would be minimal to residential customers to accommodate the additional expense of the position. It should be emphasized that the garbage rate increases proposed as part of this report address resource needs through the planning phase of AB 939 only. Once the City's SRRE has been adopted, additional resources will be needed for the implementation phase of AB 939. At this time we do not have sufficient information to accurately assess the future implementation costs. ALTERNATIVES TO STAFF RECOMMENDATION Staff has developed two alternative models for your consideration that respond in varying degrees to the findings in the organizational review. The alternatives have been listed below: Alternative One Determine that the Present Method of Decentralized or Departmental Assignment of Environmental Proaram Management is Acceptable and Retain Present Staffina Levels Apportioning the New Tasks Identified for Solid Waste Activities Between Existing Staff Members (Essentially retaining status quo) Under this alternative, the City would: * determine that the decentralized or departmental assignment approach to environmental management appropriate under present circumstances and form an internal Environmental Acitvity Coordination Committee, as outlined in the staff recommendations. uuil�ll�i �l city of sarPfus OBISPO U COUNCIL AGENDA REPORT Council Agenda Report Page Fourteen * apportion the solid waste responsibilities currently receiving inadequate attention from staff between existing positions within the Public Works Department and Administrative Office. The Public Works Department, working closely with the Administrative Office, would take the lead in the planning and implementing AB 939. The Administrative Office would take responsibility for coordinating ongoing projects that enhance the City's solid waste and recycling efforts, such as developing and implementing a recycled product procurement policy, and administering the garbage franchise agreement, etc. The Administrative Office would also coordinate solid waste public education efforts for the City's residents and track legislative changes related to solid waste issues. If this alternative is selected, staff would be in the position to address the Council's concerns associated with decentralized environmental program management through establishing a Environmental Activities Coordination Committee and respond to the solid waste planning efforts mandated by AB 939 as well as possible. Under this alternative, staff estimates, at this time, that AB 939 planning costs would be limited to consultant charges for preparing each city's Source Reduction and Recycling Elements (SRRE's) and the Countywide Integrated Waste Management Plan. As mentioned earlier in the report, using a consultant to prepare these documents is estimated to cost the average resident between 11 and 13 cents per month and will be assessed through increased garbage collection rates. The disadvantage to this alternative is that in order to take on AB 939 and . other important solid waste tasks within existing staffing resources, it would be necessary to delay other high priority tasks. Staff has yet to determine specifically how job responsibilities would be shifted to accommodate the additional solid waste tasks. However, it is highly likely that the community relations program would be delayed and the civic center expansion project would receive less direct oversight. It is staff's opinion that if this alternative is selected, the City could adequately respond to tasks required in connection with AB 939 and other solid waste related activities. However, given the disadvantages associated with pursuing this approach, staff is precluded from recommending it. Based on the State's actions over the last year, it has become evident that AB 939 is the starting point for overhauling California's response to solid waste. It appears that requirements in this area are only going to increase and therefore, the City should position itself to assume the responsibilities associated with it. By selecting this Ply i�iIIIIII�P° ��IDI city of san Luis osispo COUNCIL AGENDA REPORT Council Agenda Report Page Fifteen alternative, it appears that the City would be putting off the inevitable and foregoing other priority programs in the process in order to adequately take on the responsibilities associated with AB 939 and other solid waste related tasks. This alternative, while it is the most economical, effectively means that currently scheduled work would have to be deferred. Alternative Two - Implementation of Centralized Environmental Program Management Under this option, the City would: * conclude that the current decentralized environmental program management is not functioning adequately and direct staff to prepare a report that identifies the needs and costs associated with implementing a centralized environmental program management model. * delay any decisions regarding potential responses to solid waste issues until this report is completed. This alternative is offered in recognition of the Council's concern for improving the City's response to environmental issues, although staff advises against pursuing this approach. As discussed earlier in this report, staff did identify advantages to centralized environmental program management with respect to higher levels of coordination and communication when responding to environmental issues. However, after conducting the organizational analysis, staff concluded that cities the size of San Luis Obispo found greater success with integrating environmental programs into the operating departments that best complement the activity. Staff was unable to identify any areas where the City could derive significant,gains in responding to environmental concerns by moving toward a more centralized approach. The organizational review consistently showed that the increased costs associated with centralization (e.g. , additional staff) far outweighed the benefits a city the size of San Luis Obispo would receive. Because staff does not feel it would be advantageous for the City to centralize its environmental functions at this time, specific costs for implementation have not been calculated as part of this report. Should this alternative be selected, it would be necessary for staff to prepare a report that provides the Council with recommendations that identify which environmental functions should be centralized and the costs associated with accomplishing this. However, it is obvious that this alternative is significantly more 0 � illllll�pi���111 city of San LUIS OBISpo COUNCIL AGENDA REPORT Council Agenda Report Page Sixteen expensive than the recommended approach in that it would take more than an additional half-time position to implement centralized environmental program management. This alternative is not recommended because of its higher costs, the considerable impact it would have on the organization (including some negative impacts) , and anticipated marginal benef its. ATTACENEWS * "1" - Organizational Placement Matrix * 02" - List of Cities Surveyed * "3" - Proposed Solid Waste Coordinator Job Specification * The Environmental Activity Inventory is available in the Council Reading File. Updated version will be available by June 13, 1990. * Copies of Assembly Bill 939 are available in the Council Reading File. DH\env-rep J6 OENVIRONMENTAL ORGANIZATIONAL PLACEMENT MATRIX EXISTING RESPONSIBLE ASSIGNMENT POTENTIAL FOR ACTIVITY DEPARTMENT ADEQUATE REASSIGNMENT Low Med High Environmental Review 1) CEQA Community Dev. X Solid Waste 1) Collection & Disposal Public Works X 2) Recycling Public Works X Public Health 1) Air Quality, City Community Dev. X 2) Air Quality, Cnty Community Dev. X 3) Vehicle Emissions Police X 4) Noise Regulations Police X 5) Food Safety County X 6) Water Quality Fire X 7) Soll Contamination Fire X 6) Flooding Protection Public Works X Domestic and Wastewater 1) Water Supply Utilities. X 2) Water Treatment . Utilities X 3) Water Distribution Utilities X 4) Water Conservation UtOhies X 5) Sewage Treatment Utilities X s) Indus Waste Inspect Utilities x ATTACHMENT 1 5o, ) 9 ® o EXISTING RESPONSIBLE ASSIGNMENT POTENTIAL FOR ACTIVITY DEPARTMENT ADEQUATE REASSIGNMENT Low Med High Natural Environment 1) Creek Protection Community Dev. X 2) Habitat Protection Community Dev. X 3) Surface Water Qual Community Dev. X Energy Conservation 1) Energy Conserv. Program Public Works X Street Infrastructure 1) Street Repair Public'Works X 2) Sidewalk Repair Public Works X 3) Storm Drainage Public Works X 4) Utility Lines Utilities X Land Use Planning and Control 1) Subdivisions Community Dev. X 2) Code Enforcement Community Dev. X 3) Zoning and Permits Community Dev. X 4) Sign Ordinance Community Dev, X 5) Open Space Pres Community Dev. X 6) Hillside Regulations Community Dev. X 7) Historic Pres Community Dev. X 8) Archaeological Surveys Community Dev. X 9) Architectural Review Community Dev. X 10) Solar Access Community Dev. X 11) Tree Program Public Works X _/1 5 -J � EXISTING RESPONSIBLE ASSIGNMENT POTENTIAL FOR ACTIVITY DEPARTMENT ADEQUATE REASSIGNMENT Low Med High 12) Property Maintenance, Private Community Dev. X 13) Property Maintenance, City Public Works X Hazard Prevention t) Fire Prevention Fire X 2) Weed Abatement Fire X 3) Code Enforcement Fire X 4) Use Permits _ " Fire X 5) Haz Mat Storage Fire X 6) Right to Know Fire X ' 7) Underground Tanks Fire X 8) Pipelines Fire X 9) Household.Haz Waste Fire X Disaster Preparedness & Emergency Management 1) Fire Management Fire X 2) Haz Mat Spills Fue X 3) Earthquake Management Fire X 4) Post Earthquake Inspec Fire X 5) Diablo Canyon Cnty X DH\act 5 -�5 SURVEY OF CITIES JURISDICTION: City of Monterey Population: 32,000 Contact: Dennis Waddell (408) 646-3896 Comments on Environmental Program Management: The City of Monterey practices decentralized environmental program. management in a manner very similar to the City of San Luis Obispo. Individual operating departments within the City are assigned responsibility for implementing and monitoring environmentally related programs. The City feels this approach is working successfully and represents the only realistic management option available to the City of Monterey. Comments on Strategy for AB 939 Implementation: The City is working with the County of Monterey as part of a regional approach to responding to AB 939. At this time, this County intends to hire a consultant to prepare the Source Reduction and Recycling Elements for each city and the Integrated Waste Management Plan as required by AB 939. The County intends to assess a one dollar per ton tipping fee surcharge to fund the initial costs associated with AB 939. Additional resource needs will be evaluated once AB 939 reaches the implementation phase. With respect to staffing, the City currently has one position in the Engineering Department that monitors the garbage company contract. They do not plan to add any staff to assist with the planning and implementation of AB 939 at this time. The City's garbage company has a full-time recycling coordinator position that handles the majority their recycling responsibilities. JURISDICTION: City of San Jose Population: 740,000 Contact: Christine Valdez (408) 277-5533 Comments on Environmental Program Management: The City of San Jose practices centralized environmental program management. The Office of Environmental Management is a division of the City Manager's Office and coordinates all programs relating to energy management, water resources, integrated waste management, and environmental protection. The office has been in existence for over five years and has 45 employees. The City feels that this approach has worked very successfully. ATTACHMENT 2 '1 s� Comments on Strategy for AB 939 Implementation: The City of San Jose has been working with the County of San Clara as part of a regional approach to responding to AB 939. The County and the cities are still discussing regional goals and objectives for responding to AB 939, but have yet to agree on an approach. JURISDICTION: City of Ventura Population: 941,000 Contact: Terry Adelman (805) 654-7800 Comments on Environmental Program .Management: The City of Ventura practices decentralized environmental program management in a manner very similar to the City of San Luis Obispo. Individual operating departments within the City are assigned responsibility for implementing and monitoring environmentally related programs. The City feels . this approach is working successfully and represents the only realistic management option available to the City of Ventura. Comments on Strategy for AB 939 Implementation: The Finance Department coordinates the City's response to AB 939 and recycling. The City currently has three people implementing the recycling plan and plan to have as many .as •five to six once a strategy for AB 939 is agreed upon. The City's general fund is currently funding these expenses, however, it is their intention to increase garbage hauler fees to recoup the expenses. JURISDICTION: City of Palm Desert Population: 19,000 Contact: John Wolman (619) 346-0611 Comments on Environmental Program Management: The City currently has an Environmental Conservation Manager that coordinates a recycling program, a water conservation program and air quality program and chairs an Energy and Environment Committee. In speaking with the Environmental Conservation Manager, however, his function is really that of an Assistant City Manager. The City practices decentralized environmental program management in much the same way as the City of San Luis Obispo. However, given the small size of. Palm Desert, the Environmental Conservation Manager has an opportunity to get more directly involved in environmental issues. Comments on Strategy for AB 939 Implementation: The City is working with the County of Riverside as part of a regional approach to plan and implement AB 939. At this time, this County intends to hire a consultant to prepare the Source Reduction S- a� C o and Recycling Elements for each city and the Integrated. Waste Management Plan as required by AB 939. The County intends to assess a $1.50 dollar per ton tipping fee surcharge to fund the initial costs associated with AB 939. Additional resource needs will be evaluated once AB 939 reaches the implementation phase. With respect to staffing, the City does not plan to hire additional staff to assist with the implementation of AB 939. The Environmental Conservation Manager will continue on as the coordinator for AB 939. The City also has a five year franchise agreement with Waste Management Incorporated. Under the franchise agreement, the contractor provides a full-time recycling coordinator and free recycling services to the City. JURISDICTION: City of. Oxnard Population: 128,000 Contact: Stan Hakes (805) 984-4696 Comments on Environmental Program Management: The City of Oxnard practices decentralized environmental program management in a manner very similar to the City of San Luis Obispo. Individual operating departments within the City are assigned responsibility for implementing and monitoring environmentally related programs. The City feels this approach is working successfully and represents the only realistic management option ^ available to the City of Oxnard. ( J1 Comments on Strategy for AB 939 Implementation: The City plans to hire two individuals as part of the 1990-91 budget process to assist with solid waste activities. One position will focus on recycling and public education. The second position will have an solid waste engineering background and coordinate the technical information needs associated with planning and implementing AB 939. The costs of these positions will be paid through increased customer rates (the City has a Solid Waste Enterprise Fund) . The County of Ventura's Technical Advisory Committee to the County Waste Commission is still developing regional goals and objectives with respect to responding to AB 939. JURISDICTION: City of Pacific_ Grove Population: 16,500 Contact: Gary Bales Comments on Environmental Program Management: The City of Pacific Grove practices decentralized environmental program management in a manner very similar to the City of San Luis Obispo. Individual operating departments within the City are assigned responsibility for implementing and .monitoring environmentally related programs. The City feels this.approach is working successfully and represents the only realistic management option available to the City of Pacific Grove, Comments on Strategy for AB 939 Implementation: The City is working with the. County of Monterey as part of a regional approach to responding to AB 939. At this time, this County intends to hire a consultant to prepare the Source Reduction and Recycling Elements for each city and the Integrated Waste Management Plan as required by AB 939. The County intends to assess a one dollar per ton tipping fee surcharge to fund the initial costs associated with AB 939. Additional resource needs will be evaluated once AB 939 reaches the implementation phase. With respect to staffing, the City does not plan to add any staff to assist with the planning and implementation of AB 939 at this time. The City,s garbage company has a curbside recycling pick up program that reaches approximately 20% of the City"s residents. JURISDICTION: City of Salinas Population: 100,000 Contact: Si Arpel (408) 429-3784 Comments on Environmental Program Management: The City of Salinas practices decentralized environmental program ` management in a manner very similar to the City of San Luis Obispo. Individual operating departments within the City are assigned responsibility for implementing. and monitoring environmentally related programs. The City feels this approach is working successfully and represents the only realistic management option available the -size of Salinas. Comments on Strategy for AB 939 Implementation: The City is working with the County of Monterey as part of a regional approach to responding to AB 939. At this time, this County intends to hire a consultant to prepare the Source Reduction and Recycling Elements for each city and the Integrated Waste Management Plan .as required by AB 939. The County intends to assess a one dollar per ton tipping fee surcharge to fund the initial costs associated with AB 939. Additional resource needs will be evaluated once AB 939 reaches the implementation phase. With respect to staffing, the City does not plan to hire additional staff to assist with solid waste activities. JURISDICTION: City of Chico Population: 35,000 Contact: Dale Shaddox (916) 895-4872 �S-�3 Comments on Environmental Program Management: The City of Chico practices decentralized environmental program management in a manner very similar to the City of San Luis Obispo. Individual operating departments within the City are assigned responsibility for implementing and monitoring environmentally related programs. The City feels this approach is working successfully and represents the only management option available to the City of Chico. Comments on Strategy for AB 939 Implementation: The City has yet to develop a strategy to respond to AB 939. i 1 SOLID WASTE COORDINATOR GENERAL STATEMENT OF DUTIES Performs highly responsible and professional work in planning, organizing and executing the Cityls Solid Waste Management Program. SUPERVISION RECEIVED Works under general direction of the Public Works Director. SUPERVISION EXERCISED May supervise contractors, temporary employees and interns as required. .EXAMPLES OF DUTIES Directs preparation of solid waste management plans and studies. Ensures that City solid waste policies and activities conform to state and federal legislation and regulations. Proposes policies and goals which define the kind and level of solid waste services required in the City. Coordinates public and private solid waste services. Negotiates and administers solid waste franchises and contracts. Organizes, promotes and regulates solid waste diversion practices such as source recovery, recycling, and composting. Develops markets for materials diverted from the solid waste stream. Proposes objectives for improving the delivery of solid waste services. Identifies and organizes the resources needed to conduct solid waste activities and accomplish solid waste objectives. Analyzes solid waste collection rates and recommends adjustments. Acts as a liaison to other government agencies to gain economies of scale and avoid duplicating solid waste activities. Measures progress in accomplishing solid waste objectives and reaching established goals. - ATTACHMENT "3" 5-aS o o Collects information on the type and volume of solid waste generated, diverted and disposed of within the City. Surveys citizens to determine the effectiveness and. acceptance of solid waste services. Works with private and non-profit agencies, and Cal Poly University and Cuesta College on coordinated approaches to waste reduction and reuse. Coordinates the• implementation of all public education and community relations efforts in connection with solid waste and recycling activities. I� 5 -�