(1/31/02 DRAFT REPORT)

TO:     Mayor and Members of City Council

FROM:  Ronald A. Secrist, City Manager
            Christine Andersen, Deputy City Manager for Environment Services
            Maureen Rait, Director of Public Works/Development & Support Services
            Community Working Group

SUBJECT:    Information Item - Managing Seasonal Neighborhood Trash Issues

DATE:   February 7, 2002


PURPOSE:   
This memorandum is an update to City Council on Community Working Group efforts and includes a plan for Managing Seasonal Neighborhood Trash Issues in 2002.

BACKGROUND:
A "pilot program" entitled the Aloha Boulder Program was implemented in the University Hill and Goss/Grove neighborhoods during the spring and fall of 2001.  The objective of this program was to improve trash and recycling management associated with student move-in and move-out.  The program contained two major elements: additional dumpsters, paid for by the city,were located in the Goss Grove and University Hill neighborhoods to collect additional trash and recyclables, and a "sofa swap" provided for the exchange of plastic chairs and gift certificates for sofas and mattresses.

While the program was viewed to be effective in facilitating the removal of large items including sofas, mattresses and appliances, the overflowing dumpster situation that had historically plagued these neighborhoods during these periods remained.  Cardboard was disposed of at the individual dumpsters behind each property and not at the recycling dumpster.  The loose litter and trash problems persisted.  Environmental Enforcement Officers, who helped staff the pilot program, were less available to contact citizens and enforce trash violations. 

In the fall of 2001, during the City Council review of the 2002/2003 Budget, staff was asked to convene a group of key stakeholders to discuss the seasonal trash issues associated with student move-in and move-out. While the Aloha Boulder Program had been an interesting experiment, there was general agreement that it was not the answer to managing neighborhood seasonal trash issues. A more workable plan for managing the trash situation needed to be developed and implemented.


FORMATION OF THE COMMUNITY GROUP:
A group was convened to focus on this matter recognizing that these trash issues cause neighborhood distress for all residents in two ways:

1. conditions experienced during May, August and September, and
2. amount of material ending up in the landfill

In order to evaluate the range of concerns associated with these neighborhood livability and environmental issues, a diverse community group was convened. 

Community group participants were as follows:
Debbie Crowell, Goss Grove Neighborhood Association
Barbara Guthrie, Hast & Company
Gary Horton and Bryce Isaacson, Western Disposal Services, Inc.
Sheila Horton, Boulder County Apartment Owners Association
Rick Kauvar, University Hill property owner/manager
Marianne Moulton, CU Environmental Center
Vanessa Otto, UCSU Community/Hill Liaison
Terry Rogers, University Hill Neighborhood Association
Ken Sherbenou, UCSU Chief of Staff
Greg Sherwin, University Hill property owner/manager
Suzanne Stafford, CU Off-Campus Student Services
Phil Swan, Four Star Management
Joan Trapp Bennett, University Hill Neighborhood Association
Cindy Worster, Goss Grove Neighborhood Association

Kon Damas, Mediation Coordinator, served as the facilitator for the Group.

City staff support included:
Kara Dinhoffer, Environmental Analyst
Jay Dunlap, Inspection & Enforcement Supervisor
Jaisy Jardine, University Liaison
Mo Rait, Director of Public Works/Development & Support Services
Terry Steinborn, Environmental Enforcement Officer

Observers at some meetings included:
Wayne Adams, Goss Grove resident
Greg DeBoever, University Hill resident 
Herb Kauvar, University Hill resident/landlord
Andrea Morgan, University Hill resident


ACTIONS OF THE COMMUNITY GROUP:
This community group had seven meetings.  Each meeting lasted approximately two hours.  The group confirmed its purpose, adopted meeting guidelines, discussed roles for meeting participants and observers, and discussed what was learned from the Aloha Boulder Program.  Over the course of these meetings, the group evaluated a range of ideas and issues associated with these trash and recycling concerns including:

* programs in place in other college communities,
* better quantifying service needs and associated costs by reviewing solid waste generation tables and cost information from service providers,
* the understanding that the August to August leasing cycle means that the issue is more significant in the fall,
* the importance of maintaining a mechanism to have large items removed,
* the recognition that all parties (tenants, owners and agents) are responsible under the city's code for managing trash,
* the need to view the definition of "adequate trash service," as provided for in the Boulder Revised Code,  as one that may vary with the season and land use,
* the need to raise awareness/adjust behaviors around reuse and recycling,
* the need to follow a "pay as you throw" model, 
* information associated with the trash tax, including programs eligible for  funding,
* the recognition that proposed solutions should be equitable,
* the understanding that the recently enacted changes to the trash regulations provide another tool for enforcement,
* the recognition that any proposed plan for 2002 will need to be carefully  assessed,
* that separate from this focus on seasonal issues, code enforcement will also be contacting rental property owners who do not have trash service to ensure that the service is provided,
* the recognition that under the code, owner-occupied properties are not required to have refuse and recyclables collection service,
* the recognition that dumpsters attract some amount of illegal dumping, and 
* consideration of alternative enforcement tools to the issuance of a "summons" including a "mail-in" approach to fines.  This idea was also recently identified in the Environmental Enforcement Audit. 

The fundamental problem identified by the group was that while in the past the mess may get a ticket, the mess has remained.  This has impacted the quality of life for certain neighborhoods during move-in and move-out periods.  In recognition of this need to get rid of the mess, the Community Group determined that two primary components are needed to better manage seasonal neighborhood trash issues:

1. rental property owners/managers should sign up for the "Six-Day Review," as described in the next section of this memorandum, to ensure that litter is removed, and 
2.   the sofa swap needs to continue


Six-Day Review
The principle behind the Six-Day Review is that during defined peak periods, the city will agree that any property owner/manager who has arranged to have the trash hauler come to their property and dump the containers and remove any refuse on the ground, would not be issued a summons for trash accumulation.  The threshold for  having containers dumped will be as follows:

* Monday through Friday, containers that are 75% full or more will be dumped, and
* on Saturday, containers that are 50% full or more will be dumped.

The Community Group determined that this level of service is needed for both the Goss Grove and University Hill neighborhoods during move-in and move-out periods.   This program is optional for the property owner, but in view of the potential fines, we believe that property owners will want to participate in the program.  We also believe that this regularly scheduled approach is more cost effective when compared to what occurred last fall when extra charges were incurred by property owners because of special pick ups requested as a result of enforcement action.   No code change is needed to implement this approach, as there is discretion in defining adequate trash service.

Geographical Area:
Goss Grove: Canyon, Folsom, Arapahoe and 15th.
University Hill: Arapahoe, Broadway, Baseline and 9th.

There was general agreement that both residential rental properties and commercial businesses within these boundaries should be offered this same incentive if they have the Six-Day Review service.

Time Frame:  Monday through Saturday,
May 8 - 25, 2002 and
August 1 - September 7, 2002

In the mornings during these periods, the trash companies would provide regular trash service for their customers.   In the afternoon, trash haulers would circulate through the alleys again and check each dumpster and trash can.  If the threshold is met, the trash receptacle will be emptied.  If there is trash on the ground around the trash receptacle, it will be picked up.  This will occur even if the receptacle has already been emptied that morning during regularly scheduled pick up.  Cardboard recycling will be handled by the individual trash companies in their standard fashion. The property that the trash is on will be charged accordingly. 

This added level of service will be viewed as adequate trash service during this peak period.  As a result of having this additional trash service, landlords will have protection from receiving a summons for a related trash violation.  Lists will be provided by the trash companies of those property owners who have signed up for the Six-Day Review and have the order on file to remove all trash on the ground around the dumpster.  All residents should experience cleaner neighborhoods, as the trash will be removed every day, except Sunday.  The alleys should be cleaner, and there should be fewer piles of trash and discarded furniture overnight.

Environmental Enforcement Officers will be able to focus on those properties without adequate service, as most of the trash will be picked up on a daily basis.  Enforcement activities should be more productive, especially if inspections are performed immediately after the trash trucks do the afternoon sweep. 

Public information and outreach will be major components of this "Six-Day Review."   Western Disposal Services, Inc. will be contacting customers and providing information about this program.  Other trash haulers will be encouraged to provide similar information to their customers.  City staff will use various means to communicate with trash haulers, tenants, rental property owners and agents, commercial business owners and managers, and the impacted neighborhood associations to ensure that individual responsibilities and potential enforcement outcomes are clearly identified.  This communication will include letters, news releases and information provided on the city website.  

Sofa Swap
The sofa swap is viewed as the successful component of the Aloha Boulder Program that should be continued.  The principle behind the sofa swap is to encourage the removal of unneeded large items through the use of incentives, while also creating an opportunity for reuse/recycling.

Jaisy Jardine will coordinate the sofa swap for 2002 on behalf of the city and CU.   In the Spring, the swap is planned for May 8, 9 and 10.  May 10th is the day of CU graduation.  In the fall the swap will be conducted each Wednesday throughout August and the first week in September.  The swap for the University Hill neighborhood will include:

* One roll-off  placed at 1200 College
* The roll-off will be staffed by one city staff member and student volunteers
* Gift certificates from area restaurants will be given in exchange for sofas at the roll-off
* A Public Works Department flatbed truck, driven by city staff, will circulate through the alleys picking up abandoned sofas and large furniture that the volunteers are unable to get to the roll-off
* Fraternity and sorority members will assist in carrying furniture
* Sofas and other large furniture in good repair will be temporarily stored beside the roll-off
* Anyone can take any item in good repair
* At the end of the day any remaining items will put in the roll-off for removal
* Advertisements and signage will state the days and dates of Sofa Swap and clearly create a different identity than that of the Aloha Boulder Program
* Re-use/recycling/resale vendors, like Salvation Army, United Cerebral Palsy, Good Use etc., will be encouraged to drive by and take anything that meets their needs
* Landlords can bring sofas that are illegally dumped on their property for free removal


The spring sofa swap program for the Goss Grove neighborhood will include having a roll-off staffed by volunteers at 1900 Goss on May 9 and 10.  One roll-off is also planned to be located in Martin Acres in order to expand the sofa swap to this neighborhood.  In the fall, a roll-off will be provided for both Goss Grove and Martin Acres on each Wednesday throughout August and the first week in September.  Public information and outreach will be also be major components of the Sofa Swap.  During the Fall program, plastic chairs will also be distributed in exchange for large items. 


NEXT STEPS:
Staff will proceed with the final development and implementation of the Six-Day Review and Sofa Swap programs for 2002.   City-related expenditures will be covered from existing budgets.  After the spring move-out and the fall move-in, staff will assess the effectiveness of these programs with the members of this Community Group and report back to City Council.  The meeting in the spring with the Community Group will be scheduled for late June and will include discussion and assessment of recycling efforts.  After the fall program, the Community Group will meet and evaluate the overall effectiveness of this 2002 program and those further steps that may be warranted, including whether or not Six-Day Review should become a code requirement.

Additionally, staff will pursue further review of alternative enforcement tools, including a "mail-in" approach to fines that was also recently identified in the Code Enforcement Audit.   In addition to this focus on seasonal issues, code enforcement staff are also contacting rental property owners who do not have trash service to ensure that the service is provided.  Notice of the requirement for trash service is also being included in rental license applications.

Finally, it is important to note that the Performance Audit of Environmental Code Enforcement recommended that the city engage various interest groups to discuss and develop enforcement approaches.   These types of processes are extremely beneficial, and we believe that this Community Group provided valuable perspective to the issue of improving the enforcement of the trash regulations during the move-in and move-out seasons.

If there are any questions regarding this plan, please contact Mo Rait
(303) 441-3227 or e-mail:
raitm@ci.boulder.co.us