1.0 RECYCLING LEGISLATION
1.1 Reporting Mandates
This report is being submitted to the Legislative Counsel Bureau (LCB) in accordance with Nevada Revised Statute (NRS) 444A.070, which requires the Director of the Department of Conservation and Natural Resources to submit a biennial report on the status of current and proposed programs for recycling and reuse of materials on or before January 31 of each odd-numbered year.
This Recycling and Waste Reduction Report was prepared by the staff of the Recycling Program at the Department of Conservation and Natural Resources, Nevada Division of Environmental Protection (the Division). In the interest of resource conservation, LCB requested that this report be transmitted electronically. The original report on file at the Division's Carson City office is printed on 100% recycled paper.
This report contains information about recycling in Nevada during state fiscal year 2006-2007, including tire revenue distribution, the status of recycling by county, state recycling rate information and recycling market development in Nevada. For information prior to 2006, please refer to previous recycling reports found on the Nevada Division of Environmental Protection website at www.NevadaRecycles.gov.
The state recycling rate is calculated from the data provided in annual reports from recycling centers statewide to their respective municipalities. The data is reported to the Division in accordance with Nevada Administrative Code (NAC) 444A.135 and 444A.140. These annual reports quantify the recyclable materials processed by recycling centers in the previous calendar year.
1.2 Legislation Overview and Summary
Nevada's recycling program began with passage of Assembly Bill (AB) 320 during the 1991 legislative session. AB 320, codified in NRS 444A.010 through 444.110, established solid waste recycling requirements for certain municipalities, a statewide goal of recycling at least 25% of the solid waste generated, a preferential procurement policy for goods made with some recycled-content materials, and directed the Division to provide a program of education and technical assistance to the public and municipalities concerning recycling. With the authority created by these statutes, the State Environmental Commission (SEC) adopted regulations (NAC Chapter 444A) to fulfill the statutory mandate.
NRS 444A.040 requires municipalities to establish different levels of recycling services depending on the size of their populations. When originally created in 1991, the statute required municipalities with populations greater than 40,000 to provide curbside recycling and household hazardous waste disposal programs. Smaller municipalities, between 25,000 and 40,000 in population, were required to provide recycling drop-off centers, rather than curbside collection, and provide household hazardous waste disposal programs. Municipalities below 25,000 were encouraged to offer recycling and household hazardous waste programs as financial and technical resources became available to do so.
Since passage in 1991, NRS 444A.040 has been amended twice, each time raising the population thresholds that trigger different levels of required recycling services. In 1995, the population threshold of 40,000 was increased to 100,000, and in 2001, the 25,000 threshold increased to 40,000. Under the current thresholds, there are two counties in Nevada with populations over 100,000 (Clark and Washoe Counties), and three with populations over 40,000 but less than 100,000 (Douglas and Elko Counties and Carson City). Nevada's remaining counties' populations are below 40,000. The population estimates used to determine compliance were taken from the most recent national decennial census (2000), per NRS 0.050.
Funding for these statutory mandates was established in NRS 444A.090, by the creation of a $1 surcharge on the retail sale of all new vehicle tires in the state. The surcharge was originally designed to sunset on March 15, 1993 and the revenue generated from this surcharge was placed in a special account, (the "Account for Recycling"). The statute was subsequently amended to eliminate a sunset date and the account was renamed the, "Account for Solid Waste Management." The Account for Solid Waste Management currently funds all of the solid waste regulatory programs in the state, not just recycling. Revenues from this account are disbursed among the three solid waste management authorities in the state: the Division, the Southern Nevada Health District (formerly the Clark County Health District); and the Washoe County Health District.
The Division has the authority to enter into contracts related to recycling projects. In addition to the Division's contract authority, NRS Chapter 444A.010 was amended during the 2005 legislative session, to give the Division the authority to award grants. The transfer from contract administration to a grant program was designed to ease the administrative burden associated with funding recycling projects. Implementing regulations adopted by the SEC became effective in 2006 and can be found in NAC 444A.600 through NAC 444A.655. To date, no grants have been issued under this new authority due to the lack of available funds.
2.0 STATUS OF RECYCLING IN NEVADA
2.1 Solid Waste Disposal
Table 2-1 shows the tonnages of municipal solid waste (MSW) reported as disposed in permitted Nevada solid waste disposal sites during state fiscal year 2006 and 2007. Wastes categorized as "industrial & special" include several types of solid waste which have specific management requirements for permitted landfill disposal in Nevada; however, typically about 90% of these wastes, by weight, are debris from construction and demolition (C&D) projects (such as wood, concrete, asphalt, drywall, etc.).
The total tons of solid waste disposed in Nevada grew between 3.8% from 2005 to 2006, but then dropped again by 7.0% in 2007. Both in-state MSW and Industrial & Special Waste declined in 2007 consistent with changes in population and construction activity around Nevada during the same time period. As construction slowed, the volume of waste-generated also declined. Municipal solid waste disposal from out-of-state sources increased.
Nevada regulations allow waste tires to be landfilled. Data is collected on the sale of new tires. No data is currently available on the amount of tires disposed.
2.2 Recycling
Nevada's recycling rate increased from 2006 to 2007 from 17.2% to 21.6% (see Table 2.2). Clark County's recycling rate increased from 15.4% to 19.4% during the same period. Although Clark County's reported annual recycling rate showed a 4% increase in 2007, it is still well below the rates reported by Douglas and Washoe Counties and Carson City. While a larger number of Clark County recyclers reported their activities to the Southern Nevada Health District in 2006 and 2007 than in previous years, not all recycling facilities report their activities to the County. This unreported tonnage could be significant enough to increase the annual recycling rate. Therefore, the recycling rate in Clark County may actually be higher than the rate reported here. Division staff continues to work with Clark County's municipalities and private recyclers to meet their reporting requirements and obtain complete recycling data.
Douglas County had the highest recycling rate in the state in 2007 at 50.5%. Carson City ranked second with a rate of 40.3% in 2007. Washoe County's rate rose from 22.6% in 2006 to 25.0% in 2007. Elko County had a rate of 7.2% for their first reporting year in 2007. The county recycling rates can be viewed in Appendix A.
Efforts have been made to help increase recycling participation. In 2005, the Clark County Commissioners created the Southern Nevada Recycling Advisory Committee to evaluate the existing program and provide suggestions for increasing the collection of recyclable materials in Clark County. Division staff serve on the committee and provide technical assistance.
Division recycling staff is also actively working with the Washoe County and the Southern Nevada Health District to increase the efficacy of their recycling reporting process by providing on-line access to reporting forms. By increasing the availability and ease of reporting, the number of businesses reporting in those regions is expected to increase. The Division, Washoe County and Southern Nevada Health Districts are also collaborating on strategies for more effective distribution of reporting materials and dissemination of information to the various recyclers in these regions. To further improve the reporting process, the Division, Washoe County and Southern Nevada Health Districts, and the U.S. EPA adopted a standardized recycling reporting form (see Appendix B).
3.0 RECYCLING PROGRAMS AND INITITIVES
3.1 Recycling Contract and Grant Program
The Division has issued 38 recycling contracts since 2003. The Division's recycling contracts program was the primary tool for providing resources for solid waste reduction education and reuse and recycling promotion throughout the state.
During the 2005 and 2006 fiscal years, the Division funded contracts in the amount of $223,257 and $198,799, respectively. During state fiscal year 2006, the Division entered into 14 new contracts with 13 entities: three were with state agencies, five contracts with municipalities or their agents, one contract was with a school district, and five were with non-profit groups or private businesses. The average Division recycling contract amount from state fiscal years 2006 and 2007 was $15,000. The 2006 contract with Douglas County, which supported the disposal of household hazardous waste, was extended into 2007 (see Table 3-3).
Pursuant to NRS 444A.110, the State Environmental Commission on March 8, 2006 adopted regulations that allow the Division to provide grants in addition to contracts to enhance solid waste management systems and promote recycling of solid waste. In the past, funds remaining in the Account for Solid Waste Management after funding our program were made available in the form of contracts. For State fiscal year 2007, revenue barely covered our program costs and we were therefore unable to issue grants or contracts to state and local government agencies, public education (K-12 and university), and non-profit organizations after 2006. Table 3-1 summarizes the contract distribution by region from 2006-2007.
3.2 Waste Tire Management and Recycling
Nevada adopted regulations governing the management and transportation of waste tires in 1994. Given that most landfills accept used tires from the public and commercial haulers, and that waste tire haulers are required to properly document waste tire disposal, Nevada does not have a large illegal tire dumping problem. On the other hand, because of the low-cost of landfilling and the relatively high cost of tire recycling, waste tire recycling markets have not developed in Nevada; however, some landfill owners/operators have recently raised their waste tire disposal fees which could result in recycling being seen as a more attractive means of managing waste tires. The developments of tire-derived fuel markets, such as use in cement and lime kilns, have been proposed in Nevada, but are not yet in operation. The use of tire-derived fuels can be a viable means of reducing the landfilling of waste tires while recovering their energy value. Other markets, such as tire rubber crumbing, have also been discussed but are not, as yet, actively operating in Nevada.
Most of the tires recycled in Southern Nevada are being retreaded, some in-state and some out-of-state, while tires in Northern Nevada are retreaded, crumbed, or used as tire-derived fuel out-of-state. It should be noted that retreading is considered a form of "reuse" by the EPA. It is difficult to quantify the amount of tires recycled, disposed, or exported due to the reporting inconsistencies from one company to another. For instance, Nevada's largest landfill, the Apex landfill, in Clark County does not report tires in their overall disposal reports. However, there are a number of Nevada businesses involved in the recycling and/or retreading tires or mono-filling (note 1) waste tires for potential recycling in the future.
Most of these activities occur out of state due to a lack of waste tire recycling facilities in-state. Northeastern Nevada (Elko, Ely and Winnemucca) exports their waste tires to Salt Lake City, Utah, for retreading or for use in facilities using tire-derived fuel. A facility in the center of the state (Silver Springs) collects large equipment tires and stockpiles them before they are exported out-of-state to specialty large equipment tire re-treading facilities in California.
Within the past year, a number of operations that recover energy from tire-recycling and manufacture marketable waste tire by-products have been proposed in Nevada. Some of the companies are in the initial planning stages, while others, such as Nevada Cement, have received their environmental permits and could begin energy recovery operations in the near future.
The Nevada Department of Transportation recently tested recycled tire rubber as a viable material in two asphalt jobs in Nevada. In Henderson, an existing section of cement concrete freeway was overlaid with ground tire rubber as a tire-noise reduction measure. The overlay-material consisted of approximately 400 tons of rubber trimmings reclaimed from new tire fabrication. A project in Lovelock used an asphalt mix that incorporated approximately 180 tons of recycled tire rubber at a rate of 10% by weight of the liquid. NDOT chose these projects to research the use and suitability of ground tire rubber to Nevada's extreme environments and road traffic conditions. Both projects were considered successes. NDOT plans to continue this research and advance the application of recycled rubber in road projects statewide.
Note 1: "Mono-filling is defined as a landfill, or portion of a landfill, dedicated to one type of material. Mono-filling is preferable for waste tire management as it eliminates the hazards associated with above-ground storage (e.g. fire, vector population overgrowth (mosquitoes, rodents).
3.3 Recycling Education
The Division has historically given recycling presentations to K-12 students throughout the state. These presentations have been very well received and as a result, in 2006, the Division decided to expand the education and outreach program by creating a 12-week Solid Waste and Recycling curriculum that can be adapted to school grades 4-12. The curriculum was carefully designed to be aligned with the Nevada standard course of study, meeting various science, math, language arts, and social studies objectives through an integrated approach to the subject. The 12-week program ends with an action component urging the students to apply their knowledge by designing, coordinating, and implementing a school-wide recycling program.
In addition to the 12-week Solid Waste & Recycling curriculum, a series of four single-lesson classroom presentations were developed for statewide presentation. Division staff has also given single presentations to K-6th graders in Carson City, Elko and Washoe counties. Through this curriculum and individual presentations, Division staff provides hands-on, inquiry-based lesson plans designed to inspire environmental stewardship and encourage leadership. Presentations are also made to various outdoor schools such as the Great Basin Outdoor School and the Northern Nevada Outdoor School. During 2007, the new curriculum was presented to over 400 4th-6th grade students in Northern Nevada. The curriculum was also introduced to over 200 students in the Clark County School District this past fall. The free curriculum is available on-line from our website for use in its entirety, as three separate modules, or as single-use lessons.
The Division will measure the progress of the Recycling Education Program by tracking how many people are using the curriculum through a website feedback link. We will also be able to account for post-workshop curriculum implementation by the number of recycling portfolio submissions to the recycling PSA contest. The number of school recycling programs started-up or improved as a result of our program will be tracked through contact with the appropriate representatives in the Clark and Washoe County School Districts.
The Division is making progress toward providing a series of Teach-the-Teacher training sessions for statewide implementation of our Solid Waste & Recycling curriculum. The Division is currently applying to each of the states' 17 school districts for approval to offer this training for Professional Development Education (PDE) credit. The Clark County School District approved the Recycling Curriculum Teach-the-Teacher Workshops as a PDE course. It will be offered for the first time in March 2009. These workshops will then be offered twice each year (fall and spring) to Clark County teachers through the PDE program when funding is available. Certification of the curriculum with the Washoe County School District is pending.
3.4 Recycling Outreach
3.4.1 Recycling Hotline
The Division operates a toll-free, recycling hotline, 1-800- 597-5865, that provides local information about the recycling services for common materials (glass, plastic, aluminum, and paper) as well as unusual recyclable items (refrigerators, cars, and lawn and garden items). The hotline receives approximately 50 calls a week. In addition, the hotline's directory of resources is posted and regularly updated on the Division's website.
3.4.2 Outreach to Rural Communities
The Division has been actively promoting the importance of recycling to rural communities. As a result, several rural public utility offices are becoming aware and increasingly interested in starting-up or expanding their current recycling programs. The Division staff will continue to actively promote the importance and many benefits of recycling in the rural communities, encouraging partnerships wherever possible.
Three major obstacles continue to hinder progress toward increasing recycling in rural Nevada: 1) the lack of infrastructure for collecting and storing recycled materials in-state, 2) the large distances to existing recycling centers, and 3) the relatively small volume of recyclable materials in rural Nevada. To address these challenges, Division staff regularly meets with local government officials and public utilities managers in rural counties to discuss recycling options that may be viable in rural communities and in April 2008, staff facilitated a workshop with the City of Elko and the Nevada Rural Water Association targeted for rural public utilities managers. Division staff also research recycling strategies, community alternatives, and financial options such as developing co-operative partnerships with local businesses and industries.
In July 2008, a successful recycling partnership was created among Round Mountain Gold, Inc., and the local townships of Hadley and Carvers in the Big Smokey Valley area of Nye County. They agreed to begin recycling corrugated cardboard in the Valley. The group intends to acquire a baler, find a central location for storage, and promote regular recycling drop-offs among the retail and commercial operations in this area.
In September 2008, the Division facilitated the creation of a second successful rural recycling program with General Moly, Inc., a mining company located outside of Eureka. Through this community-wide recycling program, many tons of recyclable materials generated at the mine site and the construction waste from the 175 homes being built in a new subdivision near Eureka is expected to be recycled.
3.4.3 Community Partnerships and Participation
Single Stream Recycling:
For several years, the Division has proposed and encouraged municipalities to adopt and implement "single-stream" recycling as their primary collection method. Single-stream refers to collecting all types of recyclable materials in one container. Single-stream recycling encourages recycling by making it easier and more convenient for residents. Communities around the country that have switched to single-stream programs have seen their recycling participation rates increase to over 50%.
In 2007 the Southern Nevada Recycling Advisory Committee, of which the Division was a member, recommended to the Clark County Commissioners that single-stream recycling be implemented throughout the Las Vegas Valley area. Two pilot programs have been implemented to date: one at Nellis Air Force Base, the other in a southwestern Las Vegas neighborhood known as Rhodes Ranch. The Division staff has also met with the environmental/sustainability staffs of the cities of Henderson, Las Vegas, and North Las Vegas to discuss single-stream recycling as a means of increasing their recycling rates. No data from the pilot programs has been released to date.
Similarly, over the past year, the Division has actively participated with the Washoe County Regional Recycling Group which also seeks to increase recycling participation and the volume of waste recycled through single-stream recycling county-wide. From mid-October 2007 to mid-Jan 2008, the City of Reno ran a single-stream recycling pilot project in northwest Reno. The pilot project was highly successful, doubling the participation rate and yielding three-times the collection volume than had been previously collected by "source separation" (i.e. resident sorted materials into bins by type). Negotiations are currently underway between the City and Waste Management, Inc., to change the current curbside recycling service to single-stream in Reno. Incline Village converted their curbside recycling service to single-stream in July 2007 and realized substantial increases in the volume collected.
E-Waste Diversion Activities:
The Division has established partnerships with many municipal agencies and non-profit organizations to assist them in planning, organizing and conducting their e-waste collection events. Collection events were held in Winnemucca, Carson City and Las Vegas during the fall of 2006 as part of Nevada Recycles Day. 140 tons was reported in 2006 which included more than 49,000 pounds of computer equipment, 100 pounds of ink cartridges, and 200 pounds of batteries. In 2007, the Division collaborated with Computer Corps and The Blind Center on collection events in Carson City, Incline Village, Reno and Las Vegas. These events contributed to the collection of over 600 tons of e-waste in 2007.
Other Community Outreach and Assistance Activities:
Division recycling staff participates in various community events (i.e. Earth Day, Nevada Recycles Day, and corporate Green Fairs) and sits on several recycling-oriented committees across the state, including Christmas Tree Recycling Committees statewide, the Northern and Southern Biomass Committees, and the WASTECON Conference Committee. The Division has developed over 20 public service announcements for recycling events and redesigned its recycling website to be more user-friendly. The Division also provides outreach to the business community through presentations and technical assistance. Division staff participated with the southern Nevada PBS Network to develop a feature piece on recycling for the "Greener Las Vegas" program in October 2008.
Division staff also takes advantage of professional development arenas whenever possible to advocate for recycling. The Division worked with Solid Waste Association of North America (SWANA) to plan, organize and implement the National WASTECON 2007 event in Reno, an event that emphasizes solid waste reduction and recycling.
4.0 CONCLUSIONS
Nevada continues to make progress toward achieving the 25% recycling goal set by the Legislature in 1991. Nevada's statewide recycling rate increased by 4.4% from 17.2% in 2006 to 21.6% in 2007. The state remains 3.4% away from the 25% goal.
Nevada's low population and large geographic area present unique challenges, especially in the rural areas of the state where it will be difficult for the environmental and economic benefit of recycling relatively small quantities of waste to overcome the costs. Nevada's sheer geographic size means the costs of long-distance transportation (labor, time, fuel resources) to the current out-of-state markets will tend to be high. Another significant challenge is that Nevada lacks the infrastructure that will support recycling collection, processing, and manufacturing. Currently, there are no incentives for manufacturers to use locally recycled materials, nor are there incentives for local manufacturers to convert to using recycled feedstock. In the absence of local manufacturers that use locally recycled materials as their feedstock, all recyclables must be transported out-of-state.
In an effort to overcome these challenges, the Division's recycling program will continue to:
- Provide recycling information/education to local, state and federal agencies and participate in collaborative efforts in order to build and strengthen key partnerships in solid waste reduction and recycling.
- Promote and encourage single-stream recycling with municipalities statewide
- Provide and promote grades 4-12 solid waste and recycling education through the Division's recycling curriculum and other presentations to various audiences within the state of Nevada
- Encourage and participate in E-waste diversion events
- Provide information on federal grant opportunities and technical program assistance to government entities, businesses, non-profits, educational institutions and the general public
- Work with State Purchasing Office to make recycled content products available
- Encourage and provide technical support to rural areas
- Continue to provide financial support in the form of grants, as the budget permits, to encourage recycling opportunities and recycling education programs in Nevada.
