HomeMy WebLinkAboutCOM 0761.002 2012-2014 SUBMITTED BY: MR. BOB JACOBSON COMM. 761 P/AWESC
N R D C REPORT MARCH 2014
R 14-02-A
From Waste to Jobs:
What Achieving 75 Percent Recycling
Means for California
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PREPARED FOR: PREPARED BY: CONTACT:
Natural Resources Tellus Institute James Goldstein
Defense Council Boston, MA jgold@tellus.org CO 761. 2-
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EXECUTIVE SUMMARY
n October 2011 , Governor Jerry Brown signed Assembly Bill 341 (Chesbro, Chapter
476, Statutes of 2011), modifying the California Integrated Waste Management Act
and establishing a policy goal that "75 percent of solid waste generated be source
reduced, recycled, or composted by the year 2020." Recognizing the significant
benefits that an effectively implemented AB 341 holds for waste diversion, ecosystem
protection, materials management practices, and economic growth in California,
NRDC commissioned Tellus Institute to assess the job creation potential of meeting
the 75 percent recycling goal by 2020.
CalRecycle has estimated that currently half the waste The largest number of potential jobs are associated with
generated in the state is source reduced,recycled,or recycling plastics(over 29,000),followed by paper(26,600
composted.To increase California's recycling rate from jobs)and lumber(17,600).The bulk of these jobs would come
about 50 percent in 2012 to 75 percent by 2020,CalRecycle from manufacturing,which is more labor-intensive per ton
estimates that about 23 million tons of material that is of material than collection or processing.The composting
currently being disposed must be recycled or composted. of the large volume of organic materials that will need to be
Using an approach developed by Tellus for an earlier diverted from disposal would also create a large number of
national study of the job creation potential of recycling, jobs(14,700).The environmental co-benefits of recycling and
we estimate that achieving a 75 percent recycling rate in composting this material are substantial.
California by 2020 has the potential to create at least 110,000 These estimates of potential job creation do not include
additional recycling jobs.(This estimate is very similar to one the indirect jobs that may be created in other sectors that
developed in 2013 by CalRecycle,which also used the earlier provide equipment and services to the recycling-related
Tellus approach as the basis for its analysis).'Over 34,000 businesses or the manufacturers using the recycled material
jobs would be in materials collection,26,000 in materials as inputs,nor do they include the induced jobs created by the
processing,and 50,000 jobs in manufacturing using the spending of those holding the additional direct and indirect
recovered materials;though not all these jobs will necessarily jobs.The specific location of these potential jobs will vary
be in California. depending on material type and processing needs.
The job creation potential is driven by the larger number Given existing recycled commodity market conditions
of jobs created per ton of material recycled as compared and export practices,as well as limited existing domestic
with material landfilled/disposed.For example,while processing and manufacturing capacity,not all of the
waste collection and landfill disposal creates less than one estimated job creation would take place within California
job per 1,000 tons managed,the collection,processing, or even the United States.Retaining more of these jobs in
and manufacturing of products with recycled materials as California or the U.S.will be an incremental process,and
feedstock creates 6-13 or more jobs per 1,000 tons,depending will require a variety of policies,regulations and incentives
on the material. to stimulate domestic investments to build or expand the
required processing and manufacturing capacity to handle
and use the materials.
Achieving a 75 percent recycling
rate in California by 2020 has the
potential to create at least 110,000
additional recycling jobs.
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ov'r PAPE 2 1 From Waste to Jobs:What Achieving 75 Percent Recycling Means for California
I. BACKGROUND
In October 2011,Governor Jerry Brown signed Assembly CalRecycle published an Update on AB 341 Legislative
Bill 341 (Chesbro,Chapter 476,Statutes of 2011),modifying Report in October 2013 that presents draft priority policy
the California Integrated Waste Management Act and recommendations.6 Importantly,the Update Report aligns
establishing a policy goal that"75 percent of solid waste strategies for achieving the 75 percent recycling goal with
generated be source reduced,recycled,or composted by the other societal objectives,including bringing green jobs to
year 2020"(collectively referred to as"recycling").AB 341 California and expanding manufacturing infrastructure.In
directs the California Department of Resources Recycling and fact,as described more fully below in the Results section,the
Recovery(CalRecycle)to prepare a report for the Legislature Update includes an estimate of the job creation potential of
by January 1,2014 describing"concepts for legislative change meeting the 75 percent goal.
and a vision of how CalRecycle programs will evolve within Recognizing the significant benefits that an effectively
existing authority to achieve"this goal.2 implemented AB 341 holds for waste diversion,materials
AB 341 calls for an expansion of recycling services to every management practices,and economic activity in California,
California business and over 70 percent of multi-family NRDC commissioned Tellus Institute to assess the job
dwellings.3 Local diversion efforts over the last twenty years creation potential related to California meeting the 75
have largely focused on residential recycling.There is still percent recycling goal by 2020.Previously,Tellus had
a large untapped recycling opportunity in the commercial conducted a similar study—More Jobs,Less Pollution:
sector,which comprises almost three-fourths of the state's Growing the Recycling Economy in the U.S.'—that considered
current solid waste stream." the job creation potential of a"Green Economy Scenario"
As a first step in developing a statewide strategy to achieve that achieved a 75 percent solid waste diversion rate at the
AB 341's goals,CalRecycle produced a discussion document national level.As described below,the current analysis for
in May 20125 and held workshops for stakeholder input. California uses the methodology developed for the 2011
The report and workshops summarize programs that are report and applies it to the California context.CalRecycle
currently being implemented as well as potential new ways to employed a similar analysis in developing its own estimate
tackle problematic waste streams.In this report,CalRecycle of job creation potential associated with achievement of the
identified approximately 55 program concepts in 10"focus 75 percent goal.8
areas"that are likely to be most effective in helping the state
reach the 75 percent goal.While some programs relate to
extensions of existing programs,others may require new
investments,legislation or regulatory changes.
PAGE 3 1 From Waste to Jobs:What Achieving 75 Percent Recycling Means for California
II. APPROACH
To estimate the job creation potential of achieving a investments to build or expand the required processing
75 percent diversion rate,Tellus employed a life-cycle and manufacturing capacity needed to handle and use the
perspective,meaning the analysis covers the various stages materials in the U.S.,thereby retaining more of these jobs in
of materials management including collection,hauling this country.
and processing(if any),as well as the ultimate disposition
of the collected materials through reuse/remanufacturing,
new product manufacturing,composting,or disposal via CALIFORNIA WASTE GENERATION AND
landfilling or waste to energy facilities.' COMPOSITION
Our approach for estimating incremental job creation
comprises three primary steps: CalRecycle collects and maintains various waste generation
and composition data on a statewide basis and is the
1. collecting current waste generation and composition best single source for this study.CalRecycle's Statewide
data and making informed assumptions about the size Diversion and Per Capita Disposal Rate Statistics as well as
and character of the waste stream in 2020; its California 2008 Statewide Waste Characterization Study"
2. identifying the incremental tonnage of waste by material are the most recent comprehensive data available and were
type that needs to be recycled to achieve the 75 percent used as the basis for the waste generation and composition
goal;and assumptions in the current analysis.12 It is important to note
3. applying appropriate job production factors(i.e.job that CalRecycle reports aggregate solid waste data and does
not distinguish between municipal solid waste(MSW)and
estimates per ton of material handled for each material) construction and demolition debris(C&D).13 The impact of
to each phase of the materials management process. reporting MSW and C&D together is primarily a larger overall
Tellus'objective was to use existing data sources to the and per capita waste stream,and a lower fraction of items
greatest extent possible and to adapt national or other more prevalent in MSW(e.g.,plastics)in the combined waste
jurisdictions'data where California-specific data were not stream than in the MSW-only stream.Also,C&D waste is
readily available. often recycled at higher rates than MSW,so the aggregation of
It is important to note that the job creation potential MSW and C&D data results in an overall recycling rate that is
identified does not include the additional indirect jobs that higher than it would be for MSW alone.
may be created in other sectors that provide equipment Based on the 2008 Characterization Study,Table 1 below
and services to the recycling-related businesses or the summarizes the composition of California's overall disposed
.manufacturers using the recycled material as inputs,nor does waste stream'"by material type.Organic materials(food,
it include the induced jobs created by the spending of those paper,corrugated cardboard,composite organics,leaves and
holding the additional direct and indirect jobs(see further grass)account for about 50 percent(measured by weight)
discussion on p.10). of the overall disposed waste stream.It is not surprising,
On the other hand,given existing recycled commodity therefore,that one of the key focus areas in CalRecycle's
market conditions and export practices,as well as limited 75 Percent Initiative is on organic materials.The"Inerts
existing processing and manufacturing capacity,not all of the and Other"waste category'-'mostly from the C&D type
estimated job production would take place within the United materials,comprises 29 percent of the disposed waste
States.10 As discussed more fully below,a variety of policies, stream,and various plastics account for almost 10 percent
regulations and/or incentives could help stimulate domestic of disposed waste.
PAGE 4 1 From Waste to Jobs:What Achieving 75 Percent Recycling Means for California
Table 1:Composition of Californias Overall • ri:
Est.Percent Est.Percent
Material (by Weight) +/" Est.Tons Material (by Weight) +! Est.Ton
Paper 17.3% ,121 Plastic(continued)
Uncoated Corrugated Cardboard 4.8% 09% 1,905,897 Film Products 03% 0.2% 113,566
Paper Bags 04% 01% 155,848 Other Film 1 4% 0.3% 554,002
Newspaper 13% 03% 499,960 Durable Plastic Items 21% 04% 834,970
White Ledger Paper 07% 03% 259,151 Remainder/Composite Plastic 2.8% 0.7% 1,104,719
Other Office Paper 1.2% 0.6% 472,147 Other Organic 324% 12,888,039
Magazines and Catalogs 07% 02% 283,069 Food 15.5% 19% 6,158,120
Phone Books and Directories 0.1% 0.0% 24,149 Leaves and Grass 3.8% 0.7% 1,512,832
Other Miscellaneous Paper 30% 04% 1,202,354 Prunings and Trimmings 27% 15% 1,058,854
Remainder/Composite Paper 5.2% 0.7% 2,056,546 Branches and Stumps 0.6% 0.4% 245,830
Glass 1.4% 565,844 Manures 0.1% 0.1% 20,373
Clear Glass Bottles and Containers 05% 01% 196,093 Textiles 2.2% 0.3% 886,814
Green Glass Bottles and Containers 0.2% 01% 79,491 Carpet 3.2% 2.0% 1,285,473
Brown Glass Bottles and Containers 03% 01% 108,953 Remainder/Composite Organic 43% 0.5% 1,719,743
Other Colored Glass Bottles and 0.1/°
0.0% 40,570
Containers 0
Flat Glass a1% 01% 33,899 Concrete 1.2% 0.4% 483,367
Remainder/Composite Glass 03% 01% 106,838 Asphalt Paving 03% 04% 129,834
Asphalt Roofing 28% 15% 1,121,945
Tin/Steel Cans 0.6% 0.1% 236,405 Lumber 145% 22% 5,765,482
Major Appliances 0.0% 0.1% 17,120 Gypsum Board 16% 0.7% 642,511
Used Oil Filters 00% 00% 3,610 Rock,Soil and Fines 3.2% 1.1% 1,259,308
Other Ferrous 20% 04% 801,704 Remainder/Composite Inerts and Other 55% 13% 2,175,322
Aluminum Cans 01% 00% 47,829 Household Hazardous Waste(HHW) 03% 120,752
Other Non-Ferrous 0.2% 0.1% 84,268 Paint 0.1% 0.1% 48,025
Remainder/Composite Metal 1.6% 0.5% 648,747 Vehicle and Equipment Fluids 00% 00% 6,424
Electronics 05% 216,297 Used Oil 0.0% 00% 3,348
Brown Goods 02% 01% 76,725 Batteries 00% 00% 19,082
Computer-related Electronics 01% 01% 32,932 Remainder/Composite Household 01% 0.1% 43,873
Hazardous
Other Small Consumer Electronics 0.1% 0.0% 34,588
Video Display Devices 02% 01% 72,053 Ash 01% 01% 40,736
Treated Medical Waste 00% 00% 0
PETE Containers 05% 01% 199,644 Bulky Items 35% 1.2% 1,393,091
HOPE Containers 04% 01% 157,779 Tires 02% 01% 60,180
Miscellaneous Plastic Containers 04% 0.1% 163,008 Remainder/Composite Special Waste 01% 01% 52,463
Plastic Trash Bags 0.9% 0.1% 361,997 Mixed Residue 0.8% 330,891
Plastic Grocery and Other 0.3% 0.0% 123,405 Mixed Residue 0.8% 0.2% 330,891
Merchandise Bags
Non-Bag Commercial and 05% 0.2% 194,863
Industrial Packaging Film
Totals 100.00/0 39,722,818
Sample Count 751
refers to confidence interval.Confidence intervals calculated at the 90%confidence level.
Source California 2008 Statewide Waste Characterization Study,Cascadia Consulting Group for the California Integrated Waste Management Board,August 2009,p.6.
http//vvww calrecycle ca gov/publications/Documents/General/2009023.pdf.
Note.Percentages for material types may not total 100%due to rounding
PAGE 5 1 From Waste to Jobs-What Achieving 75 Percent Recycling Means for California
INCREMENTAL WASTE TONNAGE TO Chart 2020 Composition Disposed
ACHIEVE 75 PERCENT RECYCLING
To estimate the additional waste tonnage that must be source other 11% Paper 15%
reduced,recycled,or composted in 2020 to achieve the 75
percent recycling goal,we first need an estimate of waste Glass 1%
generation in 2020.CalRecycle projects statewide waste Metal a%
generation by applying the per resident waste generation rate Other Inerts 16%
from recent years(averaged 10.7 pounds per resident per day
from 1990 to 2010)la to the state's projected population(CA Plastic 9%
Department of Finance projects statewide population to grow
from 37.3 million in 2010 to 40.6 million in 2020)."Using
these assumptions,the statewide waste stream is projected to
grow by almost ten percent,from about 72.8 million tons in Lumber 12% Green 10%
2010 to almost 80 million tons in 2020.
CalRecycle has estimated that in 2020,absent relevant
Other Organics 9% Food 13%
policy or other changes,more than half of this material,
approximately 43 million tons,will be managed through
traditional disposal(i.e.landfilling)or"disposal-related Source.The"Why"and"How"of Measurement for a 75 Percent Statewide
activities,"(i.e.alternative daily cover,alternative Recycling Goal,CalRecycle,September 19,2012 http•//www calrecycle
intermediate cover,exported for disposal,transformation in ca gov/75percent/Sept2012WkspAtVhyHowMeasur.pdf.
the state's three waste-to-energy facilities,beneficial reuse,or •Includes traditional disposal and what is currently"disposal-related"material.
waste derived fuel).18-19 However,with the 75 percent recycling
goal,only 25 percent of the waste stream,or about 20 million
tons(80 million tons in 2020 x.25),can be disposed.So, CalRecycle then applied this estimated composition to
in order to reach the 75 percent recycling goal,roughly an the additional 23 million tons of disposed waste in 2020 to
additional 23 million tons must be recycled in 2020(43 minus project the tonnages for each material type that must be
20=23). recycled in order to reach the 75 percent goal as presented in
It is important to note that materials in the waste stream Table 3.
have different potential diversion rates depending on their
specific characteristics and how they are used in various Table 3:Additional Tons to . Order to Achieve
products.For example,metals are generally more effectively 75 Percent Overall
recovered and recyclable than composite packaging,which is
much more difficult to recycle.Similarly,much of the organic Paper 3,500
waste stream(e.g.,yard waste and food waste)is readily
Glass 240
compostable,but the infrastructure to process and market
compostable materials is limited and underdeveloped. Metal Sao
For the current study of employment impacts in California, Plastics 2,120
Tellus relied on CalRecycle's estimates of the additional Green 2,350
tonnages by material type required to achieve the 75 percent Food 3,060
diversion rate.20 CalRecycle provided estimates of the
composition by adjusting the 2008 Waste Characterization other Organics 2,120
study results of waste disposed in landfills by including Lumber 2,820
the additional materials managed by the"disposal-related other Inert 3,760
activities"described above.These calculations resulted in the other 2,590
composition for disposed material presented in Chart 1.
Total 23,500
PAGE 6 1 From Waste to Jobs:What Achieving 75 Percent Recycling Means for California
As described below,Tellus used CalRecycle's 2020 waste other words,the analysis shows that,due to different
composition estimates and its estimate of the additional tons contamination levels,paper in the disposal stream has a
by material type that will need to be recycled in order to meet lower potential for recycling than metals or plastics.As
the 75 percent recycling goal as key inputs for estimating discussed below in the Results section,though metals
incremental job creation. represent only 4 percent of the disposed waste stream and
It should be noted that CalRecycle's approach for plastics about 9 percent,if the estimates of 2020 incremental
estimating additional tons recycled by material type does tons recycled reflected these higher potential recycling rates
not necessarily reflect the different diversion potentials of for metals and plastics,overall estimates of job creation
recyclable materials.Rather,it simply estimates additional potential of meeting the 75 percent recycling goal would also
tons recycled for each material based on its share of the increase.This is due to the higher job production factors
disposed waste stream.For example,with paper estimated (explained below)associated with use of recycled metals or
to account for about 15 percent of the 2020 disposed waste plastics in manufacturing relative to the use of recycled paper
stream(see Chart 1,above),CalRecycle's approach assumes in manufacturing.
15 percent of the more than 23 million additional tons that
must be recycled in order to reach the 75 percent recycling
rate will be paper.The same assumption(share of disposed JOB PRODUCTION FACTORS
waste stream=share of total additional tons recycled)is To estimate potential job creation associated with achieving
made for all the other material categories in the 2020 waste the 75 percent recycling goal in California,Tellus used an
stream, approach we developed in a recent national study,More
This approach,however,does not utilize the findings of jobs,Less Pollution,Growing the Recycling Economy in the
the"Divertibility Analysis"in CalRecycle's 2008 Statewide U.S.22 For that study Tellus reviewed numerous reports and
Waste Characterization Study,which suggests that it may be data sources(e.g.,from state and federal agencies,non-
easier to recover some materials from the existing disposal governmental organizations,and consulting firms)on
stream than others.If,as the Divertability Analysis implies, economic activity and jobs created through recycling and
materials with a higher associated job production factor composting.Based on this review,we derived estimates of
end up being recovered at greater rates than those with a jobs produced per 1,000 tons of each material managed
lower job production factor,then the number of overall jobs (paper,glass,metals,plastics,rubber,textiles,wood,
created will be greater than our estimate.The Divertibility food scraps,yard trimmings,miscellaneous organic
Analysis estimates the extent and source of contamination wastes and other wastes)for each diversion and disposal
for commonly recoverable paper,plastic,and metal materials activity(collection,processing,manufacturing,reuse/
that are in waste loads disposed at solid waste facilities. remanufacturing,landfilling and incineration).These"job
Based on the results of its sampling approach,CalRecycle production factors"were then applied to the tonnages of
estimated that about 63 percent of these recyclable materials each material in the waste stream for each phase in the waste
were"clean'or uncontaminated at the time they arrived at management system.
disposal facilities.21 For the current study we first researched whether there
Various types of paper,including uncoated corrugated were state-specific data regarding job creation and the
cardboard,account for an estimated 89 percent of the various processes involved in solid waste management for
total tonnage of recyclable materials that is disposed.The each material in the waste stream.Unfortunately,we found
Divertibility Analysis found that approximately 61 percent no such data set for California,and this was confirmed by
of all paper found in the disposal stream was clean and CalRecycle staff.
recyclable and that 39 percent was too contaminated to Thus,we used the national job production factors
recycle. developed in our national study23 and applied them to the
By contrast,78 percent of metals(tin/steel cans and incremental tons recycled by material in Table 3,above.
aluminum cans)and 73 percent of plastics in the waste These job production factors are presented in Table 4.
stream were found to be"clean" (i.e.recyclable).In
PAGE 7 1 From Waste to Jobs:What Achieving 75 Percent Recycling Means for California
Table • per 1 1 1
DISPOSED WASTE(Jobs per 1,000 tons)
Collection Collection Reuse/
2008 2030 Processing Manufacturing Remanufacture Collection Landfill Incineration
MATERIALS
Paper&Paperboard 1.67 123 200 416 N/A 0.56 010 010
Glass 167 123 200 785 735 056 0.10 0.10
Metals
Ferrous 1.67 1.23 2.00 4.12 2000 056 010 010
Aluminum 1.67 1.23 2.00 17.63 20.00 056 010 010
Other Nonferrous 167 1 23 2.00 17.63 2000 056 010 010
Plastics 167 1 23 200 1030 2000 0.56 010 010
Rubber&Leather 1.67 1.23 2.00 9.24 7.35 056 010 010
Textiles 1.67 1.23 200 250 7.35 0.56 0.10 010
Wood 1.67 1.23 2.00 2.80 280 056 010 010
Other 1 67 123 200 250 N/A 0.56 0.10 010
Other Wastes
Food Scraps 1 67 123 050 N/A N/A 056 010 0.10
Yard Trimmings 1.67 123 050 N/A N/A 0.56 010 010
Misc Inorganic Wastes 1 67 123 050 N/A N/A 0.56 0.10 0.10
Source More Jobs,Less Pollution.Growing the Recycling Economy in the U S,Tellus Institute and Sound Resource Management,2011.
As indicated in Table 4 above,treating materials as waste Our assumption for processing of recyclables(2.0 jobs
and paying to send these materials for landfill disposal per 1,000 tons)and organics(0.5 jobs per 1,000 tons)may
or incineration is not labor intensive.Indeed,landfilling be somewhat conservative given the findings of the 2009
and incineration generate the fewest jobs per ton of waste Recycling Economic Information Study Update for five
managed(0.1 jobs per 1,000 tons).This is not surprising northeastern states,which estimated 2.73 jobs per 1,000
given that landfills and combustors can bury or burn large tons processed.2e
tonnages of undifferentiated waste with few employees. Job estimates derived from several sources for the
Materials collection also generates relatively few jobs. various manufacturing sectors that use recyclable materials
Based on detailed data collected in 2010 by CM Consulting demonstrate the labor intensity of manufacturing.L7 These
on behalf of the Container Recycling Institute,we have job production estimates vary greatly by material/sector:
assumed that 1.67 jobs are created per 1,000 tons of material from less than 3 jobs per 1,000 tons for wood and textiles,to
collected for recycling or composting and 0.56 jobs per ton about 4 jobs per 1,000 tons for paper as well as iron and steel
for disposal.The difference in job production factors for manufacturing,to about 10 jobs per 1,000 tons for plastics
recyclables versus trash collection reflects the fact that job and over 17 jobs per 1,000 tons for nonferrous metals.
creation related to materials collection varies by material Reuse and remanufacturing"are particularly labor
type(mixed waste versus mixed recyclables versus source- intensive with job production estimates of over 7 jobs per
separated recyclables)and that less labor per ton collected 1,000 tons for several material/product categories and
is required for mixed waste loads(slated for disposal)than around 20 jobs per 1,000 tons for metal products.29 Such high
for recyclables/compostables collection.L4 Note that the job production estimates for reuse and remanufacturing
collection job production estimate for recyclables is expected reflect the significant labor required for disassembly,
to decline to 1.23 jobs per 1,000 tons by 2030 as single- inspection,repair/refurbishment,reassembly and testing.For
stream recyclables collection(accompanied by increased the purpose of estimating jobs related directly to recycling
automation)continues to grow.25 For this analysis of job and manufacturing products using recycled materials as
creation potential in California in 2020,we used the midpoint feedstock,the jobs related to remanufacturing were not
of 1.45 jobs per 1,000 tons recyclables collected. counted in the CalRecycle study,and have not been counted
in this study.
PAGE 8 1 From Waste to Jobs:What Achieving 75 Percent Recycling Means for California
III. RESULTS
To estimate the job creation potential of reaching California's As shown in Table 5,the largest number of jobs projected
75 percent recycling goal in 2020,we applied the job to be produced is in the plastics,paper,and lumber sectors.
production factors by material and management activity Recycling of an additional 2.12 million tons of plastics
from Table 4(excluding reuse/remanufacturing)to the 2020 (including use in manufacturing)accounts for over 29,000
additional tons to be recycled by material in Table 3.The additional jobs,while recycling 3.5 million tons of paper
results are presented below in Table 5. produces almost 27,000 additional jobs,and the recovery and
We estimate that recycling an additional 23 million tons repurposing of 2.82 million tons of lumber produces almost
of discarded materials per year by 2020,which would mean 18,000 jobs.Note that while the 2020 additional tonnage of
going from a 50 percent recycling rate in 201230 to a 75 recycled plastics(2.12 million tons)accounts for about 9
percent recycling rate in 2020,has the potential to create percent of total incremental recycled tonnage,job creation
at least 110,000 additional recycling jobs.Over 34,000 of associated with additional plastics recycling accounts for over
the incremental jobs(31 percent of the total)are related 26 percent of the total estimated incremental jobs associated
to materials collection,26,000 jobs(24 percent)are in with a 75 percent overall recycling rate in California.This is
materials processing,and over 50,000 jobs(45 percent)are due largely to the relatively high job production factor for
in manufacturing in which the recovered materials are used. plastics manufacturing(10.3 jobs per 1,000 tons).
As noted in the Job Production Factors section,above,the While green waste,food,and other organics comprise
recyclables processing assumption of 2.0 jobs per 1,000 about a third of the total projected additional tons to be
tons handled is conservative.The Recycling Economic recycled to meet the 75 percent goal in 2020(7.53 million
Information Study Update:Delaware,Maine,Massachusetts, of 23 million total tons),organics create only about 13
New York,and Pennsylvania for the Northeast Recycling percent of incremental jobs(14,684 out of 110,000).This
Council(2009)estimated that recyclables processing is due to the fact that processing organics has a relatively
generates about 2.73 jobs per 1,000 tons.If we were to use this low job production factor(0.5 jobs per 1,000 tons),and
higher job production factor for processing of recyclables, organics are not used as inputs in traditional manufacturing
it would add approximately 7,000 jobs for a total of 33,200 processes.Compost is an important input for agricultural
processing jobs and a grand total of 117,330 jobs associated production,but we are not aware of any studies that have
with achieving the 75 percent recycling rate. analyzed the additional jobs created in the agricultural
The approach described above was adopted by CalRecycle sector from compost application.As a result,we chose to
in its own study of potential job creation that would result be conservative and not attribute any job creation benefits
from achieving the 75 percent recycling goal of AB 341.31,32 to the use of compost.Nonetheless,processing organics
for composting and diverting this material from landfills or
combustors creates a valuable soil amendment product and
has significant greenhouse gas benefits.
Table 5:Estimated incremental Recycling Jobs in 2020,by Material Type and Process
Additional
Tons
F Recycled roduction Factors Employment Associated with Recycling Activities
(1,000 tons) Collection Processing Manuf Total Collection Processing Manuf Totals
3,500 145 20 416 7 6 5,075 7,000 14,560 26,635
Glass 240 145 2.0 7.85 113 348 480 1,884 2,712
Metal 940 1.45 2.0 4.12 7.6 1,363 1,880 3,873 7,116
Plastics 2,120 1.45 2.0 10.30 13.8 3,074 4,240 21,836 29,150
Green 2,350 1.45 05 N/A 2 0 3,408 1,175 -- 4,583
Food 3,060 145 05 N/A 20 4,437 1,530 5,967
Other Organics 2,120 145 05 N/A 20 3,074 1,060 -- 4,134
Lumber 2,820 145 20 280 63 4,089 5,640 7,896 17,625
Otherinert 3,760 1.45 0.5 N/A 2.0 5,452 1,880 -- 7,332
Other 2,590 1.45 0.5 N/A 2.0 3,756 1,295 5,051
Total 23,500 34,076 26,180 50,049 110,305
PAGE 9 1 From Waste to Jobs:What Achieving 75 Percent Recycling Means for California
Note that while the job production factors for reuse and be an incremental process,and will require a variety of
remanufacturing are by far the highest for any phase of policies,regulations and incentives to stimulate domestic
materials management(even higher than manufacturing; investments to build or expand the required processing and
see Table 4 above),and remanufacturing in the U.S.was manufacturing capacity to handle and use the materials.
valued at$43 billion in 2011,33 specific data on California While jobs related to materials collection and a significant
remanufacturing by material type are not available.The fraction of jobs related to materials processing are and will
job creation estimates in the current report,therefore, continue to be located in California,according to CalRecycle,
do not include potential jobs associated with reuse/ in 2012 almost 20 million tons of recycled materials were
remanufacturing.In part because of our conservative exported by sea from California ports.Over half of this
approach to methodological limits,this report is clearly tonnage was mixed paper,cardboard and paperboard,and
offering a lower-range estimate of total California job about 5 percent(over 1.1 million tons)was plastics.China
creation potential associated with achieving the 75 percent and Hong Kong received about 95 percent of recycled plastics
recycling rate. exports.35 China received 58 percent of the total weight of all
Moreover,these estimates relate to direct job creation. recyclables shipped,with Taiwan and Korea also significant
They do not include the indirect jobs that may be created importers of recycled materials.36
in other sectors that provide equipment and services to the While there are fairly good data concerning the quantity
recycling-related businesses or the manufacturers using the of recyclables exported through California ports,the amount
recycled material as inputs;nor do they include the induced of this material that is generated in California,as opposed
jobs created by the spending of those holding the additional to collected,consolidated,and shipped from other states
direct and indirect jobs.While sufficient data are not through California,is less clear.CalRecycle reports that
available to estimate the potential indirect and induced jobs "Some estimates say 60 percent to 80 percent may originate
that reaching the 75 percent recycling goal would achieve,a in California,but that is a rough estimate and a large range.1137
recent study for the Environmental Standards Branch of the CalRecycle also found that much of the higher-level
British Columbia Ministry of Environment estimated that processing of bulk or baled materials,including paper,
direct jobs created from materials management activities plastic,and metals,has been occurring in other countries,
represent about two-thirds of total job creation,with indirect particularly China and other countries in South Asia.
jobs accounting for about 25 percent and induced jobs 10 Moreover,according to CalRecycle,"For most materials,there
percent of total jobs.34 If this finding were applied to the is not enough capacity at facilities within California to handle
110,000 direct jobs estimate for California,it would result in the materials that are currently being exported.1138 Without
an additional 38,600 jobs. development of new processing and manufacturing facilities,
On the other hand,the estimate of 110,000 incremental the lack of adequate capacity will become an even bigger
recycling jobs does not account for the loss of jobs associated barrier to California realizing the potential employment and
with the tonnage diverted from collection and disposal at economic benefits of recycling the additional 23 million tons
landfills.Applying the job production factors for collection needed to meet the 75 percent goal by 2020.While noting
and disposal at landfills(0.56 and 0.10 jobs per 1,000 tons, the state's vulnerability to the vagaries of the commodity
respectively)to the more than 23 million incremental tons export markets,the department correctly concludes that"if
recycled in 2020 would result in 15,510 disposal-related we increase our recycled content manufacturing capacity,
jobs lost. then more of these materials could be processed into
Also;realizing the job creation potential described above is products here in California.It would mean more jobs created
dependent on the ability of the state's recycling infrastructure in California,less greenhouse gases associated with long
to process the collected recyclable materials within California distance transport,and ensure that these resources stay in
and use those materials at in-state manufacturing facilities. California's material stream and economy."39
Retaining more of these jobs in California or the U.S.will
PAGE 10 1 From Waste to Jobs:What Achieving 75 Percent Recycling Means for California
Endnotes 15 As defined in section 20230.SWRCB-Inert Waste(C15•Section
2524)of Title 27,Environmental Protection—Division 2,Solid Waste,
1 AB 341's 75 Percent Goal and Potential New Recycling Jobs in "Inert waste is that subset of solid waste that does not contain hazardous
California by 2020(CalRecycle),August,2013 available at http//www waste or soluble pollutants at concentrations in excess of applicable
calrecycle ca gov/Publications/Detail aspx?Publication I D=1463 water quality objectives,and does not contain significant quantities of
2 Assembly Bill 341 as enacted,available at http-//www leginfo ca gov/ decomposable waste."As mentioned in the previous footnote,inert
pub/1 1-1 2/bill/asm/ab_0301-0350/ab_341_bill_20111006_chaptered.pdf. materials include concrete,rock,sod and fines."Composite inerts"
refers to a mixture of these materials such as may be generated at a
3 AB 341 covers multi-unit housing of five units or more,which is construction site
estimated to be about 73%of all multi-unit dwellings in the state
4 The Numbers What Does 75%Recycling Mean,CalRecycle,May 16 The Numbers[What Does 75%Recycling Mean,CalRecycle,May
2012 http./Jww Numbers' 75%Recycling Mean,CalRecycle,
pdf 2012 http-//www calrecycle ca gov/75percent/WhatltMeans pdf Note,
however,that per resident generation rates were below 10 pounds per
5 The Numbers'What Does 75% Recycling Mean,CalRecycle, May resident per day in the 1990s and have ranged between 10 7 and 13 6
2012 http//www calrecycle ca gov/75percentNVhatltMeans pdf pounds per resident per day from 2000 to 2010.As discussed throughout
6 Update on AB 341 Legislative Report, "Statewide Strategies to this report,CalRecycle's waste generation data,including this per capita
Achieve the 75 Percent Goal by 2020,"CalRecycle,October 2013, figure,includes both MSW and C&D,and reflects both residential and
available at http//www.calrecycle ca gov/75percenV Note that a final commercial waste
report is expected in early 2014 17 Report P-1 (County),State and County Population Projections,July
7 More Jobs,Less Pollution Growing the Recycling Economy in the 1,2010-2060(5-year increments),California Department of Finance
U S.,Tellus Institute and Sound Resource Management,2011 http-//docs Demographic Research Unit,January 31,2013.
nrdc org/globalwarming/files/glo_11111401a pdf. 18 The Numbers)What Does 75% Recycling Mean,CalRecycle,May
8 AB 341's 75 Percent Goal and Potential New Recycling Jobs in 2012 http•//www calrecycle ca gov/75percent/VVhatltMeans pdf
California by 2020(CalRecycle),August,2013 available at http•//www 19 Under CA regulations(see http•//www calrecycle ca.gov/Laws/
calrecycle.ca.gov/Publications/Detaii.aspx?PublicationID=1463 Regulations/iitle27/ch3sb4a.htm#20690), "daily cover" refers to material
9 Note that this report does not consider the jobs that might be (generally six inches of compacted earthen material)placed on active
associated with cleaning up litter,as there are no reliable data in this area landfill units at the end of each operating day,or at more frequent
intervals if necessary,to control vectors,fires,odors,blowing litter,and
10 Though the export of recyclables to foreign markets means that scavenging Alternative daily cover(ADC)refers to alternative materials
some of the jobs associated with processing recycled materials and their or thickness that may be permitted with various restrictions,including
use in manufacturing will be created in the importing countries(especially a demonstration by the landfill owner or operator that such use of such
China and others in Southeast Asia),this is partially offset by the material will not present a threat to human health and the environment.
export-related jobs created in the U S,such as dockworkers,shipping, ADC materials includes geosynthetic fabric or panel products;foam
longshoremen,etc These export-related jobs are beyond the scope of the products;processed green material(yard trimmings,untreated wood
present study. waste,paper products);sludge and sludge-derived materials,ash and
11 California 2008 Statewide Waste Characterization Study,Cascadia cement kiln dust materials;treated auto shredder waste;contaminated
Consulting Group for the California Integrated Waste Management Board, sediment,dredge spoils,foundry sands,energy resource exploration
August 2009 http•//www calrecycle ca gov/publications/Documents/ and production wastes(with certain restrictions);processed construction
General/2009023.pdf. and demolition wastes and materials,shredded tires,and spray applied
cementitious products Intermediate cover" is compacted earthen
12 CalRecycle is currently working on an update of this information material at least twelve inches placed on all surfaces of the fill where no
through the 2014 Waste Characterization Study.This update will also additional solid waste will be deposited within 180 days to control vectors,
provide enhanced data on the management of commercially-generated fires,odors,blowing litter,and scavenging
waste,which should help fill an important information gap.See http// 20 The Numbers)What Does 75%Recycling Mean,CalRecycle,May
www calrecycle ca gov/wastechar/2014Study.htm 2012 http•//www calrecycle ca gov/75percentM/hatltMeans pdf
13 CalRecycle no longer tracks C&D waste separately in its Waste
Characterization studies.The closest category is"Inerts and Other," 21 Note.The terminology"clean"does not necessarily mean that
which in the most recent(2008)Statewide Waste Characterization Study the materials will be recovered in a greater percentage or that the
comprised 29.1 percent of the overall waste stream This category more contaminated material will not be recycled It indicates that less
includes concrete;asphalt paving,asphalt roofing,lumber(at 14.5% processing would be required than for more contaminated materials,
equals about half the total of 29.1%),gypsum board,rock,sod,and fines, but is not correlated to processing capability at the facility receiving the
and remainder/composite inerts and other This category is imperfect as material In addition,there are other alternatives for contaminated paper
"it represents only a portion of the total statewide disposal from all C&D that would still count for"recycling"under AB 341 such as composting
activities"Thus,there are other materials(paper,cardboard,plastics, food-soiled paper
metals)that are also generated/disposed from C&D that are not in this 22 More Jobs, Less Pollution:Growing the Recycling Economy in the
Inerts and Other category Similarly,not all the disposed lumber in this U S,Tellus Institute and Sound Resource Management,2011.http//docs
category is from C&D activities.With these significant caveats,C&D nrdc org/globalwarming/files/glo_11111401 a pdf.
represents approximately 30%of the overall waste stream. 23 See pages 31-35 of the More Jobs.Less Pollution report for a
14 The disposed waste stream refers to waste that is landfilled,it does detailed description of methodology used to develop the job production
not include waste that is diverted through recycling or composting. factors,including original sources relied upon
PAGE 111 From Waste to Jobs:What Achieving 75 Percent Recycling Means for California
24 The higher lob production factor for recyclables collection versus 32 For its study,CalRecycle reviewed 16 prior studies of job creation in
trash collection is partially due to the fact that recyclables are generally recycling,including ones that were state,regional,and national in scope
not compacted in the collection vehicles and therefore recycling collection and others that were focused on specific materials.CalRecycle used the
vehicles collect less tonnage per trip than trash compacting trucks This Tellus methodology and job production factors,noting that"the Tellus/
means that collection vehicles for recyclables require more trips(and SRM study was selected due to its superior level of detail and analysis,
therefore more time and labor)to handle the same amount of tonnage as i.e.,the breakout of data for specific materials and activities."Using the
trash compacting vehicles. Tellus methodology,CalRecycle estimates over 109,000 potential lobs
25 The growth in single-stream collection of recyclables is motivated created from reaching 75%recycling in 2020,an almost identical figure
by the prospect of saving upfront collection costs,simplifying the system to the to the 110,000 jobs estimated in the current Tellus study The
for consumers in order to increase participation,and decreasing worker small difference between the CalRecycle and Tellus estimates(about
injuries through automating collection processes Notwithstanding 1,300 jobs total)are attributable to slightly different job production factor
the growing popularity of single-stream collection,there are potential assumptions for the collection and processing of"other"wastes;based
downsides as well,most importantly higher contamination rates for the on our 2011 national study,Tellus uses a figure of 1.95 jobs per 1,000
collected material,higher downstream processing costs,and in some tons other waste collected while CalRecycle uses 1 45 jobs per 1,000
cases,lower value materials. tons.
26 Recycling Economic Information Study Update.Delaware,Maine, 33 Remanufactured Goods.An Overview of the U.S and Global
Massachusetts,New York,and Pennsylvania, DSM Environmental and Industries,Markets and Trade,United States International Trade
MidAtlantic Solid Waste Consultants for the Northeast Recycling Council, Commission,October 2012.
2009 34 Zero Waste Business Case,Draft for Expert Review, Innes Hood
27 More Jobs,Less Pollution Growing the Recycling Economy in the Consulting, Inc for the Environmental Standards Branch,British Columbia
U.S.,Tellus Institute and Sound Resource Management,2011,pp.31-35. Ministry of the Environment,May 2013,p 42
http//docs.nrdc.org/globalwarming/files/glo_11111401 a pdf. 35 2012 California Exports of Recycled Materials,California Department
28 According to the Remanufacturing Industries Council, of Resources Recycling and Recovery(CalRecycle),July 2013 The
"Remanufacturing is a comprehensive and rigorous industrial process by report covers only materials shipped from California by sea;it does not
which a previously sold,worn,or non-functional product or component is include recyclables exported by truck to either Mexico or Canada,though
returned to a"like-new"or"better-than-new"condition and warranted such quantities are presumably relatively small Plastics exports in 2012
in performance level and quality Remanufacturing is not the same as included 488,000 tons of PET,HDPE and LDPE plus 658,000 tons of PVC,
"recycling"or"repairing." Unfortunately,this definition is not broadly polystyrene,and other plastics(pp.12-13).
understood and the term"remanufacturing"is often misused to describe 36 Note that according to the CalRecycle report cited above,2012
manufacturing using recycled material inputs recycled material tonnages exported from California ports were about
29 Note that many high-value products that are reused or 11%lower than in 2011.Also,in February 2013,the Chinese government
remanufactured(e g,capital goods such as manufacturing,mining,and began implementing Operation Green Fence,an effort to increase
agricultural equipment,and consumer durables such as computers,auto inspections of imported recyclables in order to reduce the volume of
parts,and laser toner cartridges)are made of several materials,so the job contaminate loads,and meet the existing Chinese government quality
production estimates are not precisely linked to specific materials.Rather, standards.Figures from the first few months of 2013 show continued
they relate to product categories in which certain materials may dominate decline in exports of recyclables to China,but it is too early to ascertain
(e g.,metals for auto parts or plastic for laser toner cartridges). the ultimate impact of Operation Green Fence
30 Update on AB 341 Legislative Report,Statewide Strategies to 37 2012 California Exports of Recycled Materials,California Department
Achieve the 75 Percent Goal by 2020,CalRecycle,October 2013,p 9 of Resources Recycling and Recovery(CalRecycle),July 2013,p.24.
31 AB 341's 75 Percent Goal and Potential New Recycling Jobs in 38 Ibid.
California by 2020,CalRecycle,July 2013,available at http•//www 39 Ibid.
calrecycle.ca.gov/publications/Detail.aspx?PublicationlD=1463.
PAGE 12 From Waste to Jobs:What Achieving 75 Percent Recycling Means for California
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