Draft Environmental Impact Report Single‐Use Carryout Bag Ordinance SCH #2012012008 Prepared by: Mendocino Solid Waste Management Authority for the County of Mendocino February, 2012 PREFACE This document has been prepared by the County of Mendocino as the Lead Agency in conformance with the California Environmental Quality Act (CEQA). The purpose of this draft Environmental Impact Report (EIR) is to inform decision makers and the general public of the environmental effects of a proposed project. The project that is the subject of this draft EIR is a proposed ordinance of the County of Mendocino to prohibit the distribution of single-use plastic carryout bags at the point of sale in retail sales establishments within the unincorporated County. The proposed ordinance would allow paper bags containing a minimum of 40 percent post-consumer recycled content, provided they are sold for a minimum price. This draft EIR is available for public review at the Mendocino Solid Waste Management Authority, 101 W. Church Street #9, Ukiah, California on weekdays during normal business hours. Comments on this draft EIR may be sent to the County of Mendocino by email or by U.S. Mail. The email address for comments is: [email protected] The mailing address is: County of Mendocino c/o Mendocino Solid Waste Management Authority 101 W. Church Street #9 Ukiah, CA 95482 The deadline for sending comments on the Draft EIR is March 27, 2012 at 5:00 p.m. There will be a hearing before the Board of Supervisors on the EIR. You can learn the most current status of the EIR and the scheduled public hearing by calling the Mendocino Solid Waste Management Authority at (707) 468-9710. Table of Contents 1.0 SUMMARY 1 2.0 PROJECT DESCRIPTION 2 2.1 Background 2 2.2 Current Carryout Bag Distribution & Use 3 2.3 Paper versus Plastic 5 2.4 Capacity 6 2.5 Durability 6 2.6 Concerns Related to Single‐use Carryout Bags 7 2.7 Waste Management 9 2.8 Litter and Waterways 10 2.9 Project Location 11 2.10 Project Description 11 2.11 Public Education and Outreach 15 2.12 Goals of the Program 15 2.13 Statement of Policy Objectives 15 2.14 Uses of the Environmental Impact Report 16 2.15 Consistency with General Plan 16 3.0 ENVIRONMENTAL SETTING AND IMPACTS 17 3.1 Impact of the Ordinance on Bag Use 17 3.2 Land Use & Aesthetics 19 3.2.1 Existing Land Uses 19 3.2.2 Visual and Aesthetic Character 20 3.2.3 Litter 20 3.2.4 Litter Surveys 21 3.2.5 Land Use: Thresholds of Significance 22 3.2.6 Direct Land Use Impacts of the Project 22 3.2.7 Indirect Land Use Impacts of the Project 22 3.2.8 Impacts at Retail Stores 22 3.2.9 Impacts to Littering 24 3.2.10 Agricultural Resources Impacts 24 3.2.11 Land Use Impacts from Reusable Bags 24 3.2.12 Conclusion 24 3.3 Biological Resources 25 3.3.1 Existing Environmental Setting 25 3.3.2 Plastic Litter in Water Bodies 27 3.3.3 Biological Threshold of Significance 28 3.3.4 Biological Resources Impacts of Project 29 3.3.5 Secondary Biological Impacts of Project 29 3.3.6 Impacts from Reusable Bags 30 3.3.7 Mitigation for Project Impacts 30 3.4 Hydrology and Water Quality 31 3.4.1 Existing Environmental Setting 31 3.4.2 Hydrology: Thresholds of Significance 31 3.4.3 Hydrology & Water Quality Impacts of Project 32 3.4.4 Indirect Impacts 33 3.5 Utilities and Service Systems 34 3.5.1 Solid Waste 34 3.5.2 Utilities: Thresholds of Significance 35 3.5.3 Solid Waste Impacts Resulting from Project 35 3.5.4 Water Supply and Wastewater Impacts of Project 36 3.5.5 Conclusion 36 3.6 Transportation 37 3.6.1 Existing Environmental Setting 37 3.6.2 Transportation Impacts: Thresholds of Significance 37 3.6.3 Transportation Discussion 37 3.6.4 Transportation Impacts Resulting from Project 38 3.7 Hazards and Hazardous Materials 38 3.7.1 Existing Environmental Setting 38 3.7.2 Hazards: Thresholds of Significance 39 3.7.3 Hazards Impacts of Project 39 3.7.4 Cockroach Infestations 40 3.7.5 Potential Microbiological Hazards 41 3.8 Air Quality 44 3.8.1 Existing Environmental Setting 44 3.8.2 Air Quality Impacts: Thresholds of Significance 44 3.8.3 Air Quality Discussion 45 3.8.4 Air Quality Impacts Resulting from Project 45 3.8.5 Mitigation for Project Impacts 46 3.9 Greenhouse Gas Emissions 46 3.9.1 Background 46 3.9.2 Regulatory Framework 49 3.9.3 Greenhouse Gas Emissions Associated with Bags 50 3.9.4 Greenhouse Gas: Thresholds of Significance 53 3.9.5 Greenhouse Gas Emissions Discussion 54 3.9.6 Greenhouse Gas Emissions Resulting from Project 54 3.9.7 Impacts to the Project 54 3.9.8 Mitigation for Project Impacts 54 3.10 Energy 54 3.10.1 Introduction 54 3.10.2 Existing Environmental Setting 55 3.10.3 Energy Use Associated with Bags 55 3.10.4 Energy Impacts: Thresholds of Significance 57 3.10.5 Energy Impacts Resulting from Project 57 3.10.6 Mitigation for Project Impacts 58 4.0 CUMULATIVE IMPACTS 58 5.0 GROWTH INDUCING IMPACTS 59 6.0 ALTERNATIVES 59 6.1 Selection of Alternatives 59 6.1.1 Significant Impacts of the Project 59 6.1.2 Objectives of the Project 60 6.1.3 Feasibility of Alternatives 60 6.2 No Project Alternative 61 6.2.1 Description 61 6.2.2 Impact Analysis 61 6.2.3 Conclusion 61 6.3 Education, Recycling and Litter Control Alternative 61 6.3.1 Description 61 6.3.2 Impact Analysis 62 6.3.3 Conclusion 63 6.4 Ban on Single‐use Plastic, No Fee Alternative 63 6.4.1 Description 63 6.4.2 Impact Analysis 63 6.4.3 Conclusion 64 6.5 Ban on Single‐use Plastic and Paper Alternative 64 6.5.1 Description 64 6.5.2 Impact Analysis 65 6.5.3 Conclusion 66 6.6 Fee on Single‐use Paper and Plastic Bags Alternative 66 6.6.1 Description 66 6.6.2 Impact Analysis 66 6.6.3 Feasibility 66 6.6.4 Conclusion 69 6.7 Allow “Biodegradable” Plastic Bags Only Alternative 69 6.7.1 Description 69 6.7.2 Impact Analysis 69 6.7.3 Conclusion 70 6.8 Environmentally Superior Alternative 71 7.0 SIGNIFICANT IRREVERSIBLE ENVIRONMENTAL CHANGES 71 8.0 SIGNIFICANT UNAVOIDABLE IMPACTS 71 9.0 REFERENCES 72 APPENDIX A. Life Cycle Assessments APPENDIX B. Number of Uses per Reusable Bag APPENDIX C. Summary of Available Information on Reusable Bags FIGURES Figure 1: Regional Map 13 Figure 2: County Map 14 TABLES Table 1: Plastic and Paper Bag Production from 1980 to 2006 3 Table 2: Carryout Bag Usage, The County 19 Table 3: Comparison of Microbiological Contamination on Reusable 43 Bags and Household Surfaces Table 4: Nolan‐ITU Greenhouse Gas Emissions from Carryout Bags 51 Table 5: Boustead LCA Greenhouse Gas Emissions from Single‐use 52 Carryout Bags Table 6: Ecobilan Greenhouse Gas Emissions 52 Table 7: Ordinance Impact on Greenhouse Gas Emissions 54 Table 8: Ecobilan Consumption of Non‐Renewable Energy for Carryout 56 Bags Table 9: Nolan‐ITU Energy Use Associated with Carryout Bags 57 Table 10: Ordinance Impact on Energy Use 58 1.0 SUMMARY The County of Mendocino is proposing to adopt an ordinance regulating the distribution of single-use carryout bags at the point of sale. The proposed ordinance would add a new chapter to County Code and prohibit the free distribution of single-use carryout paper and plastic bags at the point of sale (i.e., check-out) for all commercial retail businesses in the unincorporated County, on a phased timetable depending on the type of retail establishment. In most of this EIR, "County" refers to the geographical area inside Mendocino County which is unincorporated, and therefore subject to the proposed ordinance. An exception is made for paper bags containing at least 40 percent recycled content, which can be provided to customers for a minimum store charge not less than the store's actual cost of providing the bag, which is assumed to be a minimum of $.10 per bag, unless the store documents a lesser actual cost. The business is required to charge for the exempt paper bags so that the cost of carryout bags is no longer hidden in the price of the merchandise, and the customer can choose whether to pay or not to pay the cost of the bag. The ordinance would exclude plastic or paper bags that are used by customers or the store to protect or contain meat, fresh produce, food prepared at the establishment, or other goods that must be protected from moisture, damage, or contamination, and that are typically placed inside a carryout bag at the point of sale. Supermarkets, drug stores, and take-out restaurants with drive-up windows would be subject to the ordinance 180 days after it is enacted. Other stores, including department stores, clothing stores, liquor stores, book stores, specialty stores, and convenience stores would have to comply one year later. The ordinance does not distinguish among types of plastic or types of plastic bags beyond their ability to be reused multiple times. Single-use plastic bags provided free to customers at the check-out stand for the purpose of holding the customer’s purchases are prohibited by the ordinance.