Appendix A MM in Oregon 2050 Vision and Framework for Action.pdf

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Materials Management in Oregon 2050 Vision and Framework for Action

Adopted by the Environmental Quality Commission

December 6, 2012

12-LQ-036

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Table of Contents 2050 Vision Executive Summary Creating a Materials Management Vision

What is Materials Management?

Why use a Materials Management Approach?

From Managing Discards to Managing Materials The Business Case for Materials Management The Vision Process

Welcome to 2050 Upstream, Design, and Production in 2050 Upstream, Design, and Production Today Consumption and Use in 2050 Consumption and Use Today End-of-Life Management in 2050 End-of-Life Management Today

Framework for Action Implementing the Framework for Action Foundations Policies and Regulations Collaboration and Partnerships Education and Information

Endnotes & Appendices

Acknowledgments DEQ gratefully acknowledges the valuable contributions and insights of the Materials Management Workgroup. Members are listed in Appendix D.

Many individuals within DEQ contributed to the development of this project, including major efforts from Abby Boudouris (project manager), David Allaway, Bob Barrows, Cheryl Grabham, Loretta Pickerell and Peter Spendelow. Leslie Kochan, Bruce Lumper, and the Solid Waste Program Management Team also contributed.

Cascadia Consulting Group (Jessica Branom-Zwick, Marc Daudon, and Christy Shelton) and Sustainability Partners (Drs. Brian and Mary Nattrass) facilitated meetings of the Materials Management Workgroup and contributed to the development of this Vision and Framework for Action.

More information on the 2050 Vision and Framework for Action appears on the project website: www.deq.state.or.us/lq/sw/materialsmgmtplan.htm http://www.cascadiaconsulting.com/ http://www.sustainabilitypartners.com/ http://www.deq.state.or.us/lq/sw/materialsmgmtplan.htm

2050 Vision for Materials Management in Oregon

Oregonians in 2050 produce and use materials responsibly conserving resources • protecting the environment • living well

Recognizing that Earth’s resources are finite, Oregonians live within the limits of our sustainable share of the world’s natural resources. We make and use materials and products in a manner that maintains and restores a healthy environment and fertile soils.

Materials and products minimize the use and release of toxins, the release of greenhouse gases and pollutants, the use of energy and water, and the extraction of nonrenewable materials.

We take into account the full impacts of materials throughout their life cycle. We minimize harmful disturbance of land and natural ecosystems, using resources in a responsible way only as necessary to meet human needs and maintain healthy, vibrant and prosperous communities. When materials and products are no longer useable or wanted, they are recovered for their next highest and best use.

We use renewable resources at levels that can be sustained in perpetuity while maintaining the resiliency of natural systems.

Wherever they are made, the materials and products we purchase in Oregon similarly are made in a manner that supports human health, well-being and healthy, resilient environments and communities.

All Oregonians have access to the knowledge, capabilities, resources and services required to use materials responsibly. This Vision provides for a prosperous and clean economy that allows all people to live fulfilling lives, now and in the future.

2050 VISION

EXECUTIVE SUMMARY

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EXECUTIVE SUMMARY

Executive Summary Global demand for materials and products is increasing rapidly, bringing significant impacts to Oregon residents, businesses, communities and the environment. Oregon law cites the need to conserve resources and energy and acknowledges limits in the environment’s ability to absorb the impacts of increasing consumption.

Oregon is recognized as a leader in conserving resources through recycling and proper management of wastes. Yet this focus on managing discards has limited potential to address the full impacts of materials and the challenges they present for Oregonians and the environment. To guide state policy and programs and to achieve the best environmental results at the lowest cost to society, DEQ convened a workgroup to help develop this 2050 Vision and Framework for Action.

What is Materials Management?

The materials management approach includes waste prevention and discard management, while seeking to reduce environmental impacts by managing materials through all stages of their life. It identifies impacts and actions to address those impacts across the full cycle of materials and products as they move through the economyfrom raw material extraction to product design and manufacture, transport, consumption, use, reuse, recycling and disposal.

A more holistic materials management approach will help DEQ shape state policies in a changing world with new jobs, new opportunities and new challenges.

Figure 1.

Life Cycle of Materials and

Products

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Creating a Vision for Materials Management In 2011, DEQ convened a workgroup to help develop this long-term Vision and Framework for Action. DEQ applied the process of “backcasting”—starting with a future vision and then looking back to identify steps needed to achieve it. The resulting 2050 Vision and Framework for Action also serves as an update to Oregon’s State Integrated Resource and Solid Waste Management Plan (1995-2005), which guides statewide policy.

The 2050 Vision describes a desired future where Oregonians live within the limits of their sustainable share of the world’s natural resources:

Materials and products—both made in Oregon and used in Oregon— support human health, well-being and healthy, resilient environments and communities. Sustainable use of materials allows all people to enjoy a prosperous, clean economy and fulfilling lives, now and in the future.

This document envisions an Oregon in 2050 where:

Producers make products sustainably. Every option is a sustainable option.

People live well and consume sustainably.

Materials have the most useful life possible before and after discard.

Oregonians in 2050 will produce and consume much differently than today. We will produce less waste and recover more materials in a smarter way.

Together, we will manage materials wisely, while strengthening economies at the local, regional, national and global levels.

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Framework for Action Taking action early in the life cyclein design and productionoffers the best opportunities to realize the 2050 Vision. While producers shift to more sustainable actions, consumers also have important roles to play in the types of products they demand and how they use them.

Effective management of materials at the end of their lives redirects resources back into productive use.

To help achieve the 2050 Vision in Oregon, DEQ must take several different types of actions. The Framework for Action includes pathways to lead Oregon to desired outcomes, including the following:

Foundations. This work will create the solid foundation necessary to achieve the 2050 Vision. Foundational work includes setting goals and measuring outcomes, supporting and performing research, and securing stable funding.

Policies and regulations. DEQ will evaluate and develop policies and regulations that put Oregon on the path toward achieving the 2050 Vision.

Collaboration and partnerships. Coordination throughout the life cycle of materials and products will support innovative solutions.

DEQ will collaborate with other state agencies, businesses, local governments and nongovernmental organizations.

Education and information. DEQ will share information it develops with partners for distribution to appropriate audiences.

This 2050 Vision and Framework for Action document is available online at www.deq.state.or.us/lq/sw/materialsmgmtplan.htm.

http://www.deq.state.or.us/lq/sw/materialsmgmtplan.htm

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Oregonians in 2050 produce and use materials responsibly conserving resources • protecting the environment • living well

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Creating a Materials Management Vision What is Materials Management?

The materials management approach seeks to reduce environmental impacts by managing materials throughout all stages of their life cycle.

Materials management includes waste prevention and discard management. More broadly, it identifies impacts and actions to address those impacts across the full life cycle of materials and products as they move through the economy—starting with design and continuing through raw material extraction, manufacture, transport, consumption, use, reuse, recycling and disposal.

Figure 2. Life Cycle of Materials and Products

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Why use a Materials Management approach?

Managing materials holistically is important because life-supporting resources are declining globally, while consumption of these resources is increasing.

Materials matter. Global demand for materials—from rare earth metals to agricultural products—is increasing rapidly, with significant economic impacts to Oregon businesses and households.1 At the same time, the types of materials are also changing, with most materials coming from nonrenewable—and ultimately, unsustainable— sources.2

Demand for these materials has led to significant environmental impacts, including toxic chemicals in the air and water; damage to ecosystems; unsustainable use of energy, water and other natural resources; and global warming. Making, transporting, selling and disposing of the materials consumed in Oregon contributes between 35 and 48 percent of Oregon’s consumption-related greenhouse gas emissions—on par with the state’s emissions from the direct consumption of electricity and fuels combined.3 For an excellent overview of the growth in materials use—and associated impacts—see the U.S. Environmental Protection Agency’s 2009 report, Sustainable Materials Management: The Road Ahead.

Figure 3. Use of Materials in the United States, 1900-2002.

Modified from Center for Sustainable Systems, University of Michigan (2011), based on Matos and Wagner, 1998, and Wagner, 2002.4

‘‘It is becoming increasingly clear that how we use materials is a large factor in energy use, climate change, and the economy, and an important issue in its own right.’’

U.S. Environmental Protection Agency, Sustainable Materials Management: The Road

Ahead (2009) http://www.epa.gov/wastes/conserve/smm/vision.htm http://www.epa.gov/wastes/conserve/smm/vision.htm

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Great progress has been made in discard management in the past 20 years, yet Oregon can do even better.5 It is now clear that the vast majority of environmental impacts result from decisions made in design, production and consumption—not end-of-life management.6 Accordingly, producers and consumers have important roles to play.

From Managing Discards to Managing Materials DEQ’s historic focus on materials management at end-of-life is largely a consequence of problems identified—and legislation passed—20 to 30 years ago. At that time, many landfills were poorly located, operated and regulated, and new federal standards made the closure of many landfills imminent. These factors added to a perception of a “garbage crisis”—that we were running out of places to dispose of our waste. The 1970s energy crisis and growing environmental concerns also led to public support for resource conservation through recycling.

Oregon today looks much different in some ways. We now have an abundance of disposal capacity, in landfills that are better operated and less polluting than their predecessors. Recycling programs are firmly established, conserving resources, reducing pollution and providing green jobs.7 Some producers are sharing responsibility for managing their products at end-of-life and for reducing the presence of toxic chemicals in products that enter consumers’ homes and eventually become solid waste. Recycling is now second nature for many Oregonians, and interest in “reduce” and “reuse” is growing.

The limits of this solid waste management framework are becoming more apparent, even as our overall consumption of resources continues to grow and our environmental “footprint” becomes more globally dispersed.8 We have learned much in the past 25 years. We now understand that smart decisions—ones that are good for the environment, economy and society—require thinking about impacts across the full life cycle of materials. Focusing on only management of discards limits options to protect the environment and can lead to decisions that are penny-wise but pound-foolish.9,10 In contrast, materials management offers a framework to address the integrated nature of materials, guide state policy and programs, and achieve the best results at the lowest cost to society.

Existing policy also points in the direction of materials management.

Oregon Revised Statute 459 calls out the need to conserve resources

Materials management:

Identifies impacts throughout the life cycle

Focuses on high-impact actions across the life cycle

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and energy, and also acknowledges limits in the environment’s ability to absorb the impacts of increasing consumption.11 These issues transcend the narrow framework of solid waste management. Even the so-called “waste management hierarchy” emphasizes practices that have little to do with the management of discards. “Reduce” and “reuse” primarily involve the consumption and use of materials, not the management of wastes. And while recycling is commonly thought of as a method for managing discards, the economic and environmental value of recycling lies primarily in the provision of lower-cost feedstocks that industry can use to make new products and the reduced need for extracting and processing virgin materials.12

Although progress has been made, all stages of the life cycle of materials are currently unsustainable. While improvements are needed in end-of-life management, starting as far upstream as possible—in resource extraction, design and production—offers the best opportunities to realize the vision of a sustainable society, economy and environment. As producers shift to more sustainable actions, consumers also have important roles to play—in the types of products they demand, how they use them, and how items are managed once they are discarded. Effective management at product end-of-life redirects resources back into productive use while helping to reduce the negative impacts of disposal.

The world is changing, and Oregon will be different in 2050. Materials management offers a holistic approach that will help DEQ shape state policies—and help Oregon thrive—in a world with new jobs, new opportunities and new challenges for government, businesses and the public.

The Business Case for Materials Management Rising commodity prices, increasing global population, pollution and the depletion of natural resources all pose significant threats to businesses and the historic model of economic growth. But with these challenges come new opportunities.

For example, representatives of adidas, Coca-Cola, General Motors, Nokia, Philips, Procter & Gamble, Sony, Weyerhaeuser and other businessesworking through the World Business Council for Sustainable Developmentrecently concluded that “current global consumption patterns are unsustainable.” These businesses recognize the importance of industry being more efficient and less polluting, and

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they go further, noting that “efficiency gains and technological advances alone will not be sufficient to bring global consumption to a sustainable level.” They observe that “changes will also be required to consumer lifestyles, including the ways in which consumers choose and use products and services.” They call for businesses to play a leadership role in fostering more sustainable levels of consumption, through practices such as innovation, communications, and working in partnerships with consumers, governments and stakeholders. These businesses call for governments to provide the right policies and regulations, fiscal structures and incentives, infrastructure and services, guidance for businesses and consumers, monitoring and enforcement.13

DEQ’s 2050 Vision calls for the responsible production and use of materials. In a world bumping up against limited resources and other constraints on growth, businesses that produce responsiblyand help consumers live responsiblywill enjoy the greatest viability and reap the highest rewards. The path forward is not fully mapped, but the 2050 Vision is clear. DEQ is committed to working with businessesboth producing in Oregon and selling into Oregonto achieve a prosperous and clean economy that allows all people to live fulfilling lives, now and in the future.

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The Vision Process To address the changing world of materials management, DEQ convened the 2050 Vision for Materials Management Workgroup in 2011. The broader approach focusing on the full life cycle of materials requires a breadth of knowledge and a variety of experience, skills and perspectives. DEQ invited a diverse group of stakeholders representing businesses, nongovernmental organizations, local governments, state agencies and individuals to participate in the visioning process. Workgroup members met for five facilitated day-long workshops between fall 2011 and spring 2012 to identify ways to make our design, production, use and management of products and materials more sustainable. Workgroup members were engaged and provided input on draft documents throughout the process. Appendix D lists workgroup members.

With the workgroup’s input, DEQ developed this long-term vision for sustainable materials management in Oregon. This 2050 Vision and Framework for Action – together with biennial reports to the Oregon Legislature - also serves as an update to Oregon’s State Integrated Resource and Solid Waste Management Plan (1995-2005), which guides statewide policy.

Developing a Vision

To develop the 2050 Vision, DEQ applied The Natural Step approach, which involves a science-based definition of sustainability and a strategic planning framework to help make choices that advance sustainability. A key element of the Natural Step framework involves “backcasting”—starting with a future vision and then looking back to identify the steps needed to achieve it. This framework provides the tools to look at the big picture, understand the rules of the game, define success, and move toward it together.

The scientifically rigorous Natural Step framework is prominent in strategic decision-making by organizations such as the U.S. Army, Nike, H.J. Heinz Company and Amazon.com. DEQ adopted the Natural Step approach in 2008 and identified it as a robust process for developing the 2050 Vision for materials management in Oregon.

DEQ worked with Cascadia Consulting Group and Sustainability Partners to facilitate workshops and integrate the Natural Step framework into this visioning and action-planning process.

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Considering Sustainability Principles

DEQ’s 2050 Vision and Framework for Action provides a platform to bring materials management in Oregon into closer alignment with sustainability principles. The 2050 Vision sits within the larger context of future economic, social and environmental systems. These three systems affect DEQ’s work, and DEQ’s policies and programs also influence these systems to some degree. During the workgroup process, DEQ identified systems and capabilities broadly needed to achieve the 2050 Vision. Appendix C summarizes that work.

In 2001, the Oregon Legislature adopted the Oregon Sustainability Act (ORS 184.423), which established the state’s overall sustainability policy. Among other efforts, the legislation created the Oregon Sustainability Board and set legislative goals for sustainability.

DEQ has an agency-wide sustainability vision: We live in a way that balances our actions with nature’s ability to maintain a healthy environment. The materials management 2050 Vision supports DEQ’s agency vision, through a specific focus on materials.

The 2050 Vision for sustainable materials manage-ment sits within the larger context of economic, social and environmental systems.

http://www.leg.state.or.us/ors/184.html

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Welcome to 2050 In the 2050 Vision, Oregonians live within the limits of their sustainable share of the world’s natural resources. Materials and products support human health, well-being and healthy, resilient environments and communities—whether those goods are made in Oregon, used in Oregon, or both. Sustainable use of resources allows all people to enjoy a prosperous, clean economy and fulfilling lives, now and in the future.

The materials life cycle begins early in the process before the consumer (Upstream, Design and Production), with designers and manufacturers making products and using materials in a sustainable way. In 2050, every product is made to be a sustainable option.

Materials are fully sustainable, because people use them in a sustainable manner and sustainable consumption is easy. The Consumption and Use element addresses decisions related to the materials and products people acquire, how they obtain them, and how they use them.

Both producers and consumers continue to discard unwanted materials, so the End-of-Life Management element aims to direct these materials to their next highest and best use.

Desired Outcomes for 2050

Producers make products sustainably. Every option is a sustainable option.

People live well and consume sustainably.

Materials have the most useful life possible before and after discard.

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This process is iterative throughout the life cycle of materials—from upstream, through use, through recovery and end-of-life management, and back into production. Each element builds on success in the previous elements.

Achieving this vision means that Oregonians in 2050 will produce and consume much differently than today, and we will recover more materials in a smarter way. Together, we will manage materials wisely, while strengthening economies at the local, regional, national and global levels. We will have tackled our materials challenge together, and everyone will be part of the solution.

The next sections of this chapter provide more information on desired outcomes for materials management and where we are today. The following chapter, Framework for Action, outlines pathways forward from our current reality to the desired outcomes for 2050.

Oregon in 2050

We are wiser. Knowledge and innovation brought us here.

We are connected. Coordination and communication make the system work.

We invest resources wisely.

We share responsibility. Everyone has a part.

We are accountable. We set goals, measure success and learn from experience.

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Upstream, Design and Production in 2050

Producers make products sustainably—from design and production through packaging, intended use and end-of-use management. Design minimizes environmental impacts across the product’s life cycle and materials are selected based on their highest and best use. Cradle-to-cradle or closed-loop design, which addresses full life cycle impacts, is common practice. Products are designed to be durable, repairable, disassembled, or recycled, and single-use products are obsolete or used only as absolutely necessary. In 2050, green building is the norm.

Materials are not used at a rate faster than can be renewed or recovered, and dematerialization has reduced the impacts of products and services. Risks of chemicals are fully assessed before they are used. Products and production do not use toxic chemicals or, when necessary, toxics are minimized and then recaptured for their highest and best use. Packaging is limited to what is necessary, and environmental impacts of packaging are minimized.

During use and after discard, materials leach little or no toxins and emit few greenhouse gases.

Research and innovation fuel unprecedented technological advances and economic vitality in Oregon. Our state is a leader and a national center for green businesses and jobs. Oregon makes and exports sustainable products, goods and services—creating sustainable jobs here at home. Businesses use unwanted materials from other businesses as inputs for new products. Our educational system supports and drives this success: Oregon universities are vital in supporting the green economy through pioneering research and technology transfer. Our universities are recognized leaders in green chemistry and technology, and the private sector values the critical role of research institutions in supporting innovation.

Coordination throughout the life cycle of products leads to innovative solutions. Producers, retailers and government work together to support sustainable product choices. Innovation exchange and cross-sector cooperation between producers and suppliers expand opportunities for sharing resources and ideas.

Producers make products sustainably.

Every option is a sustainable option.

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Complete and transparent information on product contents and life cycle impacts is readily available. Producers know the impacts of their products and processes both upstream and downstream in the supply chain. Information on impacts of products and processes is accurate, transparent, and readily shared throughout the supply chain. Information disclosure and accounting standards make it easy to compare impacts across products.

Responsibility is shared for full life cycle impacts. Those involved with a product across its life cycle share responsibility for all impacts. Prices reflect environmental and social costs, and incentives and regulations support sustainable producers and products. Oregon businesses and our global competitors share a level playing field.

Upstream, Design and Production Today About 40 percent of domestic greenhouse gas emissions result from producing and transporting materials and products.

Reuse and repair of products is often difficult and discouraged. Planned obsolescence is part of the design for some products. Lack of infrastructure or financial incentives for repairing and recycling products discourages design for repair and recycling. Toxics and mixed materials in products and packaging can impede recycling and harm public health.

Products sold in Oregon are produced globally. Production standards, regulations and environmental impacts vary nationally and globally. Supply chains are complex and may cross numerous borders.

Prices do not reflect all environmental impacts, and full information is not available on environmental impacts.

Extraction of raw materials is often subsidized, and the public bears the “external” costs of environmental impacts.

Sustainability is not clearly understood or uniformly defined.

Environmental impacts are not commonly understood, especially by small and medium-sized businesses. Many “green” claims involve some form of “greenwashing.”14

‘‘Backcasting’’ starts with a future vision and looks back to the present to identify steps to achieve the vision.

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Complete information is not available on environmental impacts. Producers are not required to investigate and disclose impact data—such as toxic chemical use—to government, the supply chain or the public. While data are available for permitted and reported emissions, information on impacts of product use is lacking.

Relevant knowledge resides in the private sector, academia and in Europe.

Government lacks some tools to identify, prioritize and take action to reduce the health and environmental effects of toxic chemicals, and product stewardship is limited. Many environmental policies were written 20 to 30 years ago. Regulations mainly address production processes rather than products. Investment in green chemistry research, development and education is limited.

Some market leaders are innovating to reduce impacts during production. Design and innovation tools are becoming more common. Product design involves tradeoffs in life cycle impacts such as toxicity, greenhouse gas emissions and water use. Green building has growing support in the commercial and public sectors.

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Consumption and Use in 2050

All Oregonians live well in communities where materials are used sustainably. Oregonians of all backgrounds and experiences enjoy high-quality lives, including rich social and community relations, without requiring high levels of acquisition of material goods.

Oregonians see themselves first as community members, rather than mainly as consumers. Social norms, infrastructure and communities— neighborhoods, regions, families, friends and social groups—make low-impact consumption easy and rewarding. Collaboration, sharing, repair and reuse are all normal, and sustainable consumption is a social norm that is easy to live by.

Oregonians actively seek to live “within the limits of our sustainable share of the world’s natural resources” and engage other community members, including producers, to do the same. Oregonians are meeting their needs, and quality of life is high, with a minimal environmental footprint. All choices are good choices;

highly unsustainable products are no longer sold. Public agencies lead by example and build capacity through model practices for sustainable procurement and use of materials.

Sustainable product and material choices are desired and readily available. Sustainable products, materials and services— including renting, sharing, collaboration, reuse and repair—are easily accessible and affordable. Products sold in Oregon are sustainable choices, regardless of where they are made. Environmentally superior products perform as well as or better than their higher-impact alternatives. Public, private and nongovernmental systems support access to sustainable choices. Full life cycle costs are internalized into prices, so lower cost is yet another benefit of greener products.

Complete product and environmental information is accurate and readily available. Accurate information on the environmental impacts of products is available to consumers in a meaningful way.

Oregonians share a common understanding of sustainable consumption, including the “limits of our sustainable share of the world’s natural resources” and whether we are living within them—both individually and collectively.

People live well and consume sustainably.

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Consumption and Use Today

Many factors influence consumption today. People make consumption choices to fill physical, emotional and recreational needs and to signal their social status. Reduced durability, reduced product quality and planned obsolescence drive increases in consumption.

Cultural norms involving reuse, repurposing, repair, renting, sharing and buying are also influential. Subsidies encourage some consumption, and product prices do not reflect their full costs, including environmental impacts.

Increases in work hours tend to result in increased consumption, while work decreases lead to lower consumption. The United States has a long-term trend of increasing house sizes with fewer people per home.

Regulation of advertising, including marketing to children, is limited.

Research suggests that Oregon’s population in general may be less materialistic and more egalitarian than the United States as a whole.

A sustainable level of consumption and how to achieve it are typically not well-understood by policymakers, business leaders or the general public. Demand for sustainable product choices is moderate, but options are not always equitably available or affordable. Above a threshold, more consumption (of “wants”) does not lead to commensurate increases in well-being for households with higher incomes, on average.

Information on environmental impacts is rarely accessible, easy-to-use or trusted. Consumers are confused about product impacts, and greenwashing – misleading claims about a product’s environmental benefits -- makes it more difficult to discern accurate product information.

Some impacts of consumption, such as greenhouse gas emissions, are fairly well-understood, while others are not.

Oregonians’ consumption-related greenhouse gas emissions in 2005 were three times larger (21.5 metric tons of carbon dioxide equivalent, CO2e, per person) than the unsustainable global average of 7.1 metric tons of CO2e per person. Other environmental impacts of Oregon’s consumption, such as toxics, are not well-quantified.

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Many Oregonians believe that overconsumption undermines the well-being of families and children, and threatens the environment and both personal and national financial security. A majority of Oregonians (72 to 82 percent) agree that “our country would be better off if we all consumed less.” More than 60 percent of Oregonians agree that “consuming less” would make people more self-reliant, provide more time to spend with family and friends, be better for the environment, and be “painful in the short term but better for us long term.”15 Some consumers, particularly households with lower incomes and education, indicate that they want information on how to consume more sustainably but lack access to such information. In the private sector, larger businesses are increasingly discussing “sustainable consumption.”

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End-of-Life Management in 2050

Materials have a useful life after discard. The large majority of products, materials, food scraps and yard trimmings are captured for reuse, recycling or reprocessing. High-quality recovered materials are available to be made into useful products. Few materials are disposed of in landfills or incinerated.

Stable infrastructure and markets support highest and best use of discarded materials. Well-developed markets for recovered materials contribute to Oregon’s economic success. Systems for recovering materials and managing discards, including for the few toxic products remaining in commerce, are available and cost-effective.

These systems are convenient for consumers and businesses throughout the state. Effective sorting systems add value to recovered materials, and new technologies use materials and energy that had previously been discarded. High-quality feedstocks help keep regional mills viable and competitive. A strong, networked industry for reuse and repair exists. Many reuse, repurpose and recovery jobs add to a prosperous economy, and these businesses are stable.

Oregonians are engaged in making better materials choices for end-of-life management of materials. Residents understand that materials have value after discard. Oregon’s social norm is to conserve, reuse, repair and recover.

Health and environmental risks from disposed wastes are minimized. Legacy waste and landfills, including stockpiled wastes, are managed safely.

Public policies support sustainable materials management at product end-of-life. All prices including recovery and disposal prices reflect full costs and support directing recovered material to its highest and best use. Producers share responsibility with governments and the public for managing materials after discard. Government sets and enforces standards and evaluates results of key recovery and discard management programs. Local governments have a role in designing programs to best serve their populations.

Materials have the most useful life possible after discard.

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End-of-Life Management Today

The economic recession beginning in 2008 resulted in decreased waste, recycling and consumption. The mixture of discarded content is changing over time, such as recent drops in newsprint and magazines.

Of discarded materials, 48 percent are recovered for other uses. Recovery rates vary broadly across materials. Paper, metal and glass all have recycling rates above 65 percent. About 15 percent of plastics are recycled, and food, carpet and textiles have recovery rates below 10 percent.

Infrastructure and markets for discard management and recovery of materials vary by material and location. Local governments have established infrastructure to collect discards and recyclables. Recycling is often available at home but not readily available outside the home. Curbside recycling is mainly available in urban areas and cities with more than 4,000 residents. Multifamily and commercial recycling collection is optional in certain cities. Options are limited for food scraps collection, composting and distribution of leftover edible food. Long-term landfill capacity is ample statewide.

Export markets play a significant role, particularly for plastics, metals and mixed paper. Paper has strong but threatened local markets. Metals, glass and compost have moderate local markets, while plastics and carpet have limited local markets.

Recycling services in urban areas have better access to markets than rural areas. Concerns about contamination of recyclables and finished compost are growing.

Disposal and recovery prices do not reflect indirect and opportunity costs. Funding for DEQ and some local government programs comes from disposal fees, which change with quantities disposed.

Discard management systems continue to develop. Solid waste collection operates under an established franchise system in most of the state. Some reuse businesses and nonprofit organizations exist.

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Oregonians have a strong recycling ethic, but confusion exists over waste prevention, recycling, biodegradability and composting. State and local governments and collectors help inform and engage residents. Oregonians have growing interests in energy recovery technology.

Existing policies and regulations set priorities, provide residents with recycling opportunities, and set a precedent for product stewardship of difficult-to-manage or harmful materials. A statutory solid waste hierarchy sets clear priorities. Local governments are required to provide residents the opportunity to recycle. Landfill bans are in place for selected materials. Oregon’s bottle bill, electronics, and paint laws set a precedent for product stewardship. Mandatory business recycling in the Portland metro area is required but poorly enforced. Recycling is not mandatory outside the metro area, except that certain materials are banned from landfills. Generally, the regulatory structure is focused on managing wastes at end-of-life. DEQ measures tons recovered and disposed, and state waste generation and recovery goals are based on waste tonnages. State law sets recovery percentage goals that wastesheds (counties) were required to meet as of 2009 and also set a statewide recovery goal for 2009.

State law also sets a statewide goal that the annual tons of solid waste generated in Oregon shall not increase beginning in 2009.

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Oregonians in 2050 produce and use materials responsibly conserving resources • protecting the environment • living well

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Framework for Action Taking action upstream—in design and production—offers the best opportunities to realize the 2050 Vision. While producers shift to more sustainable actions, consumers also have important roles to play in the types of products they demand, how they use them, and how items are managed once they are no longer wanted. Effective management at end-of-life then redirects resources back into productive use, while helping to reduce the negative impacts of disposal.

To help achieve the 2050 Vision in Oregon, DEQ must take several different types of actions. The Framework for Action includes pathways to lead Oregon to the desired outcomes for 2050. These pathways include:

Within the pathways, this document lists potential actions for DEQ and others to pursue and leaves room to develop new actions over time.

The framework is intended to serve as a flexible platform for action to guide progress toward the 2050 Vision; it is not designed as an implementation plan for specific actions. The framework is structured to allow adaptability in implementation and detailed action planning as it steers overall efforts in the direction of the vision and desired outcomes for 2050.

Materials management:

Identifies impacts throughout the life cycle

Focuses on high-impact actions across the life

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Implementing the Framework for Action The Framework for Action lists about 50 actions without prioritization.

DEQ will begin prioritizing actions by the end of 2012. It will consider factors such as the staging and relative timing of actions that build sequentially on each other, internal resource availability, opportunities to partner with other organizations and efforts, and other factors such as initiatives by key stakeholders that might facilitate certain actions.

DEQ will begin work on the highest priorities within the next five years as resources allow. Implementation of other actions will follow. The framework includes both foundational work needed to achieve the 2050 Vision as well as work specific to different stages of material life cycle.

The framework will serve as a flexible platform to guide progress toward the 2050 Vision; it is not designed as an implementation plan.

For specific items in the framework, DEQ will scope projects, work with stakeholders as appropriate, and develop project plans. The actions are focused on areas of DEQ’s potential influence and control.

Implementation will include continuing opportunities for stakeholder involvement, and actions may be conducted by both DEQ and others.

Figure 4. Spheres of Control, Influence and Concern

DEQ will reevaluate the entire Framework for Action every six years to foster continuous improvement and adaptive management, to ensure it effectively guides actions found in the 2050 Vision. DEQ will update

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actions and may identify new actions over time, following the guiding principles listed below.

DEQ’s Guiding Principles for Materials Management

When prioritizing, planning and implementing actions, DEQ will consider the following guiding principles:

Develop and implement policies and programs based on robust research.

Lead when appropriate.

Coordinate and collaborate with partners.

Ensure that actions complement one another.

Build on what’s already working, such as using existing infrastructure when possible.

Focus on high-impact materials and processes.

Be flexible and adaptable.

Continuously use the Framework for Action and update as necessary.

Consider environmental and other impacts of policy options, including:

• Social equity

• Quality of life

• Economic viability

• Potential unintended consequences

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Foundations (F)

This pathway builds the solid foundation necessary to achieve the 2050 Vision. Foundational work includes setting goals and measuring outcomes for the broader effort as well as specific projects, supporting and performing research to inform work in all four pathways, building the work into DEQ operations, and securing stable funding.

Foundational work, especially research, can act as a catalyst for new processes and initiatives, and supports the shift from managing discards to managing materials. As with other pathways, DEQ will perform much of this work in concert with its partners.

F1. Establish goals and measure outcomes

a. Establish new goals for sustainable materials management and update existing goals.

b. Establish and track appropriate sustainability measures in coordination with the Oregon Sustainability Board and other relevant entities.

F2. Identify and secure sustainable funding for materials management programs

a. Identify and evaluate potential funding models and convene stakeholders to collaborate and develop funding strategy.

b. Secure funding for DEQ and other programs, such as state entities charged with fulfilling the materials-related sustainability goals under the Oregon Sustainability Act.

Icons indicate which life cycle stage action addresses.

Full life cycle

Upstream, Design & Production

Consumption and Use

End-of-Life Management

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F3. Support and perform foundational research

a. Identify high-impact materials and processes, and disseminate information on easy-to-use life cycle metrics for high-impact product categories as well as lower-impact alternatives.

b. Perform research to identify highest and best use at end-of-life for discards with high environmental impacts (e.g., food, metals, paper, plastics, carpet and wood), and conduct analysis to determine barriers, program and policy options, and steps needed to increase and improve recovery. Research collection methods and better ways to separate and preserve the value of collected material.

c. Conduct a study of regional standards and opportunities for carbon and environmental footprinting.

d. Research and evaluate definitions and criteria for addressing sustainable consumption for Oregon.

e. Study relationships between materials management and social value of reuse, borrowing and renting; employment and community impacts of materials management; and understanding the values, preferences and motivations that support and promote community-scale sustainable consumption.

f. Research material subsidies to identify opportunities to reduce environmental impacts.

g. Identify and evaluate barriers to designing infrastructure and products for repair, reuse and lifespan extension in Oregon.

Identify and evaluate options to determine when product reuse is appropriate based on environmental impacts.

h. Perform research on product and disposal prices to determine environmental and other potential costs not reflected in prices;

develop tools, methods and standards for determining full costs; study feasibility of incorporating environmental costs into prices (e.g., carbon tax) as a tool to encourage product design changes or discourage products with higher impacts.

i. Conduct periodic updates to consumption-based greenhouse gas emissions inventory and evaluate inclusion of additional (non-climate) environmental impacts.

Icons indicate which life cycle stage action addresses.

Full life cycle

Upstream, Design & Production

Consumption and Use

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j. Evaluate value of local production, and identify products for which local production benefits the environment.

F4. Build 2050 Vision and Framework for Action into DEQ’s operations

a. Organize DEQ’s programs to effectively implement this Framework for Action. Evaluate current solid waste program work, including permitting, and realign staff priorities to be consistent with the 2050 Vision. Align resources with risks for permitting, inspections and oversight.

b. Review and update 2050 Vision and Framework for Action every 6 years.

c. Adopt a DEQ policy to include environmental costs in internal department decisions.

d. Support implementation of DEQ’s Toxics Reduction Strategy, which includes a list of priority toxic chemicals and actions to reduce and assess toxics in Oregon.

Icons indicate which life cycle stage action addresses.

Full life cycle

Upstream, Design & Production

Consumption and Use

End-of-Life Management http://www.deq.state.org.us/toxics/index.htm#Reduction http://www.deq.state.org.us/toxics/index.htm#Reduction

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Policies and Regulations (P)

DEQ will develop, evaluate, implement and measure effectiveness of policies and regulations that move Oregon on the path toward achieving the 2050 Vision.

P1. Evaluate and adopt incentives to help Oregonians produce and consume more sustainably

a. Support policies that offer incentives for developing sustainable manufacturing techniques and goods, including green chemistry, in Oregon.

b. Evaluate potential changes to tax…