City Council - City Services & Innovation Technology Committee Hearing on Docket #1748

Meeting Date: November 20, 2025, at 10:00 AM Governing Body: Boston City Council - City Services & Innovation Technology Committee Type of Meeting: Public Hearing Attendees:

Councilor Enrique Pepén (Chair)
Councilor Sharon Durkan
Councilor Edward Flynn
Dennis Roach, Superintendent of Waste Reduction, Boston Public Works
Madeline Montgomery, Zero Waste Program Manager, Boston Public Works
Camille Alves, Zero Waste Coordinator, Boston Public Works
Alex (Dorchester Resident, Public Testimony)

Executive Summary: The City Services & Innovation Technology Committee convened a hearing to discuss Docket #1748, an order for a hearing to discuss city services regarding composting and the need for increased composting services. The hearing highlighted the success and popularity of Boston's Project Oscar and Curbside Composting programs, noting their positive impact on waste reduction and rodent control. Key discussions revolved around the current budget limitations, the growing waitlist for curbside composting, the high cost per ton of food waste processed, and the lack of local processing infrastructure. The committee explored strategies for expanding access, including potential partnerships with the state and neighboring jurisdictions, and the importance of educating residents and Boston Public Schools students about composting.

Docket #1748: Order for a hearing to discuss city services in regard to composting and the need for increased composting services.

Sponsors: Councilor Sharon Durkan, Councilor Enrique Pepén, Council President Ruthzee Louijeune.
Referral Date to Committee: October 1, 2025.
Purpose: To discuss the current state of composting services in Boston and explore avenues for expansion and improvement.

Opening Statements

Councilor Enrique Pepén (Chair):
- Noted the positive impact of composting in his district, particularly the reduction in rodent sightings due to Project Oscar and green bins.
- Expressed interest in extending composting to business corridors (Roslindale Square, Cleary Square, Mattapan Square) and schools to manage food waste.
- Mentioned learning from New York City's composting initiatives.
Councilor Sharon Durkan:
- Highlighted the popularity and success of Project Oscar (20 drop-off sites) and Curbside Composting (expanded to 30,000 households).
- Stated that food waste contributes to 58% of global methane emissions and that composting helps meet waste reduction goals and promotes a "cleaner, more sustainable, and more rodent resistant Boston."
- Expressed concern that the city has paused program expansion due to high costs and a lack of regional infrastructure and processing capacity.
- Noted over 400 residents are on the waitlist for curbside composting.
- Emphasized the need for proactive planning and investment in composting infrastructure, especially given potential state-level commercial food waste bans and residential requirements.
- Identified opportunities in residential buildings with more than six units and commercial buildings.
- Acknowledged the Mayor's administration's efforts in this area.
Dennis Roach (Superintendent of Waste Reduction, Boston Public Works):
- Stated that food waste constitutes 24% of municipal solid waste in U.S. landfills, according to EPA estimates.
- Provided a brief history: Project Oscar began as a pilot in 2014 and was later transferred to his department; Curbside Composting launched in 2022 with 10,000 residents and has since expanded to nearly 30,000.
- Confirmed a current waitlist for the curbside program due to budget restrictions.
- Highlighted challenges: high program costs and limited processing capacity, with most composting facilities located 30-40 miles outside the city.
- Suggested that more local composting facilities would benefit Boston.
Madeline Montgomery (Zero Waste Program Manager, Boston Public Works):
- Expressed enthusiasm for continuing the conversation on composting.

Public Testimony

Alex (Dorchester Resident):
- Shared experience working on compost rollout in Queens, New York City, and identified issues Boston is replicating.
- Stated that he has diverted over 500 pounds of food waste from his workplace (a hummus shop) using a city lot in Dorchester.
- Observed significant compost and recycling waste at the Boston Public Market.
- Argued that individual bins for each home are inefficient for compost collection.
- Proposed ideas:
  1. Identify high-traffic community spaces (gardens, libraries, schools) for centralized drop-off, offering vouchers for produce in exchange for food waste.
  2. Create compost plants within the city to generate jobs and value for residents.
  3. Suggested his "Boston Summer Games" idea (currently in participatory budgeting) could incorporate compost initiatives.
- Advocated for incentivizing the food industry to donate food (e.g., tax credits for opt-in donation programs) and penalizing waste.
- Proposed a collective industrial compost contract sending compost to local farms in exchange for reduced produce prices for city buyers.

Council Questions

Councilor Sharon Durkan:
- Participation Data:
  - Current Enrollment: 27,547 households in curbside composting.
  - Waitlist: 638 people.
  - Reason for Waitlist: Budget restrictions; hope to address in the next budget cycle.
- Program Costs:
  - Curbside Composting Operating Budget: $3.3 million.
  - Project Oscar Operating Budget: $135,000 for 20 locations.
  - Cost per Ton (Collection & Disposal): Approximately $1,000 per ton.
  - Cost Reduction Strategy: Increased resident participation and full utilization of bins would drive down costs.
- Program Impact:
  - Programs are "incredibly successful" in diverting waste from landfills and reducing rodent populations.
  - Boston is proactively addressing future MassDEP waste bans (e.g., residential food waste ban expected around 2030).
- Future Funding:
  - More resources are needed to scale up programs, educate residents, and eliminate waitlists.
  - Budget ask will aim to grow the program organically.
  - Suggested state partnership to build food waste capacity near Boston.
  - Mentioned $4 million in ARPA funds previously slated for a composting facility that was not utilized due to land availability issues.
  - Data Inquiry: Councilor Durkan requested information on city-owned land where housing is a forbidden use, as potential sites for composting facilities.
- Effective/Efficient Expansion:
  - Both curbside and Project Oscar are effective.
  - Cost efficiency could improve with greater utilization of curbside bins.
  - Suggested "neighborly stuff" for residents in multi-unit buildings to share partially filled bins.
- Expanding Access (without new facility):
  - Current approach is to "grow the curbside program organically" and avoid waitlists.
  - Estimated full capacity for Boston composting is 75,000-100,000 residents.
- Maximum Units for Curbside Program:
  - Currently limited to buildings with six units or fewer.
  - Expanding to larger buildings is challenging for municipalities due to service complexities (similar to trash/recycling).
  - Most other cities privatize waste services for large buildings.
  - Project Oscar is an alternative for residents in larger buildings.
Councilor Enrique Pepén:
- Composting for Businesses:
  - City programs currently do not serve commercial entities.
  - MassDEP has a commercial food waste ban for businesses generating over half a ton per week, with thresholds expected to decrease.
  - The city follows MassDEP regulations.
- Program Contractors:
  - Curbside composting is contracted to Garbage to Garden.
  - Project Oscar is contracted to Black Earth.
- Compost Processing:
  - Curbside: Food waste goes to either:
    1. CORE facility in Charlestown for anaerobic digestion, then to Greater Lawrence Sanitary District for clean energy production.
    2. Brick Ends Farm in South Hamilton, MA, for compost production.
  - Project Oscar: Food scraps go to Black Earth's composting site in Manchester-by-the-Sea, MA.
- Budget for Expansion:
  - An additional $500,000 would allow the curbside program to eliminate the current waitlist and continue organic growth.
  - The city has invested in a Zero Waste team for outreach and education.
- Boston Public Schools (BPS) Partnership:
  - BPW works with BPS sustainability team, providing classroom presentations upon request.
  - Over 40 schools have "back-of-house" composting (kitchens).
  - A handful of schools have "front-of-house" composting (students separate food waste).
  - BPS sustainability team could use more education and resources to expand.
  - MassDEP's new waste plan aims to ban food waste in schools within 2-3 years, which will lead to BPS budgetary asks.
  - Councilor Pepén requested a list of the 40 schools with composting.
- Black Earth Compost Partnership:
  - Black Earth is the current Project Oscar provider and owns a facility in Manchester-by-the-Sea (received USDA grant for expansion).
  - They have expressed interest in expanding capacity with the city.
  - Suggested a regional partnership (e.g., Boston, Cambridge) to build a joint composting facility due to land scarcity in Boston.
Councilor Sharon Durkan (Follow-up):
- Emphasized the "big opportunity" in the commercial sector for sustainability.
- Questioned the city's approach to food diversion and preventing good food from going to waste, referencing former Councilor Arroyo's work and the Office of Food Recovery.
- Stressed that commercial waste has a larger environmental impact than individual residential waste.
- Noted that MassDEP's ban on commercial food waste will likely expand to smaller businesses, requiring them to file food waste plans.
- Expressed gratitude for the administration's work and offered council support during the budget process.
Councilor Enrique Pepén (Follow-up):
- Asked about a personal experience where a Dunkin' Donuts refused to donate leftover donuts, questioning if there are laws or liability issues preventing businesses from donating food.
- Dennis Roach stated he was "not aware of anything" prohibiting donations and that it might be a business policy or liability concern.

Closing Statements

Councilor Enrique Pepén: Thanked Councilor Durkan, Maddie Montgomery, and Dennis Roach for their work and partnership. Noted Councilor Gabriela Coletta Zapata's absence.
Councilor Edward Flynn: Apologized for lateness due to a meeting with the school superintendent. Thanked the chair, sponsor, and administration team, and stated he would review the meeting video. Acknowledged his district could benefit from more composting.

The hearing on Docket #1748 was adjourned.

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