City Council - City Services and Innovation Technology Committee Hearing on Docket #1448

Meeting Date: October 2, 2025 Governing Body: Boston City Council - City Services and Innovation Technology Committee Type of Meeting: Hearing Attendees:

• Councilors: Enrique Pepén (Chair), Sharon Durkan, Aaron Murphy, Edward Flynn, Ruthzee Louijeune
• City Officials: Luke Hines (Special Project Manager, Operations Cabinet), John Ulrich (Assistant Commissioner of Environmental Services, ISD, Chair of Boston Rodent Action Plan), Dennis Roach (Superintendent for Waste Reduction, Boston Public Works)
• Public: Paul O'Connor, Heidi Nichols Baldacci, Allie Foley (Block Captain Program, Back Bay)

Executive Summary

The City Council's City Services and Innovation Technology Committee convened a hearing on Docket #1448 to explore same-day put-out and pickup for non-containerized residential waste and containerization for commercial trash. The discussion highlighted the city's significant rodent crisis, largely attributed to improper trash disposal, particularly non-containerized waste. Key proposals included shifting to same-day residential trash put-out, mandating commercial trash containerization, and increasing enforcement and public education. Challenges such as current trash contract limitations, the high cost of alternative collection models, and the transient nature of Boston's population were discussed. The committee emphasized the need for innovative solutions, increased investment in waste management, and community consensus to improve public health and cleanliness.

I. Call to Order and Introductions

• Chair Enrique Pepén called the hearing to order at 10:07 a.m.
• The hearing is being recorded and live-streamed.
• Written comments can be sent to ccc.csit@boston.gov.
• Public testimony will be taken at the end of the hearing, with a two-minute limit per speaker.
• Docket #1448: Order for a hearing to explore same-day put-out and pickup for non-containerized residential waste and containerization for commercial trash.
  • Sponsors: Councilor Sharon Durkan, Councilor Gabriela Coletta Zapata, Council President Ruthzee Louijeune.
  • Referral Date: August 6, 2025.
• Councilors Present: Aaron Murphy, Edward Flynn, Sharon Durkan, Ruthzee Louijeune.

II. Opening Remarks by Councilors

A. Councilor Sharon Durkan (Sponsor)

• Emphasized the daily impact of trash management on Boston residents.
• Noted the prevalence of plastic bags for trash in dense neighborhoods (Back Bay, Beacon Hill, Fenway, District 8).
• Highlighted issues with bags being set out before 5 p.m. and remaining on sidewalks for over 24 hours, leading to rodent activity and litter.
• Identified commercial districts (Cosway Street, Boylston Street, Newbury Street, Cambridge Street) as having similar problems with large volumes of business trash.
• Proposal:
  • Move all non-containerized residential trash to same-day put-out and pickup.
  • Require commercial trash, especially food waste, to be secured in containers.
• Stated that the city's Rodent Action Plan identifies leaving bags overnight as a major driver of infestations.
• Acknowledged that state law prohibits non-containerized trash but is not enforced due to lack of space for bins in many neighborhoods.
• Expressed the ultimate goal of containerization, but recognized the need for immediate impact changes.
• Suggested working with trash companies to adjust put-out times (e.g., later than 6 a.m. for residents).
• Proposed the city work with local businesses to require the sale of thicker trash bags and launch a public awareness campaign.
• Mentioned collaboration with Beacon Hill Civic Association and Neighborhood Association of the Back Bay.

B. Councilor Aaron Murphy

• Shared observations of thin kitchen trash bags being put out at 5 p.m. and remaining uncollected for extended periods, leading to public health issues.
• Stressed the importance of human behavior in trash management, noting that one non-compliant neighbor can create a problem for an entire street.
• Acknowledged the high cost of trash pickup and the need for investment if changes (e.g., more pickup days, different contract times) are implemented.

C. Councilor Edward Flynn

• Identified a "large rodent crisis" in Boston, with trash exposure as the "single greatest issue."
• Noted an increase in resident calls and neighborhood walkthroughs in District 2.
• Cited a Tufts University study from April indicating rats in Boston are spreading a potentially deadly disease.
• Recalled filing multiple dockets (0262, 67, 82, 0369) since 2020 for hearings on pest control and an ordinance to create an Office of Pest Control.
• Advocated for a centralized Office of Pest Control to streamline services, develop integrated pest management plans, roll out trash containerization, and conduct resident outreach.
• Referenced New York City's progress with improved inspection response times and decreased complaints through initiatives like trash containerization.
• Stated that the 2024 Boston Rodent Action Plan "falls short" and called for mandatory and enforced containerization.
• Emphasized the need for a "massive public awareness campaign" for residents and businesses, including language access for immigrant neighbors.
• Described troubling trash disposal and rat activity in Chinatown.

D. Council President Ruthzee Louijeune

• Thanked Councilor Durkan for filing the docket and the administration for their work.
• Emphasized addressing trash issues to improve residents' quality of life.
• Mentioned the contractual nature of same-day trash pickup.
• Referenced discussions with Beacon Hill Civic Association about mint-laced trash bags (to deter rodents) and the rollout of rodent-resistant trash cans (funded by the Council).
• Suggested exploring trash management within the Article 80 process.

III. Panelist Presentation

• Panelists:
  • Luke Hines, Special Project Manager, Operations Cabinet
  • John Ulrich, Assistant Commissioner of Environmental Services, ISD, Chair of Boston Rodent Action Plan
  • Dennis Roach, Superintendent for Waste Reduction, Boston Public Works

A. Boston Rodent Action Plan (BRAP) Overview (John Ulrich)

• Mayor Wu launched BRAP last year to measurably reduce rodent activity.
• BRAP is a coordinated citywide effort using new technology (saw traps in North End/Back Bay, rodent-resistant barrels in streets/parks), exploring compactors, deploying sensors, and expanding resident education.
• Aims for proactive solutions.
• Subcommittees:
  • Rodent Mitigation Pilot and Data: Analyzing results of new technologies.
  • Trash Collection and Policy Improvements: Working with Harvard Kennedy School for recommendations on future trash contracts; community engagement.
  • Communication and Awareness Campaign: Educating residents on BRAP initiatives and rodent reduction methods (MBTA, trash barrels).
  • External Stakeholder Collaboration: Partnering with state agencies, universities, utility companies.

B. Current Trash Operations and Challenges (Dennis Roach)

• Role: Oversees on-street trash operations (Capital Waste trucks), code enforcement for trash regulations (residential/commercial), and zero waste initiatives.
• Commercial Trash: Public Works' role is primarily code enforcement; commercial trash is separate from residential.
• Boston's "Perfect Storm" for Rats:
  • Old infrastructure, limited underground space.
  • Basements converted to housing, reducing trash storage.
  • Lack of indoor storage leads to outdoor trash, containerized or not.
  • Historic infrastructure and sewer systems.
  • Trash handling hasn't evolved.
• Current Collection Operations (Capital Waste):
  • Starts at 6 a.m., aims to finish by 4 p.m.
  • Designed for fiscal and operational efficiency: trucks service one neighborhood, dump, then service a second neighborhood.
  • Causes trash to be left on streets longer in some areas.
  • Shift from 7 a.m. to 6 a.m. start (approx. 5 years ago):
    • Aimed to improve efficiency by avoiding traffic.
    • Caused issues for downtown residents who now put trash out overnight.
• Solutions for Downtown Districts:
  • "One Load Model": More trucks, more resources, servicing neighborhoods all at once.
  • Requires changing trash contracts, pushing back pickup times.
  • Will be more costly.
• Primary Goal of BRAP (regarding trash): Keeping non-containerized trash off the street for less time.
• New York City Model: Mandatory ground containerization; bags allowed out at specific times.
• Containerization Models:
  • Current trucks (top-left) are rail-loading; arm trucks are not feasible in many dense areas due to parking.
  • Boston is a labor-intensive trash market.
  • Food waste containers, BHA pilot with gray containers.
  • State Law: Containerization is state law, but Boston has not enforced it citywide due to collection difficulties in dense areas (e.g., Beacon Hill, North End).
  • Proposed Change: Enforce containerization where feasible; find options for areas where it's not.
  • Consultant: Working with a consultant to explore options for urban neighborhoods for future contracts (current contracts run through June 30, 2027).
  • Cost: New models will be more costly.
• Community Containers (Underground/Bins):
  • Underground tanks not feasible in Boston due to utilities.
  • Community bins cause issues: flooded with commercial trash, trash from outside jurisdictions, untested models with no proven success.
• Containerization Implications:
  • Equity Issue: Who pays for bins? (City provides recycling bins, costly program).
  • Unintended Consequences: Waste limits (Boston has full-service model, takes anything not banned by MassDEP).
  • Charging Fees: Other cities charge per bin (e.g., Toronto charges annual fee by bin size to encourage waste reduction). Boston does not.
• Urban Neighborhoods & Parking:
  • Later start times impact traffic, school buses, tourism (e.g., North End aims to finish by 10 a.m.).
  • Mandating containerization or efficient collection might require giving up parking spaces (e.g., community bins replacing parking, or no parking on trash day).
• Enforcement: Code enforcement team (17 people) is small but crucial.

C. Community Engagement and Research (Luke Hines)

• Feedback and Research:
  • Two focus group sessions with constituents.
  • Broader community meetings (e.g., early August listening session, comment report).
  • Next public meeting: October 16.
  • Themes: improving pickup times, getting bags off streets, educating residents.
• Harvard Kennedy School Research:
  • Independent research proposal, talking to community about trade-offs (e.g., paying for containerization, loss of parking).
  • Report expected at end of semester.
• Next Steps:
  • Hosting Harvard students, site visits (e.g., District 2/Chinatown next week).
  • Upcoming community meetings.
  • Report from Harvard students.
• BHA Progress:
  • Extra Sense rodent detection cameras at Ruth Barkley.
  • New containerization at Commonwealth location (Brighton/Allston) – RFP process closed, evaluation underway. Aims to show impact on rodent activity.

IV. Councilor Questions and Discussion

A. Councilor Sharon Durkan (First Round)

• Question: How confident is the city in shifting policy in the next contract for same-day put-out, given ballooning costs? Has the city considered breaking contracts into smaller pieces or taking over trash work?
  • Dennis Roach: Costs have ballooned ($15 million surge in collection contract last year). BRAP is driving efforts to keep trash off streets for less time and containerize where possible. Consultant is guiding options for next contract, including delaying pickup. Not sure if 8:30/9/10 a.m. start is fiscally/operationally feasible, but bids will provide cost options.
• Question: What political capital is the administration willing to use for sustainable, potentially unpopular changes (e.g., waste limits, charging per bin)?
  • Dennis Roach: Other cities' changes cost a lot upfront (e.g., NYC containerization study was $5 million). Boston needs to invest. The Director of Policy, Planning, and Waste position (approved 2 years ago) allows for exploring these issues.
• Question: Is recycling still profitable?
  • Dennis Roach: Less profitable. Trash disposal costs ~$110/ton; recycling costs ~$73/ton. While still cheaper than trash, the market has changed from paying the city to the city paying.
• Question: How would a same-day put-out policy change happen (ordinance vs. administration decision)?
  • Dennis Roach: Trash set-out is at the discretion of the Public Works Commissioner, following state sanitation code. It would require contracts to be in place and acceptance of associated costs.

B. Council President Ruthzee Louijeune (First Round)

• Question: Have collapsible waste bins been researched?
  • Dennis Roach: Piloted in South End ~4 years ago, not successful. Not rodent-proof, residents/trash collectors disliked them, didn't help with litter.
• Question: What is the "loss of parking" referring to?
  • Dennis Roach:
    • Some cities use community bins that replace parking spaces, but these become dumping grounds for commercial trash and outside residents. New York's pilot is not successful.
    • Alternatively, "no parking on trash day" (similar to street cleaning) could allow for more efficient collection and containerization where cars currently obstruct. This would be a neighborhood outreach issue.
• Question: Have mint-laced trash bags been considered?
  • Dennis Roach: Not successful; rodents are persistent. Thicker bags help, but rodents still chew through.
• Question: What are "thicker bags"?
  • Dennis Roach: Refers to 0.9 milliliter two-ply bags (e.g., "Hefty" green bags) as opposed to thin kitchen bags. City does not enforce this minimum standard.
• Question: Would an education campaign help promote thicker bags?
  • Dennis Roach: Yes, demand drives what supermarkets stock. Education could increase demand.

C. Councilor Edward Flynn (First Round)

• Question: Can I get information on the Chinatown site visit next week?
  • Luke Hines: Yes, will send information. Working with Helen Kwong from CPA for communication with residents.
• Question: How much does the city spend annually on trash, recycling, and composting?
  • Dennis Roach:
    • Trash collection contracts: ~$45 million annually.
    • Trash disposal: ~$30-40 million annually.
    • Curbside composting: ~$5 million annually.
    • Mattress collections: $3.5 million.
    • Total department budget: ~$100 million.
    • Recycling collection is lumped into the $45 million.
• Question: What is being done in Chinatown to support residents in dense neighborhoods with many restaurants?
  • Dennis Roach: Prioritizes early morning collection for residential trash in commercial zones like Chinatown. These areas are targets for next-level contracts to potentially delay put-out times but still prioritize collection.
• Question: What time is collection in Chinatown?
  • Dennis Roach: Trucks start at 6 a.m., but it flows through the neighborhood.
• Question: How to deal with trash spillage and cars obstructing collection?
  • Dennis Roach: Requires neighborhood outreach for "no parking on trash day." This would make collection more efficient and cleanup easier. Questions about this are being asked in resident surveys.
• Question: Will you continue to advocate for a standalone city department on pest control?
  • Councilor Flynn: Yes, believes it's critical enough for a cabinet-level position.

D. Councilor Sharon Durkan (Second Round)

• Question: Have different solutions for different neighborhoods been considered (e.g., Back Bay alleys for bin systems)?
  • Dennis Roach: Community bins in alleys become dumping grounds for commercial trash and outside residents, leading to overflowing and mess. Residents also push back on walking trash to central bins.
• Question: What would it take to containerize commercial trash?
  • Dennis Roach: State ordinance is already in place. Requires more code enforcement officers. Difficulty in distinguishing residential from commercial trash, and residents dumping on commercial containers.
• Question: Is there a way to ramp up enforcement for businesses on a "naughty list" with overflowing bins?
  • Dennis Roach: Current enforcement is reactive (311 cases) due to limited staff (17 officers for 3 shifts citywide). Proactive enforcement would require more resources.
• Question: What community engagement and consensus are needed for a same-day put-out policy?
  • Dennis Roach: Engaging residents now. There will never be full consensus, as some are passionate about cleanliness and others will oppose early morning put-out. The city will need to make a decision based on public health and cleanliness.
• Question: What incentives can be provided for renters, especially given the transient population and lack of consequences for unpaid tickets?
  • Dennis Roach: The Zero Waste team (funded 2 years ago) focuses on education (MBTA ads, flyers, digital ads). Mailings are expensive (e.g., yard waste calendar costs ~$100,000 annually).
• Councilor Durkan: Suggested targeted mailings to high-rental areas after September 1st.
• Councilor Durkan: Emphasized the issue of dog waste and bird feeding contributing to rodent problems.

E. Council President Ruthzee Louijeune (Second Round)

• Question: Has composting reduced rodent activity?
  • Dennis Roach: No specific data, but removing food waste from trash is effective in reducing food sources for rodents. Compost bins are rodent-resistant. However, only 25,000 residents compost, so impact on overall rodent population is limited.
• Question: What is recommended for residents in non-composting areas to separate food waste?
  • Dennis Roach: Freezing food scraps and putting them out on trash day to limit time on the sidewalk. Most people store the green outdoor compost bins inside until trash day.
• Question: How do trash collectors distinguish commercial from residential trash? Will they pick up commercial trash?
  • Dennis Roach: Collectors know routes and habits. Most commercial trash is in dumpsters or branded containers. City does not regulate commercial collection, but code enforcement addresses mess.
• Question: What is the threshold for city trash pickup?
  • Dennis Roach: City services any building that can bring trash to the curb, regardless of size (e.g., 500-unit building rolling 6 two-yard containers to the curb). This is unique; most cities treat buildings over 4 units as commercial and require private service.
• Question: Should the city adopt a model where it picks up all trash but charges for it?
  • Dennis Roach: Some cities use this model. It would require a large city team for oversight and billing, but could lead to cleaner streets.
• Question: What about problem properties like the T-Mobile store in Mattapan Square?
  • Dennis Roach: It's an illegal dumping zone. City has tried cameras, signs, and violations. Suggested a "Problem Properties trash task force" within ISD.
• Council President Louijeune: Clarified that white trash bags are sufficient if placed inside a container.

V. Public Testimony

A. Paul O'Connor (Back Bay)

• Issue: Rats chewing through car engines, costing $5,000 per event (3 times in last year = $15,000). Fuel pump damage also observed.
• Solution: Advocated for containerization as the only way to prevent rats from accessing food.
• Proposal: Willing to give up 3-4 parking spaces for permanent dumpsters.
• Other Culprit: People ripping bags for cans, making it easier for rats.
• Urgency: Stressed the "need for speed" in implementing solutions.

B. Allie Foley (Block Captain Program, Back Bay)

• Support: Thanked panelists and Councilor Durkan.
• Educational Materials: Suggested electronically communicating with landlords and property management companies about trash rules, especially regarding white kitchen trash bags.
• Observation: Rats attack white kitchen trash bags faster than thicker contractor bags.
• Proposal: Fine for white kitchen trash bags, or require them to be placed inside a black contractor bag (temporary containerization).
• Pilot Ideas:
  • Pilot a neighborhood with "Hokie" program to put white kitchen bags into black compactor bags.
  • Measure rat activity reduction.
• Fairfield Realty Model: Noted Fairfield Realty picks up residential trash from their buildings, preventing residents from putting it on the street. Suggested this could be a requirement for buildings with 8+ units.
• Community Engagement: Highlighted "Trash Talk Sundays" in Back Bay, which educates residents on containerization, composting, and proper trash disposal.

C. Heidi Nichols Baldacci (Beacon Hill)

• Support: In favor of the proposal due to a "public health crisis" from rats in Beacon Hill.
• Efforts: Condo association and self have optimized exterminator efforts, received support from Pat McDonough (ISD Environmental Services) for rat abatement (e.g., CO2 in rat holes).
• Observation: Rat excrement on Primus Ave.
• Urgency: Despite efforts, "still losing the battle."
• Compliment: Praised the city's efforts on September 1st trash cleanup, calling it the "best of 18 years."

VI. Closing Statements

A. Councilor Sharon Durkan

• Thanked panel and highlighted the October 16th meeting for public testimony.
• Emphasized the need to hear from all perspectives, including working families who may struggle with early morning put-out times.
• Acknowledged that solutions may vary by neighborhood.
• Reiterated the goal of reducing trash time on streets.
• Supported capping waste and addressing the issue of entire apartments being put on sidewalks.
• Thanked colleagues and committee staff.

B. Council President Ruthzee Louijeune

• Thanked lead sponsor, administration, and residents.
• Reiterated the importance of addressing the issue, citing car damage from rodents.
• Confirmed that white trash bags are sufficient if placed inside a container.
• Thanked for all the work.

C. Panelists

• Luke Hines: Thanked councilors and residents. Emphasized BRAP's goal to drive down rodent activity and improve quality of life through various methods (data collection, technology, inter-departmental collaboration). Will continue community engagement and research.
• Dennis Roach: Thanked Allie Foley for her insights on white bags. Stressed the importance of focus and resources (e.g., new positions in Public Works). Suggested exploring charging for trash collection to generate revenue for better services.
• John Ulrich: Emphasized shifting from reactive to proactive rodent control, attacking root causes (trash as food source). Highlighted the need for community engagement, as enforcement alone is insufficient. Praised efforts to collect real data on rodent populations.

VII. Adjournment

• Chair Enrique Pepén adjourned the hearing on Docket #1448.