citizen  support

for solid waste  management

this community action report (SW-17c.l),
developed for the bureau of solid waste management
by the national association of counties research foundation under contract no. ph 86-67-290,
is chapter 8 in public health service publication no. 2084

actions speak louder than words
    program image
    handling complaints

going to the public for support
    established organizations
    delivering  the message
    sources of opposition

using the communications  media

summary

appendix

selected bibliography

field reports  (in order of sequence)
a professional  public awareness campaign
    Broome County, New York
winning support  for improved collection
    Tucson, Arizona
mobilizing community  resources to promote  public acceptance
    Madison County, Alabama
using leadership  and example  to win support
    Waukegan, Illinois
the direct attack
    Baltimore County,  Maryland
overcoming opposition to a sanitary landfill  site
    Hamilton,  Ohio
stimulating involvement through humor
    Kennebunkport,  Maine


acknowledgments

The research and preparation of a  working draft for this guide was com-
pleted by Patricia A. McDonough, National Association of Counties Research
Foundation. Substantive and editorial contributions, reflected in the final
version,  were made by  Alastair McArthur, deputy executive  director; Mel
Powell, director of contract research; Judith Finlayson, director of publica-    Environmental Protection
tions; and Aliceann Fritschler, assistant director of contract research. Special    L Lb t-T.ry ,  Rogion  V
thanks are due to Stuart Finley, president of Stuart  Finley, Inc. and to H.    -j  ftfyj-fV} Wicker Drive
Lanier Hickman, Jr.,  director,  Technical  Operations, and  T. W. Bendixen,    Phic-ieo  Illinois  60606
special technical advisor, of the Bureau of Solid Waste Management, for their
valuable contributions in ideas and concepts.

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              citizen
            support
    THERE'S A/0  EXCUSE
  This cartoon sign outside the entrance
 of a Los AngeJes County sanitary landfill
helps make solid wastes regulations more
  palatable for the ordinary howeowner.
                                         foreword

The  public creates solid  wastes, discards them, and  expects
efficient, effective, economical, uncomplicated, and nuisance-free
collection and disposal. Unfortunately, enough mismanagement of
solid wastes exists in the average community to stimulate signifi-
cant negative reaction. Since solid wastes disposal is a distasteful
subject to many people, usually the general public does not com-
prehend the difficult problems involved in collection and disposal.
    Public information programs  are  important because they  can
reverse the trend,  changing criticism to public support.  Positive
images and impressions can replace negative ones. For example,
most people  are interested in conservation  of natural resources
and  community improvement  while  they have little  interest or
sympathy with the mundane procedure of collecting and disposing
of wastes.  Many people  can develop  an empathy for the dilemma
of the sanitation engineer  when introduced to contemplated  im-
provements in techniques and facilities.
    In other words,  the public  information  efforts of the com-
munity should  stress positive  factors to counteract the negative
impressions caused by problems such as:
    • poor household storage
    • infrequent, annoying, or undependable collection
    • open dumps
    • air pollution from burning dumps  or incinerators
    • abandoned automobiles
    • litter.
The best method of doing this is for the local government to adopt
a posture of progressive and effective operation, and to communi-
cate  this attitude of  success in every possible way.  This guide
provides some public information methods to gain and maintain
public support and interest.
                        — RICHARD D. VAUGHAN, Director
                          Bureau of Solid Waste Management
                                actions speak  louder than  words
                                Local government must plan a public  information  strategy  to
                                achieve long- and short-range goals and select tactical steps  to
                                achieve them. To win citizen support local government  should
                    "NVIRONMENTAL PROTECTION AGENCY

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     a professional  public  awareness  campaign
     Broome  County, New York
       "People think disposal  ends
     at the curb."
       "The  people in  Broome
     County just  equated sanitary
     landfill with  dump."
       These  comments  were made
     by Broome County, New York,
     supervisors  after  three  years
     of trying to educate the public
     about needed solid  wastes dis-
     posal.  So the Board of Super-
     visors  decided  to  secure the
     help  of  a  professional public
     relations firm.   The firm pre-
     sented the  county with a pro-
     posed  education and informa-
     tion  campaign which combined
     the  use  of  the  news  media,
     public meetings  with  elected
     and  appointed  county officials,
     and  a citizens  committee.
       The program has been  fol-
     lowed with  the exception  of
     the citizens committee. County
     officials opposed the formation
     of a citizens  committee  at that
     time for two reasons: 1) sev-
     eral  supervisors preferred  to
     have   the  citizens  committee
     chosen after landfill sites  had
     been  selected  and  announced;
     and  2} the  director of environ-
     mental  health  services thinks
     citizens committees should not
     be countywide,  as the  disposal
     program  will be, but should be
     organized independently in sev-
     eral  localities.
       About $16,500 was budgeted
for out-of-pocket  expenses.
Some  financial  assistance was
received  from  the  Bureau  of
Solid  Waste  Management.
Nearly  half—$7,676—of  the
$16,500 budget was used to pur-
chase time  and space in two
daily newspapers, three televi-
sion stations,  and  four radio
stations.  Producing the  mate-
rials for these media cost about
$2,600.
  Another $2,500 was  spent for
60,000  copies of an eight-page
brochure called  "Cover-up,"
which picked up the key phrase
used throughout  the  informa-
tion campaign:  "Sanitary Land-
fill ... the Better Way."
  Preparation of a  slide show
and written commentary about
sanitary  landfill   cost   about
$500,  with  another  $200 going
for a  projector and screen.
  The  public relations  agency
fee for its professional services
was $1,500.  It worked  under
the director  of environmental
health  services and the plan-
ning director.
  There  has been  some crit-
icism  of the county for using
public  funds to hire  a  public
relations firm.  But the  chair-
man of  the  board  said he is
pleased  with the  response to
the program so far, and added,
"Where it affects  public  health
or safety,  we  are  willing  to
spend some money for a public
education and information pro-
gram."  And since  Broome
County has no information of-
ficer of  its own, the only way
to obtain professional informa-
tion help is by using an outside
firm.
  The  folder and   the   slide
show were made available  to
service  clubs throughout  the
county,   to  schools,  and  to
residents in  the  areas  where
the county anticipated locating
landfills.  In addition, members
of the  Board of Supervisors,
the planning  director, and the
director of environmental health
services met with residents; ap-
peared at local public hearings
to explain  the countywide dis-
posal program;  and  discussed
the program   with  officials  of
the towns and villages to show
them its  advantages and to an-
swer objections.
  There  has  been   opposition
from nearby  residents to  some
of the landfill sites selected and
strenuous opposition from town
officials to one site.  Even the
resulting controversy over that
site, however, has  created one
plus for the  county,  its  chair-
man believes: Many residents
discovered that  an ugly  open
dump already existed in  their
town.
begin  to  build  a visible  record of  accomplishment  by making
improvements even while the total solid wastes management sys-
tem is still in the planning stages.

     The image  presented  by solid wastes management directly
influences community attitudes. In most communities, the collec-
tor is  one regular contact  a  resident has with local government.
The uniform  he wears, his ability to deal with people, his con-
scientiousness, and  his courtesy influence public attitudes.
     Collection vehicles also present an  opportunity to improve
public attitude.  In Philadelphia,  each month the polished choco-
late enamel  compactor trucks display different posters on such
                             program image

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        winning support for improved  collection
                                             Tucson,  Arizona
    Prior  to  1963,  Tucson, Ari-
  zona, solid wastes  collection
  was  provided  by various locaJ
  haulers under  district contracts
  with the city.  Under this sys-
  tem, city  residents  were  not
  receiving adequate service and
  the city could  not exercise any
  degree  of control over the situ-
  ation.  In September,  1963, the
  city  decided to take  over solid
  wastes collection. To operate
  an  effective  system  of solid
  wastes collection, the city had
  to upgrade the  existing local
  ordinances  for solid wastes col-
  lection.   Based on a  study  of
  other local ordinances  around
  the  country,  proposed  legisla-
  tion  provided  that  residents
  must comply with certain stand-
  ards for the  storage of solid
  wastes or  be  guilty  of a mis-
  demeanor.  This provision in the
  proposed ordinance caused con-
  siderable public  concern and
  threatened  to  block passage of
  the needed regulations.
    The  Refuse Division  of the
  Department of  Public  Works
  contacted  the city  newspaper
  to explain  the inadequacies of
  the existing law. The newspa-
  per  cooperated  by  giving  full
  support  to  the new  ordinance.
  In addition, local television sta-
  tions agreed to  present a pro-
  gram explaining the new or-
  dinance and its implications.
  While  the  public works de-
partment had obtained the nec-
essary support for the new or-
dinance,  there  still  remained
the task of  implementing the
new system.  Without the full
cooperation   of residents,  the
new  collection  system  could
not succeed.  Recognizing that
most  residents  would  volun-
tarily comply with the new reg-
ulations,   the Department  of
Public Works developed a se-
ries of brochures to explain the
need  for the new system  in
laymen's language illustrated by
cartoons.  Although there was
no  general distribution  of the
brochures, they were given in
quantity  to groups such as the
Chamber  of  Commerce,  Wel-
come Wagon, and to persons
who made complaints  about the
service.
  The cost of  developing and
printing the brochures, as well
as the cost for all public rela-
tions for Tucson's  Sanitation
Department, was  minimal.  The
total  budget  for the Sanitation
Department  for  1967 was ap-
proximately  $1.9 million,  of
which $1,700  was  spent  on
public relations.  The public re-
lations  expenditure  represents
less than 1 per cent of the total
budget, but the time it saves in
dealing with  complaints repre-
sents a significant cost savings.
subjects as  storage  standards,  traffic  safety,  and  community
relations.
    Every disposal  or  processing facility offers opportunity  to
improve the solid wastes management  image.  A  fenced,  land-
scaped, well-designed operation makes it easier to secure a loca-
tion for another well-run operation  when it becomes necessary.
Officials should not miss the opportunity to remind residents that
landfills are land reclamation projects which may result in a park,
golf course,  or airstrip. This  idea is a  strong selling point.  In
Riverside, California, one sanitary landfill site was developed to
create a scenic parklike atmosphere  along the  entrance road.
     Signs clearly  indicating regulations and  hours  of operation
are necessary.  They should be easy to read, easy to find, and

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                        FIGURE A, TUCSON, ARIZONA
      As a member of a City  Garbage  crew, I  have  been given  very careful
  instructions not to bang your garbage cans, but to treat them with tender loving
  care. But in order for me to follow these instructions and still empty your garbage
  cans, your cooperation  is  needed. If you fill the cans and then stuff in some
  more trash and jump on it in order to get the lid on, the garbage won't fall out
  when I turn over your can to empty it.

      I am not allowed to reach in the can and pull garbage out with my hands.
  I -can't tell when I will grab a  broken  bottle, old razor blades, jagged tin can lids
  or other dangerous things, and if I am hurt,  you have  to pay for  it.  Industrial
  accidents  are  expensive to  taxpayers. So, please  don't cram  your  garbage  can
  full; get another one if you feel you often need more room.
attractive.  A  facility which  is difficult  to  locate  should have
conspicuous  direction signs en  route.
     Once  an  illicit roadside  dump  has  been  cleaned  up,  the
appearance of the area  should  be improved  so it will not revert
to a dump. An easy way to do  this is to plant grass on the clean
but barren dump site.

     An excellent opportunity to improve  community relations is
through the prompt, courteous, efficient handling of citizen com-
plaints. One of the most frequent complaints is failure to provide
a scheduled collection service.  With  contract collectors  in Mont-
gomery County,  Maryland, the home missed must receive  service
within one day of a complaint; and the contract collector may not
handling complaints

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                                   have more than 25 such complaints a month without being fined
                                   or subject to contract cancellation.
                                       National  Disposal Contractors,  Inc., requires  collectors to
                                   make a notation of any homes which were skipped  and why—no
                                   waste to be collected, aggressive dog, improper storage, item too
                                   large. When  the  complaint is received,  the  company is able to
                                   explain  why service  was not rendered, and tell the resident how
                                   to remedy the situation so  that it will not happen again. Then a
                                   special pickup is made.
                                       A record of the  kind and frequency  of complaints should be
                                   kept so that continuing improvements can be  made.  In New York
                                   City, with a fleet of 1,200 trucks, one repeated complaint was  that
                                   trucks were too noisy. The mayor now requires  all trucks to be
                                   provided with insulation to reduce the noise level.
         established organizations
    PROGRAM SALESMANSHIP BY THE
     CITIZENS ADVISORY COMMITTEE
1. BELIEVE in the program.
2. KNOW the program thoroughly.
3. PRESENT the program attractively.
  a.  Gear the presentation to the particular
     audience to hold its interest.
  b.  Dp not force a decision  at the first
     visit, but leave the impression that the
     first visit was more  than a "friendli-
     ness" session.
4. FOLLOW UP the initial visit.
    going  to  the  public  for support

    Resources in the Community. One method of achieving citizen
participation in  the  early stages of  a program to improve  solid
wastes management  is the formation of a small citizens advisory
group. The role of this  committee should be to help plan total
citizen support for whatever solid wastes management system is
needed.
    The starting point of a public support campaign is to identify
the community assets and liabilities which may affect the  solid
wastes program.  To  do  this, the advisory committee should in-
clude both elected and non-elected community leaders. The com-
mittee should include the local government public  information
officer, representatives from other local government departments,
community organizations, and private industry.
    The best way to get action is to get people involved early.
Forming a broadly based  committee early is vital since people may
feel they are being "used" if they  are asked to  go along after the
plan is  made.  This way, comprehensive improvements will be
those which the citizens  themselves have helped develop.
    A workshop is an  efficient way to prepare a  large group
quickly.  Citizens advisory committee members should help  plan
the workshop and determine what decisions and participation are
required from their  organization.  The committee should prepare
a composite list of private organizations, professional associations,
private  industries, and agencies of local, state, and federal  gbv-
ernments.  Working with the citizens committee, public officials
should decide which interest groups need to  be reached,  what
factors are important to  each group, and what results are desired.
    Since many organizations are committed to other goals as pri-
mary responsibilities, at first an official should select organizations
which are most likely to  participate with enthusiasm.  After  a
record of accomplishment has been  achieved, other organizations
will be eager to participate and  help  support the  solid wastes
management program.
    Existing organizations can effectively motivate interest since
they have  established channels of communications and influence
with their  members.
    Each civic group, such as the League of Women Voters, U.S.
Jaycees, parent-teacher  associations, Lions Club,  and  Kiwanis,

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     mobilizing community resources to promote public acceptance
     Madison County, Alabama
       Piecemeal, sporadic efforts by
     Madison  County,  Alabama,
     commissioners to eliminate un-
     sightly accumulations of trash
     and  garbage at roadside  areas,
     woodlands,  and  ditches within
     their individual districts proved
     unsuccessful. The county com-
     missioners  became  convinced
     that  a coordinated  countywide
     program  of solid wastes  dis-
     posal for rural  areas was  the
     only solution.
       County health officials con-
     tacted equipment manufactur-
     ers,  visited systems  in  other
     cities and counties, and sought
     the  opinions of  various com-
     munity  leaders  and  organiza-
     tions on  the  workability  of
     plans being  formulated.
       Health officials proposed that
     residents of areas to be served
     contribute  funds to  purchase
     40 8-cubic-yard  metal  contain-
     ers  to be  placed at principal
     intersections, near rural  popu-
     lation concentrations  along
     county roads, near rural stores,
     and  on county school grounds.
     The  county would  purchase a
     front-end  loading  compaction
     truck,  employ   the  necessary
     collection crew, and assume op-
     erating  expenses.  The  Hunts-
     ville City Council agreed to al-
     low  Madison County to use its
     disposal  site free.
  To help sell the program  to
rural communities and  obtain
public  financial   support, the
health department enlisted rural
community leaders  and  presi-
dents of  organizations such  as
home demonstration clubs, farm
bureaus, and parent-teacher as-
sociations.  These  key leaders
were invited to attend a briefing
about the proposed solid wastes
program  where  slides,   maps,
flip charts, a movie about col-
lection,  and other visual aids
were used.  A person in each
community  represented   was
asked to  arrange  similar  meet-
ings for citizens in his area.
  At the first such local-level
meeting,  the  chairman of the
Board  of Commissioners pre-
sented  the proposal.   A per-
manent  fund-raising chairman
was elected,  who  immediately
appointed a committee  to  so-
licit contributions. Within three
days, $1,600 for  three contain-
ers was  collected.
  Following this initial success,
the same  procedure was used in
each small incorporated  town
and unincorporated community.
Within two weeks over $10,000
had been received. Considering
this adequate evidence of pub-
lic approval, the commission-
ers ordered the  20-cubic-yard
packer  truck.
  According  to  the  sanitarian
supervisor, a  key element  in
gaining   public  support  was
working  closely with the Agri-
cultural  Extension Service:
  It would have  been impos-
  sible to have put this pro-
  gram across without the as-
  sistance of the local county
  agent and home demonstra-
  tion  agent.  These people
  can tell you more than just
  how to raise a row of cot-
  ton or  how to  prepare a
  balanced meal; they  know
  who the leaders are  in a
  community and how to ob-
  tain their  cooperation and
  support. And these agents
  are available  in counties
  throughout  the  country to
  help local officials in worth-
  while projects of this type.
  Local  officials   in  Madison
County feel  that  the most im-
portant aspect of  this  solicita-
tion  program  was that  every
member  of  each community
was  contacted and encouraged
to  give   something,   however
small.  This created a sense  of
pride, possession,  and owner-
ship in the containers  and the
cleanliness of their  neighbor-
hood.
  Within six  years, 84  contain-
ers and  two  compactor trucks
were in  use.
adopts one or two major projects for the year.  The citizens com-
mittee should work  with each organization  to  encourage  the
adoption of solid wastes management as a project and to get the
organization to  participate in the  overall  program. Each organi-
zation should be shown how its contribution fits into the overall
action program.
    The citizens committee should enlist an organization's active
participation, not settle for a token endorsement. The organiza-
tions  should show they plan to involve all their members in the
project and designate a liaison with the citizens committee.  In-
volvement can itself generate enthusiasm.
    Some  projects which can be adopted  by individual organiza-
tions  are litter control, improving storage conditions  (buy a new
trash  can  campaign),  and  abandoned automobile removal.  The

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                                   project should be a manageable one so that it can be accomplished
                                   within  the time  allotted,  and  challenging  enough  to generate
                                   enthusiasm,  not boredom.
                                        Another important  group  that  should be  approached  for
                                   assistance in  getting the  message  across  is  the  public school
                                   system.  There are  local teachers' organizations virtually every-
                                   where and through them the teachers can be reached, by getting
                                   articles printed in their newsletters and by  providing speakers at
                                   their meetings.  School boards  should also be approached; with
                                   their permission and that of school administrators, school children
                                   themselves can be enlisted to help.
                                        Each  organization  should be informed of the  activities  of
                                   other groups, and should be given public recognition for its par-
                                   ticipation  through   newspaper  articles,   citations,   competitive
                                   awards for outstanding achievement, and other methods.
                                   using leadership and example to  win  support
                                                                            Waukegan,  Illinois
  When rats from the city dump
invaded nearby prosperous res-
idential areas, the  citizens  vo-
ciferously demanded that a mu-
nicipal incinerator be  built  to
replace the  dump.  A $350,000
incinerator  bond  referendum
was  approved, but public  in-
terest  waned  when two years
passed with  no action taken.  In
1961,  the  newly elected mayor
reviewed  the  problem.  In  the
two-year span, the  solid wastes
production rate  had increased
and construction costs had sky-
rocketed.  The bond  issue was
no longer adequate to  pay for
an incinerator large  enough to
meet  current needs, much Jess
accommodate   future  growth,
and the city was already facing
financial strains.
  To  find an  alternative solu-
tion,  the  mayor  interviewed
private land disposal operators
and toured their sanitary land-
fill  sites.  Waukegan was sur-
veyed and soil tests were  run
on the most suitable sites.  On
the edge of Waukegan,  a 3-acre
swamp had  been a community
eyesore for  many  years. Tests
indicated  it  to be  suitable for
sanitary   landfill   without  en-
dangering surface or ground wa-
ter.  Arrangements were made
to have the land donated to the
city in memory of the  owner's
deceased son. National Disposal
Services, Inc., was contracted
with to operate the small pilot
sanitary  landfill  under  strict
standards, and also to assume
the  waste  collection  service
which, under municipal opera-
tion, had been unsatisfactory.
  The  public, having approved
a  bond issue for  incineration,
raised  strong opposition, claim-
ing that  the city was planning
to "replace  the  dump with  a
dump."  Court  action  ensued.
The  mayor  personally waged
a vigorous campaign defending
the  selection  of  the  sanitary
landfill method. Appearing be-
fore  hostile  audiences, he ar-
gued that sanitary landfill was
much  less expensive than in-
cineration, that land in Wauke-
gan was available  which could
benefit  from reclamation, and
that  the  homeowner would re-
ceive  more  service  (backyard
pickup) than before at less cost.
At one public meeting the au-
dience was  so rude  and agi-
tated, the mayor said, "Nothing
will  convince you  because you
don't want  to listen.   But you
elected me to do  what is right
and  I  will establish  a sanitary
landfill—not  a dump—whether
you like it or not because it is
best  for the city. That landfill
will be so clean and so perfect
that when it is finished I'll serve
you tea and crumpets on it.  In
fact, in 18 months we will have
the biggest tea  party there you
have ever seen."
  The  newspapers  had  a field
day  cartooning the promised
tea party in a rat-infested dump.
When  the  first  truckload  of
trash  was  brought  to the new
fill, citizens lined  the  fenced
perimeter  to  superintend  the
operation.  After a  week, the
crowd thinned and  opposition
was  less  adamant.  Court  in-
junctions  were dropped.
  Within  18 months the model
landfill was completed, sodded,
and  equipped  for little league
baseball. On the appointed day,
5,000 Waukegan  citizens  gath-
ered for the ribbon-cutting cer-
emony  to  celebrate the  newly
completed reclamation project.
The   party  featured tea  and
doughnuts, a  brass band, and
exhibition  baseball.   Leading
athletes from the Chicago sports
world were honored guests.
  For the next site, the school
system  and the park authority
invited   the  city  to  reclaim
eroded land by sanitary landfill
for a school athletic field.

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    Resources Outside the Community. In addition to the re-
sources within the community, technical and financial support is
available from universities, the federal government, private indus-
try, and national professional  associations.  (Details of these pro-
grams are presented in Guide  Number 7, Technical and  Financial
Assistance.]
    An official of the National Clean-Up, Paint-Up, Fix-Up Bureau,
the oldest  national nonprofit  community improvement  program,
commented:
    The greatest obstacle to channeling enthusiasm for  com-
    munity betterment results because most communities do
    not know what they want to accomplish and what organi-
    zations are already  available to help them once  their
    goals are identified.
    To show how to channel  this community  energy, the bureau
offers  a free  kit  on  request and  issues a monthly newsletter to
keep communities abreast of projects throughout the country. It
presents an annual national award to the community rated highest
for the degree of improvement, beautification, youth participation,
and scope  of voluntary participation. For more information on
this and similar programs, see the Appendix.

    Public officials should plan a careful campaign  to reach the
general public. Improvements made by local government and the
support and  successful projects of civic organizations will pave
the way for public support of a comprehensive solid  wastes man-
agement program.  All  the tools of communication should be
used to reach all citizens with the reasons why improvement is
necessary.
    Successfully selling a complicated proposal  is most effective
if personal explanations  can be given.  Small informal  meetings
or "coffees"  where groups of citizens have a direct opportunity
to learn about and discuss the program with their neighbors are
the next best means.
    Personal selling  is most effective if the  campaigners  are well-
known, respected, and informed.  Community and  civic leaders
should be able to reach those who influence others at work and in
the neighborhood.
    The more complicated or controversial a  program,  the more
personal contact  is required to convince people that it is  good.
Completely changing someone's mind is obviously easier if his first
opinion was not too  deeply rooted. The  environment, as well as
the means and tact of the presentation, is important.  When public
hearings are required by law or are desirable, officials should plan
and organize  the  meeting so that  all sides receive a fair hearing.
    Speakers Bureau.  A  well  organized speakers  bureau with
effective, well-prepared speakers  is  important in any education
campaign which  must  move people  to action. It is not enough
to tell members  of an organization  that solid wastes are  being
improperly managed  and that improvements are needed.  Because
of the element  of personal contact, which  generally  makes a
deeper and more permanent impression than impersonal contact
(through  the  printed word or over  electronic waves),  effective
speakers are  a must  in a campaign for support of a solid wastes
management  program.
    Speakers can be drawn from the ranks  of  elected and  ap-
delivering the message
Broome County, New York, used this
brochure explaining why countywide
disposal and sanitary landfill were the
answers to their solid wastes problems.

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                                      pointed officials, doctors, scientists, engineers, and knowledgeable
                                      citizens.  They  shold  be vitally interested in solid  wastes man-
                                      agement  and knowledgeable about local  conditions.  Their  en-
                                      thusiasm alone  can be infectious. Bolstered with facts and a pro-
                                      posed program,  they  may move a majority of the  audience to
                                      acceptance of the program.  Though  the  audience may not  be
                                      permanently motivated  by one  speech, its members will be far
                                      more receptive  to future discussions about solid wastes manage-
                                      ment which reach them through the  mass media.  This is  how
                                      mass communication  and  the  personal contact of small group
                                      meetings work hand in  hand.
                                          Opportunities must be sought to expose the issues and pro-
                                      vide information on the solid wastes management program.  The
                                      citizens advisory committee or  public  officials  should contact
                                      every organization to let them know that speakers are available.
                                      Speaking  engagements  must be sought actively.  All  kinds  of
                                      women's clubs, PTA's, fraternal organizations, and church circles
                                      can be approached.  Representatives  from these  organizations
                                      should  be working with the citizens  committee  throughout the
                                      campaign, and they should be able to arrange speaking dates.
                                             the direct attack

                                             Baltimore County, Maryland

                                               Baltimore County, Maryland,
                                             made a broadside attack on the
                                             litterer.  The county  issued a
                                             "Dirty  Picture  of  the  Week"
                                             pointing a finger  at any dump
                                             anywhere.  For  example,  one
                                             caption read:

                                                 SEEING  IS  BELIEVING
                                               —This horrible scene is on
                                               Milford Mill Road just west
                                               of Reisterstown  Road near
                                               the  well-kept suburban
                                               community of  Sudbrook
                                               Park. This photo was taken
                                               and  is released by the Of-
                                               fice   for Information  and
                                               Research for Baltimore
                                               County to spotlight how a
                                               nice  county  road can  be
                                               made unattractive by road-
                                               side  littering.  Don't dump
                                               unwanted bulky items along
                                               the county highways, when
                                               for  such  a  small fee, the
                                               Bureau of Sanitation  will
                                               pick them up. Call 823-3000,
                                               Extension 285.

                                               Program support was given
                                             from every level of local gov-
ernment. The elected county ex
ecutive instructed every count;
employee  to  know the  litte
laws.  Litter bags were put inti
all  county  vehicles,  includin,
police  cars.  Use  was manda
tory.  An  example was  to  b
set.
  Policemen had orders to war
any violators seen littering hig?
ways  and to present offender
a litter bag with a polite re
minder that next time an arres
might  be  in  order.   Appea
were made for responsible ci
izens  to  report  violation
promptly,  to refuse to allow
few  to raise tax  burdens  b
thoughtless  littering.   Magii
trates  were asked to  assij
maximum  penalties  to all coi
victed violators.
  Color television spots showe
piles  of  debris  along  wel
traveled roadways and stream
Next  to "No Dumping" sign
they showed garbage, junk, an
filth which  clearly implied
lack of public pride or  publ
responsibility.  Messages  wei
10

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     More and more, solid wastes management agencies are mak-
 ing speeches at all local schools.  The immediate benefit from this
 audience is that the children carry the talk home to their parents.
 The long-range benefit is that soon an entire generation of people
 will be familiar with solid wastes problems and more  easily con-
 vinced of the need for good management.
     The speaker  should make  sure his talk is appropriate to his
 audience.  The local ladies'  club will not  be  as  interested in the
 technical aspects of industrial wastes as will, say, the local chapter
 of the American Society of  Civil Engineers.
     After  initial  speaking  engagements have been  fulfilled, the
 word will begin to reach other program chairmen, who  are search-
 ing continually for good program material. Soon they will begin
 coming to the speakers.
     The Creation of Events. To use organizations effectively  and
 at the same time create increased public awareness through news
 media, the public education program can  focus  attention on spe-
 cial events.
     The Philadelphia More Beautiful Committee  received national
 recognition from the National Clean-Up, Paint-Up, Fix-Up Bureau.
brief  and  accusing:   "You're
looking  at  a  wasteland of lit-
ter. ... Keep it up.... You won't
have  to  look for   a  dumping
ground, you'll be living in one."
Each  spot  ended with  an in-
vitation to telephone the county
for information about disposing
of unwanted items.  Three tele-
vision and  11 radio stations in
the greater  Baltimore metropol-
itan area broadcast the spots.
Preparation cost of the spots
was $201.60.
  Another  public  information
tool used was direct mail.  Uti-
lizing  the July  mailing of tax
bills to save the substantial cost
of an  additional mailing, a spe-
cial flyer was  prepared  and dis-
tributed  as an  insert.  Titled
merely "Information for  Tax-
payers,"  it summarized major
expenditures of tax monies for
the past year and featured basic
information   regarding  bulky
item and refuse disposal  in a
"specific  report."  It cost less
than one-half cent per mailing
and reached 180,000 homes.
  Commenting  on the  educa-
tional action program, the coun-
ty's  sanitation  bureau  chief
remarked:
    After  agreeing  to  the
  campaign  outlined by  our
  county Office  of  Informa-
  tion and Research, particu-
  larly my part in opening it
  with a two-fisted  attack,  I
  half expected to be hung in
  effigy, or worse, by any one
  or any number of the coun-
  ty's over  555,000 residents.
  But the hue and cry never
  began, thankfully, and aside
  from a few brickbats public
  reaction  was  highly  fa-
  vorable.
    We  found ... that  many
  residents  were  as alarmed
  and upset as we were about
  wholesale dumping and
  were  anxious to do some-
  thing  to help stop it.

  Since  this reverse psychology
was applied  and the rest  of the
public information program has
been in effect, record  progress
has been made in removing all
kinds of debris from basements,
backyards,   vacant   lots,  and
numerous other locations.  In
the  first eight  months,  more
than  3,800  bulky  items  were
collected and  hauled to  land-
fills  for proper disposal.  Tele-
phone requests for this service
came in at the rate of 400 per
week.
  Another  by-product of  the
campaign has  been  better tele-
phone communication with
people who have disposal prob-
lems. Residents are more aware
that  there is a  solid  wastes col-
lection  and disposal problem
and  they know it is important
to them.  They accept the reg-
ulations more readily and view
them as  necessary for  con-
venience, health, and manage-
ment. According to the  Balti-
more County  information  of-
fice,  "We recommend this type
of direct  attack program to any
local  government with similar
problems and an official willing
to stick his chin out."
                                                                                                      11

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                      >• ••III
                      it 1 i 1 1  '
                     it •
                     •« •••• i
In many areas, local groups will help finance
  the purchase of litter baskets to be placed
  around the area.  Such activities give them
 a feeling of involvement and responsibility
                for solid wastes control.
By organizing blocks and having them compete each week for a
"Cleanest Block of  the  Week" award,  the  committee  has suc-
ceeded in beautifying 2,500 blocks in  the oldest part of the city.
The  program  was closely coordinated with  the  Department of
Streets so that bulky items and street  sweepings  could be picked
up on Saturdays.
    Keep America Beautiful,  Inc., has been active  in litter con-
trol.  Its  award program is an incentive to stimulate community
action, and to tie local action  into  a nationwide effort.   San
Diego County, California, has  won two Keep America  Beautiful
county awards for its anti-litter activities. Various county depart-
ments, particularly the Refuse Disposal Division of the Department
of Public Works,  city agencies,  and a private group called the
War Against Litter Campaign, have enlisted the support of thou-
sands of  residents  in  a continuing  countywide  campaign.   To
encourage the program,  the county allows the Director of Public
Works to waive disposal fee payment for two important instances:

    1) When the  garbage or  refuse collected is  part  of an anti-
       litter,  clean-up,  or like campaign for civic  beautification
       by youth or  civic groups, such as the Boy or Girl Scouts;
       or
    2) When the  refuse is generated  in the course of collection
       and salvage  of  materials donated to nonprofit  charitable
       organizations, such as  the Salvation Army and  Goodwill
       Industries.

    An important event for publicity and public education  is a
"go-see" trip for citizens and public officials.  Groups  should be
taken to see a well-run incinerator, sanitary landfill in operation,
and completed and converted  fills.
    A major  source of opposition may be  due to the disposal
method "credibility  gap."  Most  people have never seen a  good
disposal  operation because good  ones are inconspicuous.  What
they remember are sooty incinerators, rat-ridden  dumps, and all
the other bad  aspects of improper disposal.  The voters frequently
will  not  believe that a  sanitary landfill is different. Few people
understand the difference between a sanitary landfill and a dump.
People will  argue that a dump in the neighborhood will depreciate
land values. It is  important to stress  what the fill  will be when
completed—a baseball field, golf course, botanical garden.
    Homeowner Information. Providing information sheets con-
cerning solid wastes programs and services to the homeowner is
also an effective tool in building  a desired image.  Using pictures,
cartoons, and  a lighthearted touch makes a better impression than
hard-to-read mimeographed orders, which will probably wind up
in the waste can.  The  appearance of  the brochure, of course, is
secondary  to providing top-quality information and service.
    Every residence in  the community should be  supplied with a
set of instructions about the schedule for collection, preparation
of garbage, trash,  yard clippings, and bulky items; and a  phone
number to  call for more information  or to register a complaint.
When Tucson, Arizona,  changed  its collection system, the Refuse
Division of the Department  of  Public  Works issued  a booklet
using comic figures  to seek homeowner cooperation and to show
common failings (see Figure A).  To  inform homeowners of a
change  in  collection or  disposal  practice,  Philadelphia collectors
12

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deliver notices door to  door along the collection route (see  Fig-
ure B]. To reach non-English speaking residents, Philadelphia has
distributed brochures, litterbags, and signs in Spanish.  Notices
can also be distributed along with other government mailings such
as school  notices and utility bills.
    Communications Media. Although  most  effective, personal
contact can  reach only a few people  at a time.  Therefore, other
public relations tools which reach broader segments of the popu-
lation should be used simultaneously.  Films on good solid wastes
management can be broadcast locally to be viewed by civic groups
meeting at several locations  as  well  as the general public.  The
film should be well publicized in the local newspapers and in civic
group newsletters. Group discussions can follow the film.  Ques-
tions  can  be phoned to a local government office which would
stay open to answer them.
    Some forms  of public relations,  particularly radio and tele-
vision messages,  are used most  successfully to reinforce existing
attitudes and to motivate people to act on their beliefs. In Balti-
more, Maryland, public officials capitalized on the goodwill gener-
ated after a  successful clean streets campaign. The city used one-
minute radio announcements to tell residents what was necessary
to continue  to keep  streets and alleys clean,  how the municipal
collection and disposal system operated, and the telephone number
available to register a complaint or obtain more information.

    Since it is easier to attack a program than sell one, the "anti's"   be blunt but positive
often  get  more  news media attention.   To counteract this, the
"pro" group can attack the existing situation in blunt terms while
at the same  time conducting a positive program for change.
    People  are already aware  of what  they do not like about
garbage and everything associated with it, so they are likely to re-
act emotionally to anything they believe will make it worse.  The
official should use to advantage those subjects which people are
already against, such as rats, blight, air and water  pollution, flies,
and depreciation of land values.
    People  relate to things  they  believe are good.  The public
official must show  that the new system will be better than the

               FIGURE B: HOMEOWNER  INFORMATION
                  PHILADELPHIA, PENNSYLVANIA

                     NOTICE

       RUBBISH and ASHES will not be collected

                    CHRISTMAS  DAY
                   FRIDAY, DECEMBER 25
          However your trash will be collected  the following  day
                 SATURDAY,  DECEMBER 26
       (THIS SPECIAL COLLECTION WILL BE MADE TO HANDLE THE  EXCESS
        AMOUNT OF RUBBISH ACCUMULATED BECAUSE OF THE HOLIDAY)
                    SANITATION DIVISION
                     DEPARTMENT OF STREETS
                      Room 924, City Hall Annex
                                                                                                 13

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                                     overcoming opposition to  a sanitary landfill site
                                                                                      Hamilton,  Ohio
       "The best solid  wastes pub-
     lic relations is good operation
     of sanitary landfills in the past,"
     said the Hamilton, Ohio, direc-
     tor of public works. He also be-
     lieves that residents who  live
     near proposed landfill sites are
     always going  to  complain, so
     he warns  other public officials
     to be prepared for  such opposi-
     tion.
       Acting  on these principles,
     Hamilton's public works direc-
     tor and other officials were able
     to overcome intense opposition
     from residents when the  city
     proposed  opening  a new land-
     fill near the center of the city.
     The  controversial  site  was an
     abandoned  gravel  pit located
     on a 10-acre tract which sepa-
     rates residential dwellings  and
     a  few  commercial  buildings
     from railroad  tracks.  Landfill
     operations were to be conducted
     adjacent   to   the   tracks  and
     within  100  feet  of the resi-
     dences.
       As soon as  the  site was an-
     nounced,  nearby  residents un-
     leashed  a  storm   of  protest.
     They organized and vocally op-
     posed the  new site at city coun-
     cil  meetings and  public hear-
     ings for months.  They pleaded
     with the governor,  state  health
     officials, and even federal health
     agencies  for support.  Though
     the  residents received  no help
     from these  officials, they  con-
     tinued  their campaign.  Local
     newspapers, according   to the
     public   works  director,  were
     scrupulously fair in explaining
     both sides of the issue.
       City  officials launched an in-
     formal campaign  of their  own
     to convince the protesting resi-
     dents  that  their   fears  were
     groundless.  Their  most effec-
     tive tool was in arranging visits
     for  the public  to the completed
     landfill site. (That site  is  now
     part of the Hamilton   branch
campus of  Miami  University.)
Though  some  visitors  were
frankly amazed  at the sanitary
conditions  and  lack of  nuis-
ances,  they  still  feared that the
new site would not be operated
with  similar  care.  Many re-
called  an  old  burning dump
which had existed near the first
site prior to its use as a landfill.
  Residents living near the new
site  also had visions of blow-
ing litter.  The public works di-
rector  promised it  would be
controlled.   In  reply, the  resi-
dents  promised  to  complain
loudly every time a  stray piece
of paper landed in  their  back-
yards.   So  the   public  works
director installed an  8-foot wire
fence around the site at a cost
of about $3,000.  As further in-
surance, he added snow fenc-
ing within the site itself to catch
papers.
  The  city  council  had unani-
mously approved the gravel pit
site by this  time.  To quiet citi-
zen  opposition,  it publicly di-
rected that  the  new landfill he
operated according to the same
high standards  as the old one.
  The gravel pit area had  been
a problem for  fire  and health
authorities for years because it
was  overgrown with brush and
had  been  subject to indiscrimi-
nate dumping.  A  professional
exterminator was hired to bait
the  site to  prevent rat  migra-
tion  to  surrounding residential
areas and  the clean-up of brush
and  refuse burial began.  After
this  initial  job,  some of  the
original  protestors  compli-
mented  the  public  works  de-
partment  on the site's "amaz-
ing  improvement."
  The fencing controlled access
and  litter  problems. To lessen
dust, a paved, all-weather road-
way was  constructed  the com-
plete length  of the  pit. A full-
time attendant directs unloading
and  collects scattered  refuse.
Burning,  scavenging,  and  sal-
vaging are prohibited.
  Continuing engineering super-
vision  is  also  provided.  The
new site  is  inspected  regularly
by the local  health  department.
In addition,  the federal Bureau
of Solid Waste Management in
nearby  Cincinnati uses the  site
for  instruction purposes.  This
regular  outside  evaluation  is
helpful  in  gaining  and  main-
taining  public acceptance.
  The  site  is in  full  operation
now, with an  expected  life of
two  to  three years. The  work-
ing face is extremely small; lit-
ter  is  practically non-existent.
It will  probably be  easier to
convince  residents  that  future
sites can  be long-range  assets
to the community by reclaiming
land. However,  warns  Hamil-
ton's public  works  director, "It
is impossible to gain public ac-
ceptance  when  the  public is
personally acquainted with the
nuisances and health hazards
resulting  from a dump or a sub-
standard  or poorly  operated
landfill."  In short,  for sanitary
landfill  operations, public ac-
ceptance  depends  on  perform-
ance.
14

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current system to win support for change.  For example, he can
use people's desire for clean water to  stop riverside dumping.
    Symbols and slogans can also be used to help people identify
with a program.  Smokey the Bear was the identity used to make
the point that  careful disposal of used matches and drenching
campfires are contributions a citizen  can make  to help prevent
forest  fires.  Keep America Beautiful, Inc., reminds  people that
"Every Litter Bit Hurts"  because it requires dollars to keep high-
ways clean.
    These campaigns have  been successful because the message
is short, simple, direct, and clear. The message states the problem
in familiar terms, and the required remedy.  The message is  de-
livered by some figure easily identified as good.

    A record of accomplishment and the enlistment of many sec-
tors of the community in solid wastes management will help local
government maintain  widespread  support  when  improvements
touch politically sensitive issues such as site selection and raising
funds  through service charges, bond issues, or increased taxes.
    Before  controversy  develops,  the official and the citizens
committee should study  the attitude and motivation of those in
the community who are likely to oppose their project.  Sources of
opposition include the following types  of citizen.
    •  People who don't want sites near them.  They are motivated
       by the belief that living near a disposal facility threatens
       the value of their property and lowers their status.
    •  People who  don't want  to spend money.  They support  a
       bad system at the added  expense  of  inconvenience, less-
       ened public confidence,  poor land use,  and  endangered
       public health.
    •  People who believe no solution is possible.  They lack infor-
       mation and thus need to be informed of current technology.
    •  People who resist any change. They may  be favorably in-
       fluenced if the explanation of what is planned is presented
       as an essential community improvement.
    •  People who are apathetic or unenlisted.  They can be inter-
       ested and motivated into personal involvement.
    •  People who have inadequate or erroneous information. They
       can be influenced by  complete information and  thoroughly
       documented  facts.
    •  People who are politically opposed  to those advocating the
       program.
    •  People who  do  not think the agency can do  a good  job
       because of past practice.
    Government laxity and bad previous experience stimulate the
most forceful and persistent opposition.  What a jurisdiction has
done or permitted to be done has more  influence than what it says
it will  do. It is especially difficult to counter arguments if a local
government has tried to hide its failure. A  credibility gap develops
and citizens will not support any proposed system. No disposal
site or system lasts forever, so it is better to do a good job from
the start to avoid organized opposition when  new sites and new
programs must be established.
    Opposition  to  a disposal method may spring from rumors
that noxious gases exude from landfills, or that no incinerator can
be operated in conformance with air pollution control standards.
sources of opposition
Accumulations of rubbish like this one on a
downtown street strengthen the distaste
many people feel for the whole subject of
wastes control. One counteraction is to
cJean up the mess and use that as a
starting point to gain support.
                                                                                                  15

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             FIGURE C
      IDEAS  FOR PUBLICITY
   TOPICS FOR WRITTEN PUBLICITY
   Establishment of citizens groups
   Statements by public officials
   List of uncontrolled dumps,  sources, and
     their pollution effects
   Comparisons   with similar  communities
     which have set up good systems
   Meeting announcements
   Hearings on establishment of  a system and
     site location
   Setting  up  an  agency; its  organization,
     powers, personnel, budget,  program
   Agency  activities—changes  effected,  in-
     spections,  court appearances, successes,
     failures
   Visits from out-of-town  experts
   Findings and recommendations in the study
     and investigation report
   State and federal grants received
   Periodic progress reports
   Go-see  trips

   TOPICS FOR  VISUAL PUBLICITY
   Rats in a rubbish pile
   Open burning at dumps, demolition sites,
     individual  homes
   Demolition activities
   Garbage collection in action
   Scenes  of litter,  dumps  and abandoned
     automobiles  in alleys, along highways,
     in streams, and in wooded  areas
   Maps showing dump locations
   Abandoned automobile removal
   Operation of collection  equipment
   Activities such as  picketing,  meetings, in-
     spection trips by officials
   Smoke  plumes  from  apartment building
     incinerators
   Comparison  shots  of good and bad stor-
     age   conditions,  disposal  sites,  and
     incinerators
   Model  of landfill site with planned future
     use
   Compost plant or sanitary landfill in opera-
     tion
    Flies on garbage
   Go-see trips
Countering these arguments with facts open to inspection makes
it much more difficult for opponents to play on  emotions  with
half-truths. Public  officials should  make it clear they are striving
to create the  best system possible  by applying the most modern
technology, which is designed to conserve  and protect air, water,
and land from pollution.
    To eliminate doubt,  the  campaign must make clear why the
solid  wastes system is absolutely necessary  and why it is a bar-
gain at the price.  Delay  will necessitate additional costs such as
cleaning up the  areas where  wastes have accumulated.  The cost
of purchasing property and building facilities also  rises each year.
Sooner or later comprehensive solid wastes management must be
undertaken; the  sooner, the more reasonable the cost.
    Securing a Site. No matter which disposal method is selected,
a site is required.  And unless the  local government has already
established a  good reputation  for proper wastes management,
there will be a vociferous site fight. The results of thorough tech-
nical  evaluation  should be the primary consideration in  site selec-
tion, but political feasibility is also  essential.  Until a firm decision
is made, the  location under  consideration should be kept confi-
dential.  Premature disclosure of possible site  locations can  spell
disaster.  One county commissioner wisely advises, "Once the site
has been designated, stick to  it.  If you shift a quarter  of  a mile,
you will shift sites forever."
    Various groups, including conservationists, land developers,
and sportsmen,  will be interested  in  site  location and its effect
on  the surrounding land.  For example, when a sanitary  landfill
site would destroy wetlands or marshlands which constitute a
wildlife habitat, a vigorous outcry can  be  expected.  Conversely,
working with conservation groups to dispose of  solid  wastes in
a manner consistent with good conservation  can provide a source
of  citizen support.
    The public hearing or town meeting  can be an effective vehicle
to win support.  Here the representatives of local government  must
publicly face the opposition and answer objections.  In  this situa-
tion,  public officials  must show leadership.  If a meeting  ends
without victory, the battle is not lost.  Several confrontations may
be  needed, but at each meeting an impression is made. Convincing
a few people  each time may bring success.
    One  effective  technique  is  to establish  an  Office of  Land
Acquisition with  responsibility to  purchase land  for  all public
facilities,  such as fire stations, police stations,  schools, and parks.
Advance acquisition of land, which is possible under this  system,
permits early acquisition  of undeveloped  land,  which  can be
immediately identified as landfill or incinerator sites before nearby
development preempts such  land uses.   Subsequent zoning cases
will be held in light of this knowledge and no one will  be able to
claim that a  landfill or  incinerator was rammed  into  his neigh-
borhood without  notice.
     Generally,  a land acquisition  office could purchase suitable
land  as it becomes  available,  in  advance of  scheduling in  the
capital improvement program.  If a  county is forced to wait several
years because of fund limitations, very often the most desirable
site will have been acquired  for other uses and/or costs will have
become prohibitive.  In  Baltimore County,  Maryland, such an
office was recently established and empowered to borrow up to
16

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     stimulating involvement through humor
     Kennebunkport, Maine
       A newcomer to the  town of
     Kennebunkport would have as-
     sumed a Martian invasion.  But
     it was more like a dump explo-
     sion.  All  streets were  barri-
     caded against traffic. Most of
     the  citizens  were  milling  ex-
     citedly at the main intersection
     of  town.  An  evangelist  ap-
     proached  lamenting, "Repent.
     Use Your Dump." Another be-
     draggled follower carried a sign
     reading "God Bless Our Dump."
       According  to the president of
     the Kennebunkport  Dump  As-
     sociation:
         Each year, we sponsor a
       "Miss Dumpy" contest and
       a giant trash parade as the
       climax  of the National
       Dump  Week  celebration.
       Another feature  attraction
       is a dump-art  exhibit  in
       which all  items are made
       of genuine junk.  Through-
       out the year we issue dump
       users "Trash  Stamps,"
       bumper stickers, and auto-
       mobile tags—all of abso-
lutely no value. The "Dump
Credit  Card" entitles  the
holder to visit any dump in
the country  and  is now  a
national  anti-litter instru-
ment.
  Most of us like to go reg-
ularly to  the dump to  en-
gage in  the lost  art  of
dump-viewing, even though
the  town utilizes  private
rubbish collection. By per-
sonally  delivering  expen-
sive  boxes and  wrappings
at an optimum time, that is,
when the dump  traffic  is
greatest, neighbors can sub-
tly be made  aware of your
affluence   without  undue
boastfulness  on  your part.
  Our dump, cluttered  to
maintain  a homey appear-
ance, utilizes a combination
of burning and covering. It
is designed to allow for in-
finite expansion,  in  the
shape of a pentagon.  Al-
though  we have no official
connection with  the town
  dump, now "America's
  Number One,"  we use this
  association  to  emphasize
  that  disposal  of  trash is
  vital to our society.
    Our  association  is  pri-
  marily an anti-litter group,
  and is a nonprofit corpora-
  tion under the  laws of the
  State of Maine  for the pur-
  pose of promoting interest
  in dumps. Our  hope should
  be that a society that lives
  by  its  obsolescence  may
  not perish of its own junk.
  At  the   outskirts  of  Ken-
nebunkport,  Burma-Shave-type
signs declare: NEVER, NEVER,
LITTER THE ROAD:  BRING
OUR DUMP ANOTHER LOAD.
Beneath all this tongue-in-cheek
promotion, Kennebunkport and
the State of Maine, which de-
pends  heavily on  the  tourist
trade, are making  serious  ef-
forts  to  attract  and  interest
people  in the problems  of dis-
posing of local and tourist trash.
  This  case study is presented
not to  imply that  dumps  are
good  or  a  proper disposal
method, but rather to emphasize
that it  is possible to stimulate
community  interest and enthu-
siasm in solid wastes control.
$1 million to provide funds  for the advance acquisition of land
for government purposes.
    Securing Financing. Acceptable solid  wastes management is
absolutely necessary and improvements must be financed. The
general tendency of the public when asked  to approve government
expenditures, is "when in doubt, vote no."  When the law requires
the public to  vote on capital expenditures,  a  well-coordinated,
public-support  campaign is absolutely  necessary.
    St. Louis County, Missouri, has had several bond referenda
related to solid wastes management  expenditures.  In 1963  a
$104,035,000 bond issue for 12 separate projects was put to refer-
endum and defeated.  Plans were begun  to resubmit the three most
pressing projects.  A long campaign of public education was then
completed and in May,  1965, three bond  issues for $41,500,000
were passed with the active support of a citizens committee.
    When collection or service fees must be raised, it is important
to provide careful explanation. In Fresno, California, the city went
from once-a-week collection to twice-a-week and doubled the fee
to the homeowner. Its successful information campaign based  on
public health arguments used a combination of citizens committees,
films, TV programs, and a brochure  explaining the need.
                             TRASH
                             STAMP
                            KENNEBUNKPORT
                            DUMP ASSOCIATION
                                                                                                  17

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                                    using  the  communications  media

                                    Newspapers, radio, and television publicity are effective means
                                    of stimulating  public interest.  Officials, the citizens committee,
                                    organizations supporting the program, and the local government
                                    public information officer should send news releases as often as
                                    justified.  The more publicity is coordinated the better it is (see
                                    Figure C). Weekly and daily newspapers, commercial and edu-
                                    cational television and radio stations, and community association
                                    newsletters should be used.
                                        In requesting newspaper  or media coverage of a particular
                                    event, officials  should remember that many other community proj-
                                    ects are competing for  attention and be prepared  to justify why
                                    their information is important  and  how the  project affects the
                                    majority  of the audience or readers.  Personal contact should be
                                    made with the  local government beat reporter  or city editor.
                                        Two types of media contacts are most useful.  The executive
                                    or top editorial  staff person  can plant editorial  ideas which a
                                    reporter  cannot.  In particular,  this  type of contact can provide
                                    support in the  form of  editorial page commentary  and "crusade"
                                    material. On the other hand, the well-informed reporter can orient
                                    stories properly.  It is worthwhile trying to identify  knowledgeable
                                    reporters (TV  or newspaper) who will appreciate the substance
                                    of solid wastes management stories.
                                        "It is always possible to talk to the news media, confidentially
                                    if necessary, to ask media cooperation beforehand," recommended
                                    a Genesee County, Michigan,  official.  They  should be  told the
                                    advantages and disadvantages of the choices available, costs, and
                                    sources of opposition and support;  then ask  their support.  The
                                    editor of a  large metropolitan  daily advises,  "You  can't hide a
                                    public  business; the  news  media will  uncover it. Instead, give
                                    us advance  notice  and  easily  digestible facts and information."
                                    Without  this basic data, the media may end up providing incom-
                                    plete information or overcoverage of the "anti" groups.
                                        Some of the public relations tools available to  reach people
                                    are publicity, advertising, printed materials, reports, publications,
                                    films, three-dimensional models, speakers bureaus, bumper stick-
                                    ers,  meetings, workshops,  billboards,  radio  and  television an-
                                    nouncements,  and  programs.
                                        The use of these tools is designed to reach, inform, and con-
                                    vince as  many groups as possible at a time, so  it is  useful to direct
                                    some materials to a general audience, and others to more specific
                                    audiences.  Since not all of the groups reached will have  identical
                                    opinions or hold them with the same intensity, it is important not
                                    to antagonize those people who are inclined to support the program
                                    while trying to win  the support of those who  are  opposed.
                      public service       Newspapers. Public officials should know what kind of mate-
                    announcements  rial  newspapers prefer, what their deadlines  are, how much ad-
                                    vance notice they prefer, and  what kind of coverage  they are
                                    equipped to provide.
                                         The use of the standard format for press releases is essential.
                                    The copy must be typed (double-spaced) or mimeographed, with
                                    generous margins and  at least four inches blank space at the top
                                    of the page. The page heading should be set up:
18

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    FOR IMMEDIATE RELEASE or, FOR RELEASE: TUES-
        DAY, APRIL 1, 9 a.m.
    TOPIC: Closing of City Dump
    ISSUED BY:  Citizens for Clean Air
    FOR MORE INFO CALL: Mrs.  Filter, IK  3-2000
The opening paragraphs should  cover who, what,  where,  when,
how, and why.
    Pictures for publication should have something to say. A
picture  which dramatizes a problem or shows action  is  more
interesting—and much more likely to be  published—than one of
citizens stiffly posed.
    Radio  and  TV. Announcements and press releases sent to
radio and television stations receive more  attention if they include
more information than those sent to newspapers.
    For radio news releases the heading at the top of the page   fITlTlPTlQlTf
should be as follows:                                             fir
    GOOD FOR BROADCAST FROM: April 1 thru 10
    TOPIC: "HELP  CLOSE THE DUMP"
    ISSUED BY:  Citizens for Clean Air
    FOR MORE INFORMATION CALL: Mrs. Filter, IK 3-2000
    Number of Words in the Announcement 100.
    Suggested Reading Time 30 seconds.
    For television news release and public service announcements
use the above, plus suggested picture,  for example: TO BE READ
OVER SLIDES. The  page should be set up in two  columns.  The
left indicates what is seen;  the right  what is said; for example:
         VIDEO                            AUDIO
    Slide 1 of Dump        VOICE:   DISPOSAL OF YOUR
                                    TRASH IS A CRISIS
                                    IN DIRTY COUNTY.
For routine TV announcements (not fast-breaking news), the sta-
tion probably  has a  general public service announcement slide.
Officials  should find out before  having slides made,  and check
to see whether the  station prefers  color or black  and white.
Slides for television  are the same as  ordinary home  35mm slide
film.
    Public service announcements  for both radio and  TV should
be supplied in triplicate.  Generally, short announcements should
be 10, 20, 30,  or 52  seconds in length when  read  aloud  clearly.
Releases  and slides for such spot announcements should be  sent
to the station a month ahead of time if possible. Some local solid
wastes agencies may  be able to prepare or have prepared TV  spot
announcements.  A  spot which  costs $1,000  to produce might
garner public service  free time usage worth hundreds of thousands
of dollars.
news events
    Any time  an event can be turned into news, production be-
comes the responsibility of the media,  thus avoiding the technical
problems  inherent in preparing  public  service  announcements.
    When inviting newspaper, radio, or television to cover an
event, a data sheet of facts and figures (not opinions)  should ac-
company the invitation. Radio and newspapers are more able than
television to cover fast-breaking  news.
    Many stations have  locally  produced programs concerning
community affairs. These programs may be "talk" shows, human
sources of  information on
solid wastes and methods
of  citizen support

Bureau of Solid Waste Management
Environmental Health Service
Public Health Service
5600 Fishers Lane
Rockville, Maryland 20852

National Clean-Up, Paint-Up,
  Fix-Up Bureau
1500 Rhode Island Avenue, N.W.
Washington, B.C.
League of Women Voters  of the
  United States
1200 17th Street, N.W.
Washington, B.C. 20036
National Association of  Broadcasters
1771 N Street, N.W.
Washington, B.C. 20036
Public Relations Society of
  America, Inc.
845 Third Avenue
New York, New York 10022

films
(numbers in parentheses are order numbers)
  The following films are available from
the National Audiovisual Center (Annex),
Station K, Atlanta, Georgia, 30324, unless
followed  by  another address:  The 3rd
Pollution (AM-1404);  A Day at the Dump
(M-1600-X); The Stuff We Throw Away
(M-2048-X); Sanitary Landfill: One  Part
Earth  to Four Parts  Refuse (M-1740-X);
Waste Away (M-2047-X);  Collector's Item,
International   Harvester  Company,  401
North Michigan Avenue,  Chicago, Illinois
60611; A Decent  Burial,  Advertising Di-
vision,   Caterpillar  Tractor Company,
Peoria, Illinois 61602.
                                                                                               19

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invir.n.rjntal  Protection Agency
L.ioc-ary,  Region V
1 liorth Wacker Drive
Chicago,  Illinois  60606

                      selected

              bibliography

  Anderson,  Desmond L. (ed.), Meaningful
    Public  Relations,  International  City
    Managers'  Association, 1140 Connec-
    ticut Avenue, N.W., Washington, B.C.,
    1966. Price: $9.50.
  Getting Something Done: Political Effec-
    tiveness  and Conference  Techniques,
    League of Women Voters of the United
    States, 1200 17th Street,  N.W., Wash-
    ington, D.C., 1968. Price $.30.
  Meaningful Meetings: The  Role of the
    Resource Committee, Publication Num-
    ber 319, League of Women  Voters of
    the United States, 1200  17th Street,
    N.W.,  Washington, B.C.,  1966  Price:
    $.40.
  Scandlyn,  Sammie Lynn  (ed.J, 101  Win-
    ning Ways to Better Municipal Public
    Relations,  National League  of Cities,
    1612 K Street, N.W., Washington, B.C.,
    1967. Price: $1.25.
  Tips on Reaching the Public, Publication
    Number  277,  League of Women Voters
    of the United States, 1200 17th Street,
    N.W.,  Washington, B.C.,  1967.  Price:
    $1.25.
  20
interest spots, news reports,  or  documentaries.  Officials  should
talk with the program director about the interesting aspects and
importance of solid wastes management which could be incor-
porated into one of these programs.
    Most television programs are pre-recorded.  Government of-
ficials or a  citizens  committee may know of a good film on solid
wastes management, which a local station will agree to broadcast.
The citizens committee can publicize the program and encourage
group discussion. It may be also possible to follow the film with
a discussion on TV.
    Some appropriate films are The Third Pollution, A Day at
the Dump,  A Decent Burial, Collector's Item, and Wealth of the
Wasteland.  [See the appendix for addresses.)
    The Third Pollution  is a  documentary of the status  of meth-
ods of solid wastes  disposal today. International Harvester Com-
pany  sponsored a film called Collector's Item which discusses the
Los Angeles County collection system. It is  slightly dated, but the
message still holds.  Caterpillar  Tractor Company  offers a 12a/2-
minute  color film called A Decent Burial on the proper operation
of a sanitary landfill.  The problems of waste and pollution in an
affluent society are the subject  of Wealth  of the  Wasteland,  a
26J/2-minute color film which  is  available free on short-term loan.
The Institute of Scrap Iron and  Steel has two films, The Eternal
Harvest and The Endless  Search, about the  iron and steel indus-
try's work in recycling solid wastes materials.
    Solid wastes management is so important and citizen under-
standing so inadequate, that  public officials should consider ob-
taining  professional public relations assistance  to  help improve
community identity and especially to help  on campaigns for  site
approval, bond issue approval, and other controversial questions.
The local government public information officer can provide  con-
tinuing citizen and media information, but he will sometimes need
outside specialized  public relations assistance.
                                            summary
A sound public information program  is an essential aspect of
solid wastes management.  Public support is especially necessary
to implement a new solid wastes  management system or to modify
substantially an existing system.  The strategy of a citizen support
campaign should be formulated early in the  planning stages.
    Local government should establish a record of accomplish-
ment in solid wastes management. In the time it takes to complete
a detailed  comprehensive  solid  wastes management plan, local
government can involve organizations and private industry in solid
wastes  management through community improvements  such as
illicit  dump cleanup, litter control, improved solid wastes storage,
and abandoned automobile removal.
    Local government and the  citizens committee should use as
many  public information  tools  as possible to inform citizens.
Among them are meetings at which slides  and films  are  shown;
creation of events  such as "go-see" trips; personal contact by
telephone and door-to-door canvass, speakers bureau, brochures,
and flyers;  radio, television, newspaper, and newsletter coverage
and announcements; and communications media endorsement.
    Local government should make full use of a public informa-
tion officer, if it has one; volunteers  with experience  in public
relations; and possibly professional public relations  services.

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