HomeMy Public PortalAboutSecond Reading of the Single-Use Foodware Reduction Ordinance (2022-09)
Date: November 8, 2022
Honorable Mayor and Council Members:
Author and title: Melanie Conti, Administrative Analyst I
Title: Second Reading of the Single-Use Foodware Reduction Ordinance (2022-09)
Approved By: Jen Callaway, Town Manager
Recommended Action:
(1) Waive the second reading of Ordinance 2022-09 adopting Chapter 6.04 of the Town of Truckee
Municipal Code regarding Foodware and Food Packaging.
(2) Find the adoption of the ordinance exempt from CEQA pursuant to CEQA guidelines sections
15061(b)(3), 15307 and 15308.
Discussion:
I. Background
In 2018, Town Council directed staff to explore solutions for litter and waste in our community, after
students and environmental advocates showed strong support for waste reduction policies, such as a
straw ban and an expanded polystyrene ban. At that time, staff began conducting outreach and research
on strategies to effectively reduce waste in Truckee. Two community workshops were held in August and
October of 2019, and staff presented policy recommendations to Town Council in February 2020, where
Council directed staff to develop a working group to evaluate the policies. Due to the Covid pandemic
and local stakeholders’ inability to engage, development of the working group was paused until January
2022. From January through June 2022, stakeholders including business representatives, environmental
advocates, students, members of the public, and two Town Council representatives, met six times to
determine the details of the single-use foodware ordinance, including exemptions, grant programs, and
implementation strategies to suit our community. The working group developed policy recommendations
and staff did outreach to the community in July 2022 to get feedback on the recommendations.
Community surveys were conducted, with over 400 responses from members of the public and 65 from
businesses. Staff brought these results and recommendations to Town Council in August 2022, where
Council approved the policy recommendations. (See Attachment 1: August 9, 2022 staff report). A first
reading of the ordinance occurred on October 25, 2022. (See Attachment 2: October 25, 2022 staff
report).
According to the 2014 CalRecycle waste characterization study, food and beverage packaging makes up
25% of all waste produced in California and an estimated 67% of street litter according to Clean Water
Fund. A local analysis of litter collected from Truckee Litter Corps estimated that 68% of roadside litter in
Truckee is foodware packaging. These products end up in our local waterways and natural environments,
harming wildlife and creating clean-up and end-of-life management costs. Even when properly disposed,
these products take up space in our landfills and can emit greenhouse gases when they decompose. In
addition, disposable foodware has embedded carbon emissions from the resource extraction, production,
and transportation required to produce each product that is only used one time.
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The objective of this ordinance is to reduce the use of all single-use foodware products and foster a
cultural shift towards reusables. When considering waste reduction strategies, staff and the working
group focused on reducing lifecycle impacts, which considers production, transportation, and disposal of
foodware products. When considering cradle to grave impacts of a product, no one disposable foodware
product material type (bioplastic, fiber-based, plastic, aluminum, etc.) has a significantly lower GHG
impact. Meanwhile, reusable foodware products have a significantly lower GHG impact than all
disposables due to their lower upstream impacts per use. Although recyclable and compostable products
may seem like viable alternatives, these products are still single-use and have significant lifecycle GHG
impacts and often still end up in a landfill. The policies in this ordinance push our community towards
self-reliance and source reduction, the most preferred practice of waste treatment methods.
Expanded polystyrene products are also of particular concern because they are lightweight and can
easily be blown by the wind, polluting the environment and waterways. These products can also easily
break down into smaller pieces, making them very difficult to recover as litter.
The working group also drove to ensure that the policies are applied equitably. Each proposed policy
includes business assistance to provide funding and technical assistance for businesses to help achieve
compliance. A grant program will support businesses to transition away from expanded polystyrene
products and purchase reusable foodware and dishwashing equipment. Impacts on low-income
customers were also taken into account when considering a fee for disposable takeout cups and drinks,
given that limited-service restaurants tend to provide more single-use products and offer less expensive
meal options. For this reason, exemptions from the fee are included for customers with low-income.
Ordinance requirements include: (1) a ban on expanded polystyrene, effective April 1, 2023; (2) a
requirement for restaurants to provide reusable foodware for in-house dining; and (3) a $0.25 customer
fee on disposable takeout containers and cups provided.
Truckee is the first jurisdiction to implement a fee on disposable takeout containers. Eight other
jurisdictions across the US have imposed a fee for disposable takeout cups, and the City of Arcata has
imposed a fee on takeout orders that include disposable foodware, including disposable cups and takeout
containers. Truckee is the first city to require a $0.25 fee on each disposable takeout cups and
disposable takeout containers. This is a groundbreaking feat, consistent with Town Council’s goals to
be leaders in environmental sustainability. The goal of the customer fee is to incentivize customers to
bring their own reusable to avoid the $0.25 charge, consistent with research that indicates a fee is more
impactful to change customer behavior than a discount.
II. Environmental Clearance
Pursuant to California Environmental Quality Act (CEQA) Guidelines Section 15061(b)(3), the adoption
of this ordinance does not have potential for causing a significant effect on the environment and is
therefore not subject to the CEQA Guidelines. The ordinance serves to establish requirements to reduce
the production and disposal of disposable foodware products and will not result in any construction or
any other physical change to the environment. The adoption of this ordinance rather protects natural
resources and the environment. Therefore, this ordinance is further exempt from CEQA Guidelines
Sections 15307 and 15308, which exempt actions taken by regulatory agencies to assure the
maintenance, restoration, or enhancement of a natural resource.
III. Next Steps and Implementation
Implementation will require a large amount of outreach and education to the business community and
members of the public. Staff will present the second reading of the ordinance to Town Council in
November 2022. If adopted by Town Council in November, staff anticipate the following next steps:
November 8, 2022 Second reading and adoption of the ordinance
November 2022 Release RFP for consultant to support outreach and
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implementation for foodware restrictions effective
January 1, 2024
November-December Complete public outreach and education campaign
plan for expanded polystyrene restrictions and develop Town
assistance grant programs (completed by Town staff)
December 13, 2022 Bring grant program guidelines to Town Council for approval
January – March Conduct outreach and education related to expanded polystyrene
to restaurants & retail stores (conducted by Town staff)
April 1, 2023 Expanded polystyrene restrictions take effect
April-December 2023 Conduct outreach and education related to reusables for in-
house dining, charge for disposable takeout container and cups,
and single-use accessories (conducted by Town staff with
consultant support)
January 1, 2024 Reusables for in-house dining, charge for disposable takeout
containers and cups, and single-use accessories take effect
2024 and beyond Continue to provide technical assistance and monitor compliance
Staff plans to segment outreach for restrictions effective in April 2023 and January 2024. Given the tight
turnaround and limited outreach required prior to expanded polystyrene restrictions taking effect in April,
staff plans to conduct outreach related to expanded polystyrene restrictions with in-house staffing
capacity and assistance from contracted graphic and design consultants. Town staff are aware of which
retail stores and restaurants are using expanded polystyrene and staff have the capacity to educate those
28 businesses. Staff will contact each retail store and restaurant in the Town, and will utilize targeted
outreach, including in-person contact with those using EPS products. Staff will also make businesses
that will also be affected by the January 2024 restrictions aware of upcoming communication.
Town staff plans to seek consultant support for outreach and education for restrictions effective January
2024. These restrictions will impact 85 businesses and require technical assistance, including potential
grant funding for businesses, and one-on-one support with each business owner. Staff will release an
RFP for a consultant to support this effort.
Outreach and education will include communication with local partners, including the Truckee Chamber,
Truckee Downtown Merchants Association, and Visit Truckee-Tahoe. Approaches to contact affected
businesses will include door-to-door communication, phone calls, and e-blasts. Public outreach methods
will include business counter-top and window signs, e-blasts, social media, traditional media (radio,
newspapers, CCTV), public events tabling, disseminating information at community events, and through
the school district.
Priority:
Enhanced Communication x Climate and Greenhouse Gas Reduction Housing
Infrastructure Investment Emergency and Wildfire Preparedness Core Service
Fiscal Impact: Implementation of new a new single-use foodware ordinance will require significant staff
time for business technical support and community outreach, as well as funding for business assistance
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grants and outreach materials. The Adopted FY22/23 CIP budget C2309 includes $50,000 to support
implementation of these policies, comprised of $40,000 for business grants and $10,000 for outreach
and education. Staff anticipate that this approved budget is sufficient for program implementation.
Public Communication:
Community & business workshops
Working group agenda postings and six public meetings
Social media survey outreach, including video
Talk from the Town Newsletter
Eblasts for business surveys (from Keep Truckee Green, Truckee Chamber, and TDMA)
Business surveys conducted by phone
Agenda Posting
Attachments:
1. October 25, 2022 Staff Report available at:
https://portal.laserfiche.com/Portal/DocView.aspx?id=59629735&repo=r-6a91ddbc
2. August 9, 2022 Staff Report available at:
https://portal.laserfiche.com/Portal/DocView.aspx?id=59587168&repo=r-6a91ddbc
3. Ordinance 2022-09
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TOWN OF TRUCKEE
California
ORDINANCE 2022-09
AN ORDINANCE OF THE TOWN COUNCIL OF THE TOWN OF TRUCKEE
ADOPTING CHAPTER 6.04 OF THE TRUCKEE MUNICIPAL CODE
REGARDING FOODWARE AND FOOD PACKAGING
WHEREAS, the Town of Truckee has the police power to protect the health, safety, and
welfare of the community, including the ability to protect and enhance the natural environment;
and
WHEREAS, Truckee’s plastic bag ban enacted in 2014 was the Town’s first waste
reduction policy exemplifying a history of environmental stewardship; and
WHEREAS, Town of Truckee 2021-2023 Town Council priorities include “Reduce
greenhouse gas emissions and become a leader in environmental sustainability”; and
WHEREAS, the production and disposal of single-use foodware has major environmental
impacts, including street litter, water pollution, wildlife harm, depletion of resources, greenhouse
gas emissions, and clean-up and end of life management costs; and
WHEREAS, food and beverage packaging comprise approximately one quarter of
California’s disposed waste stream annually, according to CalRecycle, and an estimated 67% of
street litter, according to the Clean Water Fund; and
WHEREAS, expanded polystyrene products are of distinctive concern because they can
break into small pieces and may easily be picked up by the wind even when they have been
disposed of properly, making it extremely difficult to recover as litter, polluting the environment
and waterways; and
WHEREAS, regulating the use of disposable foodware products will minimize greenhouse
gas emissions from production, transportation, and packaging of those disposable products,
maximize the operating life of landfills, and reduce impacts to the environment and wildlife; and
WHEREAS, reusable foodware products are more environmentally sound because their
multiple uses reduce the upstream impacts per item, and can save businesses money; and
WHEREAS, single-use foodware accessories, including napkins, straws, condiments,
forks, spoons, sporks, knives and other disposable flatware create waste and environmental
hazards, and California Public Resources Code Section 42270 et seq. requires that such
accessory items shall only be made available upon request;
The Town Council of the Town of Truckee Does Ordain as Follows:
Section 1. Incorporation of Recitals. The recitals set forth above are true and correct and
are incorporated herein by reference as findings adopted by the Town Council in connection
with the adoption of this ordinance.
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Ordinance 2022-09
Page 2
Section 2. Adoption of Chapter 6.04. A new Chapter 6.04 of the Truckee Municipal
Code, entitled “Foodware and Food Packaging”, is hereby adopted to read as set forth in
Exhibit “A”, attached hereto and incorporated herein by reference.
Section 3. CEQA. The Town Council hereby finds that under Section 15061(b)(3) of
the California Environmental Quality Act (“CEQA”) Guidelines, the adoption of thi s
ordinance is exempt from review under CEQA because it can be seen with certainty that
the provisions of this ordinance do not have the potential for causing a significant effect
on the environment. The Town Council further finds that the adoption of thi s ordinance
is additionally exempt from review under CEQA pursuant to CEQA Guidelines Sections
15307 and 15308, as an action taken by a regulatory agency to protect natural resources
and the environment.
Section 4. Severability. If any section, subsection, subdivision, paragraph, sentence,
clause or phrase of this Ordinance or any part thereof is for any reason held to be
unconstitutional or invalid or ineffective by any court of competent jurisdiction, such
decision shall not affect the validity or effectiveness of the remaining portions of this
Ordinance or any part thereof. The Town Council of the Town of Truckee hereby declares
that it would have passed each section, subsection, subdivision, paragraph, sentence,
clause or phrase thereof irrespective of the fact that any one or more sections,
subsections, subdivisions, paragraphs, sentences, clauses or phrases be declared
unconstitutional or invalid or ineffective.
Section 5. Effective Date. This ordinance shall be published pursuant to law and shall
become effective 30 days from the date of passage and adoption.
Section 6. Posting and Publication. The Town Clerk is hereby directed to publish this
ordinance in accordance with the law.
* * * * *
The foregoing ordinance was introduced at a regular meeting of the Truckee Town
Council held on the ___day of _______ 2022, and adopted at a regular meeting of the
Truckee Town Council, on the ___ day of _____; 2022; _________ moved for the adoption,
the motion was seconded by ___________ and was carried by the following vote:
AYES:
NOES:
ABSENT:
__________________________
Courtney Henderson, Mayor
ATTEST: APPROVED AS TO FORM:
___________________________ __________________________
Judy Price, MMC, Town Clerk Andrew Morris, Town Attorney
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Ordinance 2022-09
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EXHIBIT “A”
CHAPTER 6.04
CHAPTER 6.04 FOODWARE AND FOOD PACKAGING
6.04.010 - PURPOSES
The Council of the Town of Truckee finds and declares as follows:
A. The production and disposal of disposable food and beverage packaging has
significant environmental impacts, including the contamination of the
environment, the depletion of natural resources, use of non -renewable fossil
fuels, and greenhouse gas emissions.
B. Food and beverage packaging makes up 25% of all waste produced in California
and comprises the majority of street litter.
C. Disposable expanded polystyrene products and packaging are a distinctive
concern because this type of litter is lightweight and can easily break down and
spread into the natural environment.
D. It is in the interest of the health, safety, and welfare of all who live, work, and
recreate in the Town of Truckee that the amount of litter on public streets, parks,
outdoor recreation areas, and other public spaces be reduced.
E. Most disposable foodware is not recyclable after use because it becomes
contaminated with food and grease.
F. Many types of disposable foodware are not accepted in commercial compost
facilities because they cause contamination and lower the quality and value of
compost.
G. Eliminating solid waste and litter at its source meets the Town of Truckee’s Draft
2040 Climate Action Plan goal to “Minimize embedded carbon emissions and
reduce overall consumption.”
H. Reducing disposable packaging by eliminating unnecessary items and
transitioning to reusable products provides greater environmental benefits than
managing the products that become waste, even when recycled or composted.
6.04.020 – DEFINITIONS
As used in this chapter, the terms set forth below shall have the following meanings:
“Disposable takeout container” means a container meant to package and store food
from a restaurant or other prepared food vendor, which is designed for a single use
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rather than designed and manufactured to be washed and sanitized and to be used
repeatedly over an extended period of time, including without limitation any container,
bowl, plate, tray, carton, or box provided to the customer which does not meet the
definition of “reusable foodware” set forth herein.
"Disposable cup" means a beverage cup designed for single use to serve beverages,
such as water, cold drinks, hot drinks and alcoholic beverages provided to the customer
which does not meet the definition of “reusable foodware” set forth herein.
“Expanded polystyrene” means blown polystyrene and expanded and extruded foams
(including without limitation the form of expanded polystyrene insulation which is known
as ‘Styrofoam’, a trademark of Dow Chemical Co.) which are thermoplastic
petrochemical materials utilizing a styrene monomer and processed by various
techniques, including without limitation fusion of polymer spheres (expandable bead
polystyrene), injection molding, foam molding, and extrusion blow moldin g (extruded
foam polystyrene). Expanded polystyrene does not include clear or solid polystyrene
(oriented polystyrene).
“Pre-packaged food” means food that arrives at the premises of the restaurant or other
food vendor in a container or wrapper and is not removed from the container or wrapper
before its sale or distribution.
"Prepared Food" means foods or beverages which are prepared on the vendor’s
premises by cooking, chopping, slicing, mixing, freezing, squeezing, or other processing
and which require no further preparation to be consumed. Prepared Food does not
include raw uncooked whole fruits or vegetables which are not chopped, squeezed, or
mixed, or raw uncooked meat products.
"Prepared Food Vendor" means any establishment located within the Town of Truckee,
including a bakery, cafeteria, drive in, food products store, food service establishment
(carry out, quick service, full service), drugstore, theater, bar and other similar
establishment, selling prepared food to be consumed on and/or off its premises.
“Reusable foodware” means all foodware, including plates, bowls, cups, trays, glasses,
straws, stirrers, condiment cups and utensils, that is manufactured of durable materials
and that is specifically designed and manufactured to be washed and sanitized and to
be used repeatedly over an extended period of time, and is safe for washing and
sanitizing according to applicable regulations.
“Single-use foodware accessory” means single-use items provided along with ready-to-
eat food, including without limitation napkins, forks, knives, spoons, sporks, chopsticks,
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condiment cups and packets, straws, stirrers, splash sticks, cocktail sticks, cup sleeves,
and cup lids.
“Standard condiment” means relishes, spices, sauces, confections, or seasonings that
require no additional preparation and that are usually used on a food item after
preparation, including ketchup, mustard, mayonnaise, soy sauce, hot sauce, salsa, s alt,
pepper, sugar, and sugar substitutes.
6.04.030 – PROHIBITED FOOD PACKAGING AND CONTAINERS
A. Effective April 1, 2023, except as set forth herein, no restaurant, retail store, food
vendor, or other business or person shall sell, distribute, or provide to customers
expanded polystyrene, including without limitation by selling food which is packaged
partially or entirely in expanded polystyrene, nor shall any business purchase, obtain,
keep, or otherwise use in its business any expanded polystyrene produc t.
B. The prohibition set forth in subsection A of this section shall not apply to: (i)
expanded polystyrene products which are wholly encapsulated or encased within a
more durable material, such as coolers or ice chests which encase expanded
polystyrene in rigid plastic; or (ii) the sale of food packaged outside Truckee, provided
that this exception shall not apply to egg cartons and trays for meat, fish, and fruit or
vegetables sold in grocery stores.
C. For a period of one year from the effective date of this section, a restaurant, retail
store, food vendor, or other business or person may apply to the Town of Truckee for a
one-year hardship exemption to be permitted to continue using one or more specific
expanded polystyrene items for which the requirements of this section present an undue
hardship or practical difficulty because there are no available non-polystyrene
alternatives or such alternatives are not affordable to the restaurant, retail store, food
vendor, or other business or person.
6.04.040 – REUSABLE FOODWARE FOR ON-PREMISES DINING
A. Effective January 1, 2024, except as set forth herein, prepared food served for
consumption on the premises of a prepared food vendor shall only be served using
reusable foodware.
B. The requirement of subsection A of this section shall not apply to disposable
paper food wrappers; aluminum foil food wrappers; paper napkins; straws; paper tray or
plate liners; non-plastic stirrers, cocktail sticks, and toothpicks; or pre-packaged food
packaged outside the premises of the prepared food vendor.
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C. The requirements of subsection A of this section shall not apply to Mobile Food
Facilities or Temporary Food Facilities as defined by CA Health and Safety Code
Sections 113831 and 113930 and as amended.
D. A restaurant or other food vendor may apply to the Town of Truckee for a one -
year hardship exemption to be permitted to continue using foodware which is not
reusable foodware. Each application for a hardship exemption shall provide evidence of
the conditions which make it impossible for the restaurant or other food vendor to
comply with the reusable foodware requirement, such as insurmountable space
constraints, undue financial hardship and/or other extraordinary, insurmountable
circumstances.
E. Prior to the Town of Truckee issuing a land use permit or building permit for new
construction or conversions, any restaurant or other prepared food vendor shall submit
to the Town a plan demonstrating ability to comply with this section. Installation and/or
maintenance of appropriate dishwashing capacity to allow compliance with this section
shall be included as a specific condition of approval for such permits.
6.04.050 – CHARGE FOR DISPOSABLE TAKEOUT CONTAINERS AND CUPS
A. Effective January 1, 2024, except as set forth herein, all restaurants or other
prepared food vendors shall charge customers twenty-five cents ($0.25) for each
disposable cup and disposable takeout container provided. All income from this charge
shall be retained by the restaurant or other prepared food vendor collecting the charge.
Such charges shall be identified separately and clearly on any receipt provided to the
customer, and shall be identified for customers on menus, ordering platforms, and/or
menu boards, and verbally disclosed to customers ordering by phone.
B. The charge set forth in subsection A of this section shall not apply to pizza boxes
and shall not apply to containers for leftover food provided to customers following the
purchase of food for dining on the premises of the restaurant or other prepared food
vendor.
C. The requirements of subsection A of this section shall not apply to Mobile Food
Facilities or Temporary Food Facilities as defined by CA Health and Safety Code
Sections 113831 and 113930 and as amended.
D. The charge set forth in subsection A shall not be imposed on customers
demonstrating, at the point of sale: (i) a payment card or voucher issued by the
California Special Supplemental Food Program for Women, Infants, and Children (WIC)
pursuant to Article 2 (commencing with Section 123275) of Chapter 1 of Part 2 of
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Division 106 of the California Health and Safety Code and as amended; (ii) an electronic
benefit transfer card (EBT) issued pursuant to Section 10072 of the California Welfare
and Institutions Code, as amended; or (iii) a card reflecting enrollment in Medi-Cal,
pursuant to Chapter 7 (commencing with Section 14000) of Part 3 of Division 9 of the
California Welfare and Institutions Code, as amended.
6.04.060 – REUSABLE CUSTOMER FOODWARE
Customers may provide their own reusable foodware for beverage and food service in
accordance with the California Health and Safety Code. Food Vendors shall keep all
customer provided reusable foodware separated from the food facility’s foodware to
prevent any cross-contamination. Food Vendor staff filling customer provided foodware
shall prevent cross-contamination of food contact surfaces or utensils used for food
dispensing (e.g. customer foodware should be placed upon surfaces that are not used
for food preparation and on surfaces that can be sanitized immediately). Food vendors
may refuse, at their sole discretion, any customer-provided reusable foodware that is
cracked, chipped or corroded, appears inappropriate in size, material, or condition for
the intended beverage or food item, or that appears to be excessively soiled or
unsanitary. If the customer provided reusable foodware is rejected, the food vendor may
instead require use of reusable foodware for consumption on the premises of the food
service establishment, or use of a disposable foodware item for a beverage or food item
to be consumed off the premises of the food service establishment, together with the
charge required pursuant to Section 6.04.050.
6.04.070 – SINGLE-USE FOODWARE ACCESSORIES
A. Effective January 1, 2024 except as set forth herein, a restaurant or other food
vendor, shall not provide any single-use foodware accessory or standard condiment
packaged for single use to a customer unless the single-use foodware accessory or
standard condiment is requested by the customer.
B. Single-use foodware accessories and standard condiments packaged for single
use provided by restaurants or other food vendors for use by customers shall not be
bundled or packaged in a manner that prevents a customer from taking only the type of
single-use foodware accessory or standard condiment desired without also having to
take a different type of single-use foodware accessory or standard condiment.
C. A restaurant or other food vendor may ask a drive-through consumer if the
consumer wants a single-use foodware accessory if the single-use foodware accessory
is necessary for the customer to consume ready-to-eat food, or to prevent spills of or
safely transport ready-to-eat food.
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D. A third-party food delivery platform shall provide customers with the option to
request single-use foodware accessories or standard condiments from a restaurant or
other food vendor serving ready-to-eat food.
E. If a restaurant or other food vendor uses any third-party delivery platform for
ready-to-eat food, the restaurant or other food vendor shall customize its menu with a
list of available single-use foodware accessories and standard condiments, and only
those single-use foodware accessories or standard condiments selected by the
customer shall be provided by the food facility. If a customer does not select any single-
use foodware accessories or standard condiments, no single -use foodware accessory
or standard condiment shall be provided by the restaurant or other food vendor for
delivery of ready-to-eat food.
F. Nothing in this section shall prohibit a restaurant or other food vendor from
making unwrapped single-use foodware accessories available to a customer using
refillable self-service dispensers that dispense one item at a time to allow for single -use
foodware accessories to be obtained.
G. Nothing in this section shall prohibit a food facility from making standard
condiments available to a consumer using refillable self-service dispensers to allow for
standard condiments to be obtained. A food facility that offers standard condiments is
encouraged to use bulk dispensers for the condiments rather than condiments
packaged for single use.
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