HomeMy WebLinkAbout1982-04-20; City Council; 6973; Revised Regional Solid Waste Management PlanI
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CITAOF CARLSBAD — AGENDBILL
AB# TITLE ; APPROVAL OF REVISED REGIONAL SOLID WASTE DEPT. HD..L/--44--
UTG. 4/20/82 MANAGEMENT PLAN. CITY ATTY V
DEPT. MNT CITY MGR.
RECOMMENDED ACTION:
Council approve Revised Regional Solid Waste Management Plan.
ITEM EXPLANATION:
State law requires that County Solid Waste Management Plans "be reviewed and
revised, if appropriate, at least every three years, and revised where necessary to
be consistent with state policy". It is also required that the plan be approved by
a majority of the cities within the county.
The plan revision process was accomplished by the Technical Advisory Committee of
the County Solid Waste Management Division. The Assistant City Manager/Maintenance
Operations was a member.
The Solid Waste Management Plan covers all phases and kinds of waste material
collection; i.e., recoverable resoures, special wastes (autos, tires, oil),
hazardous waste and litter, high technology resource recovery (Sander project).
The Council has received a copy of the plan -- staff will attempt to provide ansv,Irs
' to Council questions.
Vc The county staff is asking for adoption of the plan by the Board of Supervisors on
May 25, 1982.
o FISCAL IMPACT:
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o None.
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D EXHIBITS:
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San Diego Regional Solid Waste Management Plan, 1982-2000 (previously distributed to
ix Council, Manager and City Attorney).
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w0 COUNTY OF SA.N MEGO
0C.0 goo DEPARTMENT OF PUBLIC: WORKS
BUILDING 2 5555 OVERLAND AVENUE BOARD OF SUPERVISORS
R. J. MASSMAN, Director SAN DIEGO, CALIFORNIA 92123
Offices E TELEPHONE: (714) 565.5177 r] /1 TOM HAMILTON
j J 4 First District
� County Engineer S
,n PAUL W. FORDEM
County Road Commissioner 4 Second District
County Surveyor f/� 4lp++ r ROGER HEDGECOCK
County Airports
1 �1 Third District
JIM BATES
Flood Control cry Fourth District
Liquid Waste April 2, 1982 N ",Is
a ��� c��,�
�y � 3 7 PAUL ECKERT
Solid Waste
y, Fifth District
# Transportation Operations
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i TO: Frank Aleshir&, City Manager
( City of Carlsbad
FROM: R. J. Massman, Director
Department of Public Works
SUBJECT: Final Draft Revised Regional Solid Waste Management Plan 1982-2000
State law (Government Code § 66780.5(b)) requires that County solid waste
management plans, "Be reviewed, and revised, if appropriate, at least every
three years, and revised where necessary to be consistent with State policy,
A report of the results of the plan review shall be submitted to the Board...
on the third anniversary of the date of Board approval of the Plan",
Additionally, § 66780 requires that the plan be approved by a majority of the
cities within the County which contain a majority of the population of the
unincorporated area of the County.
The Plan revision process was accomplished with the assistance of the
Technical Advisory Committee, including Bill Baldwin of your staff.
A summary of the contents of the Chapters of the Plan is attached,
The Plan schedule calls for docketing the Plan on May 17, 1982, for hearing
by the Board of Supervisors on May 25, 1982.
In order to be able to attend adoption hearing for all 16 City Council
meetings, it is necessary that we :schedule hearing by your City Council for
April 20, 1982.
As we have discussed, 10 copies of the plan are being forwarded.
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If you have any questions or are in need of assistance in preparing the staff
report, please call Sharon Reid at 565-3987.
Very truly yours,
rJMASSMAN, Director
ment of Public Works
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RJM:SJR:JMQ:sn
cc: Bill Baldwin, Asst. City Manager
Operation and Maintenance
Attachments
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SUMMARY
Overview of the Study Area - Chapter I
To develop an effective and comprehensive plan for the management of solid
wastes in the County, it was essential to identify those characteristics
which influence regional solid waste generation and disposal patterns. This
Chapter provides an introduction to the geographic, geopolitical and demo-
graphic makeup of the County.
Few major changes took place during this interim. Three cities were incor-
porated; the 1980 census established a population increase of 10% over that
projected, thus accounting for the 8% increase in the amount of trash buried
over 1977 projections.
Significant changes in the amount of rainfall were experienced, thus lending
meteorologists to predict a shift to "wet years." There were also major
changes in air pollution control standards. The former is important because
of the potential impact to groundwater by landfill operations; the latter
impacts resource recovery projects.
Storage and Collection - Chapter II
On a day-to-day basis, storage and collection are the solid waste management
functions which most immediately and directly affect the lives of the
region's residents. This Chapter describes and evaluates waste storage and
collection practices in the coastal region - which is the densely populated
western one third of San Diego Count Collection service throughout the
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jCounty appears to be satisfactory.
Waste Generation and Disposal - Chapter III
This Chapter identifies waste generation and disposal in the County. A fore-
cast of solid waste volumes to the year 2000 is included as well as a review
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of existing solid waste disposal facilities and their anticipated capaci-
ties.
The information in this Chapter builds on the Solid Waste Allocation Matrix
I, developed in the initial solid waste planning process.
Recoverable Resources - Chapter IV
Consumer discards which still have commercial value provide the feedstock for
a major industry in San Diego County. Secondary materials salvage activates
are basically a profit -motivated industry but they are also a practical
approach to the conservation of natural resources and energy.
The recyclable materials discussed in this Chapter are those which are con-
sidered to have the greatest potential for reuse. These include metals,
paper, textiles, plastics and glass. They are typically recovered at the
source or at intermediate transfer centers.
This Chapter differs from the following in that it focuses on smaller scale,
labor intensive, less technical techniques.
Resource Recovery - Chapter V
This chapter discusses the other spectrum of resource recovery - the large scale,
higher technology facilities which convert part of the solid waste stream into
energy.
Three projects are discussed;
° The 200 ton per day E1 Cajon Resource Recovery Demonstration Facility
° The Palomar Transfer Station
° The 1200 ton per day San Diego Energy Recovery (SANDER) Project
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Interior Zone Management - Chapter VI
The solid waste management systems of San Diego County have been divided into
urban and interior regions. This Chapter is concerned with solid waste man-
agement in the interior region.
While encompassing about 65 percent of the County's land area, the interior
region has less than three percent of the population. Because of the sparce
population, area residents rely almost wholly upon County agencies for
services. Solid waste services presently consist of ten rural container
facilities and one small volume landfill.
The rural container sites are actually storage facilities. Under contract
with private handlers, these wastes are transported to County landfills.
Between 1976 and 1980, contract costs rose dramatically. In part, this
escalation reflected the closure of the Descanso landfill which serviced the
higher volume South portion of the Interior Zone. This added 26 miles to the
transportation costs for the solid waste generated in this region.
Funding alternatives for this region are also discussed.
Special Wastes - Chapter VII
Special wastes include automobile hulks, agricultural wastes, bulky items,
dead animals, sewage sludge, street sweepings and tires. Individually, none
of these waste categories present major problems in solid waste management at
the present time. Collectively, however, problems of substantial dimensions
could quickly arise if established disposal procedures are not followed.
Current quantities and disposal practices are reviewed. Resource recovery
opportunites are also discussed.
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6.
Hazardous Wastes - Chapter VIII
Recent State legislation has modified review and approval procedures for the
hazardous waste element of county solid waste management plans. The State
Department of Health Services has been designated as the review agency for
this elenant of the Plan and has issued guidelines accordingly.
This Chapter discusses the impact of RCRA, the Resource Conservation and
Recovery Act of 1976, on hazardous waste management practices, including the
closure of the only Class I landfill in San Diego County.
A review of major legislative proposals, especially a siting study conducted
by the State Department of Health Services, is provided. The Emergency
Response Plan is also included for ease of reference.
Litter - Chapter IX
Litter is a special problem in solid waste management. It is trash which has
been carelessly discarded or accidentally scattered in places where it may be
visually offensive, ecologically harmful or hazardous to health and safety.
Of great assistance to local agencies in combating the growing litter problem
was the Litter Control, Recycling and Resource Recovery Act of 1980. This
legislation provided "pass -through" funding to cities and the County for
various litter clean-up and enforcement programs. Unfortunately, the program
was eliminated by the Legislature during 1981.
Financing and Organizational Development - Chapter X
This section of the Plan summarizes solid waste responsibilities and
financing practices within the San Diego region. It also includes alterna-
tive organizational and financing models which could be used to meet the
region's solid waste needs.
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Because of recent developments in State legislation limiting the financing
capabilities of local government, no signficiant changes in the solid waste
organization are anticipated.
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The exception to this is the SANDER Project, a joint powers agreement between
the City and County of San Diego. It is considering a public -private mix for
ownership and operation of this large resource recovery facility.
f Contingency Planning - Chapter XI
In order to protect the public health and preserve the environment, it is
` essential that solid waste services not be interrupted. If waste removal is
not done on a regular and timely basis, refuse accumulates and will become a
} potential health hazard. If disposal operations are interrupted, haulers are
unable to discharge their loads and collection services must be suspended.
This Chapter reviews contingency planning for both labor related stoppages
and natural disasters.
Local Enforcement Agencies,- Chapter XII
During development of the Plan, legislation was enacted requiring designation
of Local Enforcement Agencies (LEAS) for health and non -health related solid
waste matters.
The State Solid Waste Management Board has required designated LEAS to
develop enforcement programs and to submit them to the State for review. The
State also requires that these LEA Programs be included in this Plan.
In San Diego County, most agencies designated themselves for non -health
related matters. The County Department of Health Services was designated by
all agencies but one for health related matters.
The State is the designated LEA for both non -health and health related
matters for the City of San Diego.
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MAJOR CONCLUSIONS
Collection and Current practices are satisfactory. The combination of
`'torage: public and private service providers has resulted in an
efficient and effective collection system.
Disposal: Adequate disposal facilities exist for current solid waste
volumes. However, long range planning, acquisition and
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completed fill maintenance have been inadequately con-
sidered.
Recoverable Current levels of recycling must be increased. Public
Resources: access to recycling centers, information and education
programs and new markets for recovered materials must be
encouraged.
Resource The SANDER Project is a vital component of a solid waste
Recovery: system which does not rely solely on landfilling. Its
continued support is critical to avoid a garbage crisis by
i the end of this century.
Other recovery projects in the North and East County are
also necessary.
Interior Zone: Current efforts to decrease the cost of this transportation
system must be continued. Alternative funding mechanisms
and opportunites for resource recovery must be pursued.
Special Wastes: Handling practices for these special wastes are adequate.
f Opportunites for recycling, waste exchange and recovery
must be investigated.
Hazardous This sensitive field requires special attention. Without
Wastes: adequate tracking, this component of the waste stream can
pose a serious threat to the public health and safety.
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Adequate handling facilities, volume reduction, recycling,
waste exchanging and recovery must be provided.
The newly created Hazardous Task Force will develop a com-
prehensive management program from cradle -to -grave.
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Litter: San Diego County is an attractive tourist area. In order
to maintain its attractiveness, litter cannot be allowed to
become a problem. However, fiscal constraints on local
governments threaten existing levels of abatement and
education. The public and private industry must realize
their responsibility to avoid as well as abate this
nuisance. Expansion of "Workfare," honor camp and other
available work force programs is necessary.
Finance and Funding constraints have generally impacted general fund
Organization: revenues available for solid waste activites. User fees,
revenue from recovery activites and other sources of
funding have become increasingly more important. Long
range funding programs for resource recovery, operations,
Future facility acquisition and maintenance must be
developed and implemented.
Contingency Emergency and disaster planning contingencies must be
Planning: maintained.
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COUNTY OF SAN DEE-GO
R. J. MASSMAP:, Director
Offices of:
County Engineer
County Road Commissioner
County Surveyor
County Airports
Flood Control
Liquid Waste
Solid Waste
Transportation Operations
DEPARTMENT OF PUBLIC WORKS
BUILDING 2 55!)5 OVERLAND AVENUE
SAN DIEGO• CALIFORNIA 92122
TELEPHONE: Me) 565-5177
January 15, 1981
Terry Trumball, Chairman
State Solid Waste Management Board
1020 Ninth Street, Suite 300
Sacramento, CA 95814
SUBJECT: San Diego Regional Solid Waste Management
Dear Mr.. Trumbull,
BOAItO OF SUPERVISORS
TOM HAMILTON
First Distrmt
PAUL W. FORDEM
Second District
ROGER HEDGECOCK
Third District
JIM (SATES
Fourth District
PAUL ECKERT
Fifth District
The San Diego Regional Solid Waste Management Plan was approved by
your Board on February 23, 1978.
In accordance with State law, the San Diego County Board of Supervisors
directed staff to review the region's Plan and prepare an outline of
recommended revisions. This outline was transmitted to each of the
cities within the County for further review and input.
On December 16, 1980 (146) the Board of Supervisors directed that
the attached proposal for revision of the San Diego Regional Solid
Waste Management Plan be forwarded to your Board in keeping with
the February 23rd deadline.
The Board of Supervisors also directed the establishment of a committee
structure to assist staff in the revision and update process.
It is our hope that this matter will come before your Board at your
February 26, 1981 meeting. If you have questions or require additional
input, please contact -Sharon Reid at (714)565-39F7.
Very truly yours,
11.E. SO-lUE
Ass?s;ara C Dioctor
1 Prs
OilY1�i.reCtOT
R. J. S&'I,
Department of Public Works
Rj,\1: SJR : tea
STATE OF CAIIFORNIA 714E RESOURCES AGENCY EDMUND G. BROWN 1R.. Govornor
STATE SOLID WASTE MANAGEMENT BOARD
1020 NINTH STREET, SUITE 300
SACRA AENTO, CALIFORNIA 95314
Honorable Paul Eckert, Chairman
and Members
San Diego- County Board -of Supervisors
1600 Pacific Coast Highway, Room 335
San Diego,, -CA. 92101
Dear Supervisors:
At its -April 27-28, 1981 meeting in Sacramento, the Solid Haste Management
-Board, by Resolution, accepted the Plan Review Report submitted by the
County of San Diego and. required that the San Diego County Solid haste
Management Plan (CoS'rIi•,P) be revised, (see enclosed Agenda Item).
In determining .areas of the Plan requiring revision, the Board concurred
with the _concl us.i on the County reached in its Report concerning the
areas needing revision and identified the enforcement program, as an
additional area in need of revision.
San Diego County is required by current regulations to submit a final
draft of -this Plan revision to the Board for approval within 270 days.
'Board regulations also require that the county submit a timetable for this
Plan revision. The Board requests that this timetable be submitted
within 30- days after .the receipt of this letter.
The Board would like to coi-iwend San Diego County for its decision to
revise and for its cooperation in preparing the Report. The Board is
confident that the effort extended by the county in the revision process
will insure that the County Solid Waste Management Plan will be a viable
tool for directing the implementation of an environmentally sound,
econo�ai cal and efficient system of solid baste handling and disposal
throughout the county.
C�h
ttECEIVED
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"ecleLao r-."
. Page t ro
Honorable Paul Eckert
Please call Mr. Keith Amundson of my staff at (916) 322-6328 if you have
ally questions about the Board's action on this matter. The Board staff
stands ready to assist the county during the preparation of the revision
to San Diego County Solid Waste Management Plan.
Sincerely,
Ter f.A. 7rucbull
Cha rperson
Enclosure -
cc: Mr. John S. Burke-, Deputy Director
..San Diego County Department of Public Works
-14s. Sharon J. Paid
:San Diego County Department of Public Works
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RESOLUTION NO. 5271
A RESOLUTION OF THE CITY COUNCIL OF THE IC C I'I•Y OF
r-FiLU.SBAD, CALIFORNIA, APPROVING THE "SAN D I EGO
REGIONAL SOLID WASTE MANAGEMENT PI.AH (1976-7.000 )"
E:xh i b i'I 5 V► '
Y'
I WHEREAS, the Nej ed I y-Z' berg-D i l l s So l i d Was -le hianagemen1 and Resource
5 Recovery Act of 1972, hereinaf•ier referred -to as the "Act," requires each
G county, in cooperi7tion with affected local jurisdictions, -to prepare a
7 comprehensive, coordinated solid waste management plan; and
$ WHEREAS, said Act also requires that such plan sha I I bo cons i ,-rent with
9 s'to•i•e policy and any appropriate regional or sub -regional solid wasto rnanap-
3.0 rnen't• plan; and
21 WHEREAS, said Act also requires tha-1 the solid waste managerl:rrt p i an
22 sht3 I I ' be subject l o f he approval by a t ra j or i fy o f -the cities within -the
I� county which contain a majority of the pope I al• i on of -the incorporated area
Wit. of -the county; and
:15 WHEREAS, the County of Sari Diego has prepared the "San Diego regional
16 Solid VIas i•e Man--kaomcn t Plan (197b•-2000 )" in conformance with •the Act and is
17 ( submitting sa1d"pIall -to the City Counci 1 of .1 he Ciiy of CarIsbod for approval;
TI•IEREFORE, ICE IT RESOLVED by the City Council of tho City of
19 Carlsbad as fol ioWS:
?0 I. That 'the above recitations ar-e true and correct.
j 21 2. That the "San D i ego Reg i ona I So I i d 1•lcrs'i a IIonago.,nen•l 1' 1 an (197G-2000 )"
j 22 1s hereby approved.
Thad the ob jcci i ves 5cit for-1 h i n i*Iio p 1 an; •the rnei'hod and organ i %a--
?� 'Pion for irnhIc:n:nn'Ia'I ion of tic program:, con'Iainod in The plan; this gcnc�laI pi
25 cedure for f i nanc: i ng the reccnrcnv�ndodY;as I a rn;rn�igenr��n i prod ram; and 'I he
?6 gorrcro I rol c 1 ac.,11 i f i ed i n The: plan for -the City (TO bc: c l a r• i f i ccf <r'1' a I a•I or
27 r da I o by !;(3ee i f i c atlI•s) ill i mp I etr:; n't i ng 'this c.acapc:rat i ve r:f f or•t for. nlan-
I t, I solid in air, et auan i ccj 1 and env i ronweni a l l y acceptable i an:nrr
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are hereby approved.
PASSED, APPROVED APED ADOPTED at a regu I ar ►nee•i• i ng of -tile City Counc i I of
tale Ci-ty of Carlsbad, California, held the 6th day of December
1977, by -tile following vote, e, -to wit:
AYES: Councilmen Frazee, Lewis, Packard and
Councilwoman Casler
NOES: None
ABSEPIT: Councilman Skotnicki ��ff
ROf3� rf C. F RAZE_E, Mayor ,�i _
.ATTEST :
hA,ARG tREI AMPIS C E •F / C I erk
(SEAT.)
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RESOLUTION NO. 6857
A RESOLUTION OF THE ^ITY COUNCIL OF THE CITY
OF CARLSBAD, CALIFORNIA, APPROVING THE "SAN
DIEGO REGIONAL SOLID WASTE MANAGEMENT PLAN
(1982-2000)"
WHEREAS, the Nejedly-Z'berg-Dills Solid Waste Management and
Resource Recovery Act of 1972, hereinafter referred to as the
"Act", requires each county, in cooperation with affected local
jurisdictions, to prepare a comprehensive, coordinated solid
waste management plan; and
WHEREAS, said Act also requires that such plan shall be ccn-
sistent with state policy and any appropriate regional or sub -
regional solid waste management plan; and
WHEREAS, said Act also requires hat the solid waste manage-
ment plan shall be subject to the approval by a majority of the
cities within the county which contain a majority of the popula-
tion of the incorporated area of the county; and
`WHEREAS, the County of San Diego has prepared the "San Diego
Regional Solid Waste Management Plan (1982-2000)" in conformance
with the Act and is submitting said plan to the City Council of
the City of Carlsbad for approval;
NOW, THEREFORE, BE IT RESOLVED by the City Council of the
City of Carlsbad as follows:
1. That the above recitations are true and correct.
2. That the "San Diego regional Solid Waste Management Plan
(1982-2000)" is hereby approved.
3. That the objectives set forth in the plan; the method
and organization for implementation of the programs contained in
the plan; the general procedure for financing the recommended
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solid waste management program; and the general role identified
in the plan for the City in implementing this cooperative effort
for management of solid waste in an economical and environmentally
acceptable manner are hereby approved.
PASSED, APPROVED AND ADOPTED at a regular meeting of the City
Council of the City of Carlsbad, California, held on the 20th day
of April, 1982, by the following vote, to wit:
AYES: Councilmembers Packard, Casler, Anear and Lewis
NOES: None
ABSENT: Councilmember Kulchin
RONALD C. PAC_KARD, Mayor
I ATTEST:
ALETHA L. RAUTENKRAN2, City C1 rk
(SEAL)
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R. J. MASSMAN, Director
Offices of:
County Engineer
County Road Commissioner
County Survoyor
County Airports
Flood Control
Liquid, Waste
Solid Waste
Transportation Operations
COUNTY OF SAN DIEGO M.G.,
DEPARTMENT OF PUBLIC WORKS
BUILDING 2 5555 OVERLAND AVENUE
SAN DIEGO, CALIFORNIA 92123 ,
TELEPHONE: (714) S65.5177
CREDITS
BOARD OF SUPERVISORS
TOM HAMILTON
First District
PAUL W. FORDEM
Socond District
ROGER HEDGECOCK
Third District
JIM BATES
Fourth District
PAUL ECKERT
Fifth District
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The following Department of Public Works team prepared this Plan:
John S. Burke Deputy County Engineer, Solid Waste Division
Sharon J. Reid Solid Waste Program Manager
Julia M. Quinn Environmental Management Specialist II
James W. Magee Senior Civil Engineer
Eric L. Swanson Assistant Civil Engineer
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The material on the SANDER Project was provided by:
Kathy Warburton Assistant Director, SANDER Project
The hazardous waste information was prepared by:
Herb Sher Occupational Health Engineer, Department of
Health Services
With valuable assistance in graphics preparation from:
Sergio Azuela Assistant Civil Engineer, Solid Waste Division
Gary K. Sword Chief, Public Works Mapping Section
John McBride Manager, General Services Cenral Printing
Special thanks go to the Department of Public Works Word Processing Staff:
Janet Pineault Senior Word Processing Operator
Donna Fisher Word Processing Operator
Sharon Nobles Word Processing Operator
/artmASSMAN, Director
ent of Public Works
t\VE IS ryC4`e
7. o COUNTY OF SAN DIEGO
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occe DEPARTMENT OF PUBLIC WORKS
BUILDING 2 5555 OVERLAND AVENUE HOARD OF SUPERVISORS
R. J. MASSMAN, Director SAN OIEGO, CALIFORNIA 921<3
Offices of; TELEPHONE: (714) 565.6177 TOM HAMiLTON
First District ,
County Enyinuer
PAUL W. FORDEM
County Road Commissioner Second District
County Surveyor ROGER HEDGECOCK
Third District j
County-Airpdrts March 1, 1982 JIM BATES }
Flood Control Fourth District
LigLid Wasto PAUL ECKERT
Fifth District ?
Solid Waste
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, Transportation Operations
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Annually Californians generate 36 million tons of trash. That's enough waste
to fill an eight lane free`day running from the Oregon border to Tijuana 10
feet deep! Approximately 2 million of those tons are generated in San Diego
County.
The San Diego Regional Solid Waste Management Plan was adopted in 1978. The
State Government Code requires that "County solid waste management plans
prepared pursuant to Section 66780 shall: (b_) Be reviewed, and revised, if
appropriate, at least every three years and revised where necessary to be
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consistent with State Policy". The attached document revises the 1978 Plan.
Trash can b-1 viewed as a waste or as a resource. The County of San Diego
considers it to be the latt.Rr. The San Diego County Regional Solid Waste
Management Plan provides an overview of how we deal with this resource.
Three: committees were formed to provide input to this Revision: (1) a Solid
Waste Plan Revision Committee, (2) a Technical Advisory Committee, and (3) an
Executive Committee. These committees have reviewed the revisions and
provided -valuable input.
A specific membership list of the Revision Committees is included in
Appendix A.
The County's 1977 solid waste management plan was a first time effort in
compliance with State and Federal requirements for solid waste management
planning. This revision builds on that work.
Since 1977, there have been numerous changes throughout the region. These
i ndl ude:
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1. Population increased over 10% and population centers shifted.
2. The cities of Lemon Grove, Poway and Santee incorporated.
3. Waste characteristics have alter'.
4. Public awareness and concern about waste management has increased.
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^� 5. Stronger e►'aphasis has been placed on recycling and resource recovery.
6. Concern over hazardous and toxic waste management has increased.
7. Increasingly, the public resists siting any kind of solid waste disposal
facility.
8. The Federal Resource Conservation and Recovery Act of 1976 (and
amendments) was enacted.
9. Increasingly, elected officials have recognized the need for more
involvement in solid waste management. Increased funding constraints
have limited the level of involvement, however.
10. Legislation encouraging generation of electricity and guaranteeing a
ready market for the power produced has been enacted.
Managing the 2 million tons of trash generated annually by San Diego County
residents is a challenging task. To accomplish this task efficiently
requires a cooperative effort among citizens, government agencies and the
private sector.
As in many fields in which much has been accomplished, there remains more to
be done.
71L'A��
/a4mmj%t
SMAN, Director
D of Public Works
TABLE OF CONTENTS
SUMMARY
CHAPTER I - OVERVIEW OF THE STUDY
Page
1
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Geographical Considerations --------------------------------------- I-1
Environmental Quality ----------------------------------------- ---- 1-1
Agencies Involved in Solid Waste Matters -------------------------- 1-2
Population Trends ------------------------------------------------- I-4
Solid Waste Characteristics --------------------------------------- 1_4
Summary----------------------------------------------------------- 1-5
CHAPTER II - STORAGE AND COLLECTION
II-1
SolidWaste Storage -----------------------------------------------
II-1
Collection of Solid Waste -----------------------------------------
II-1
Safety------------------------------------------------------------
II-5
Summary-----------------------------------------------------------
II-9
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CHAPTER III - WASTE GENERATION AND DISPOSAL
III-1
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Waste Generation ------------------------------------------------
III-1
Disposal of Waste -----------------------------------------------
III-10
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Existing Disposal Site Operations
III-11
Future Disposal Needs of the San Diego Region -------------------
III-24
4
Completed Landfills ---------------------------------------------
11I-43
Summary---------------------------------------------------------
11I-46
CHAPTER IV - RECOVERABLE RESOURCES
IV-1
Obstacles to Salvaging -------------------------------------------
IV-7
1
Summary-----------------------------------------------------------
IV-14
CHAPTER V - HIGH TECHNOLOGY RESOURCE RECOVERY
V-1
State Goal---------------------------
V-3
Resource Recovery in San Diego County ----------------------------
V-3
Summary----------------------------------------------------------
V-12
CHAPTER VI - THE INTERIOR ZONE ----------------------------------------
VI-1
Collection of Wastes
VI-1
'
Rural Container System -------------------------------------------
VI-4
Disposal of Interior Zone Wastes ---------------------------------
VI-9
Resource Recovery in the Interior Zone ---------------------------
VI-10
Summary----------------------------------------------------------
VI-12
i
i
Y09IN
TABLE OF CONTENTS
(continued)
Me
CHAPTER VII - SPECIAL WASTES VII-1
Obsolete Automobiles ---- -------------.w-------------------- VII-1
Agriculture Wastes -----. _-w-_- .---_-.-_---------w VII.,
BulkyWastes ------------- ---------- ----------- --------------- --- VII-5
DeadAnimals ----NM --------------- N--------------------------
VII-6
Sewage Sludge Residues --- ---- ----------- -------------------- -- VII-6
UsedTires w------------------------------------------ VII-8
Summary------------------------------------------------------ --- VII-10
CHAPTER VIII - HAZARDOUS AND POTh'TIALLY HAZARDOUS WASTES VIII-1
Legal Basis of Hazardous Waste Management ------------------ VIII-1
San Diego County Hazardous Industrial Wastes ------------------- VIII-6
MedicalWastes -..--- w-ow.w�wwwwwwwww_wwwwwwwww. .......... -ww VIII-10
RadioactiveWastes --------------------------------------------- VIII_12
Explosives - ---- ----------- ------------ --------------------- --- VIII-13
Incinerator Residue from Resource Recovery Projects ------------ VIII-14
State Hazardous Waste Siting Program ------------------------a.- VIII-14
County Hazardous Waste Task Force -------------- ------ VIII-15
Respondingto Emergencies ------------ ----------------------- ..-- VIII-16
CHAPTER IX - LITTER
IX-1
Quantities, Composition and Distribution of Litter ------------- IX-1
Litter Control in San Diego County ------------------------------ IX-2
The Great California Resource Rally ---------------------------- IX-7
Summary------------------- -._.-__-._w._------------------------ IX-8
CHAPTER X - FINANCING AND ORGANIZATIONAL DEVELOPMENT
X-1
Overview------------------------------------------------------ X-1
Existing Organizational and Financing Mechanisms ---=------------- X-1
Organizational Alternatives -------------------------------------- X_8
Financing Alternatives ------------------------------------------- X-11
Financing Capital Expenditures ------------------------------------ X-13
Summary---------------------------------------------------------- X-17
'CHAPTER XI - CONTINGENCY PLANNING
XI -1
Summary------ --------------------------------------- ------------ XI-6
CHAPTER XII -LOCAL E"RRCE !ENT •ASENCI ES ------------------------------ XII -1
Components of a Solid Waste Local Enforcement Program ----------- XII-1
ii
S—U—M—M—A—RY
u
a
i
it SUMMARY OF REGIONAL SOLID WASTE
MANAGEMENT PLAN
1982-2000
WITH
ACHIEVEMENTS, GOALS AND OBJECTIVES FOR
1982-85
During development of the first Regional Solid Waste Management Plan, an
overall goal was established:
"To provide a system for managing the generation, storage, col-
lection, transportation, reuse and disposal of solid waste in an
economical manner which protects the public health and welfare,
conserves natural resources and energy, minimizes littering and
illegal dumping and generally enhances the environment."
The initial Plan was developed over a four-year period, 1973-1977. It
reflected,an era of growth in public agencies. In the nine years since this
effort was undertaken, the public climate regarding government has altered
significantly.
However, even in an era of increasing limitation, much envisioned in the
initial Plan has been accomplished.
The purpose of this section is to summarize the contents of the chapters of
this Plan, and to identify the goals to be attempted during the three years
between this revision and the next. For user's convenience the Revised Plan
has been divided into two volumes.
Volume One contains the elements of the Plan; Volume Two contains background
and reference data which supplements the information in Volume One.
An implementation schedule for the 1982-85 period is included, as is a review
of and status report on the Implementation Schedule contained in the original
Plan.
SUMMARY
Overview of the Study Area - Chapter I
To develop an effective and comprehensive plan for the management of solid
wastes in the County, it was essential to identify those characteristics
-1-
0
which influence regional solid waste generation and disposal patterns. This
Chapter provides an introduction to the geographic, geopolitical and demo-
graphic makeup of the County.
Few major changes took place during this interim. Three cities were incor-
porated; the 1980 census established a population increase of 10% over that
projected, thus accounting for the 8% increase in the amount of trash buried
over 1977 projections.
Significant changes in the amount of rainfall were experienced, thus lending
meteorologists to predict a shift to "wet years." There were also major
changes in air pollution control standards. The former is important because
of the potential impact to groundwater by landfill operations; the latter
impacts resource recovery projects.
Storage and Collection - Chapter II
On a day-to-day basis, storage and collection are the solid waste management
functions which most immediately and directly affect the lives of the
region's residents. This Chapter describes and evaluates waste storage and
collection practices in the coastal region - which is the densely populated
western one third of San Diego County. Collection service throughout the
County appears to be satisfactory.
Waste Generation and Disposal - Chapter III
This Chapter identifies waste generation and disposal in the County. A
forecast of solid waste volumes to the year 2000 is included as well as a
review of existing solid waste disposal facilities and their anticipated
capacities.
The information in this Chapter builds on the Solid Waste Allocation
Matrix I, developed in the initial solid waste planning process.
-2-
1r
i? Recoverable Resources - Chapter IY
Consumer discards which still have commercial value provide the feedstock for
a major industry in San Diego County. Secondary materials salvage activites _
are basically a profit -motivated industry but they are also a practical
approach to the conservation of natural resources and energy.
.,
The recyclable materials discussed in this Chapter are those which are con-
sidered to have the greatest potential for reuse. These include metals,
paper, textiles, plastics and glass. They are typically recovered at the
source or at intermediate transfer centers.
This Chapter differs from the following in that it focuses on smaller scale,
labor intensive, less technical techniques.
Resource Recovery - Chapter V
j This chapter discusses the other spectrum of resource recovery - the large scale,
higher technology facilities which convert part of the solid waste stream into
energy. -
Three projects are discussed:
° The 200 ton per daffy E1 Cajon Resource Recovery Demonstration Facility
° The Palomar Transfer Station
° The 1200 ton per day San Diego Energy Recovery (SANDER) Project
Interior Zone Management - Chapter VI
The solid waste management systems of San Diego County have been divided into
urban and interior regions. This Chapter is concerned with solid waste
management in the interior region.
While encompassing about 65 percent of the County's land area, the interior
region has less than three percent of the population. Because of the sparce
population, area residents rely almost wholly upon County agencies for
4
-3-
services. Solid waste services presently consist of ten rural container
facilities and one small volume landfill.
The rural container sites are actually storage facilities. Under contract
with private handlers, these wastes are transported to County landfills.
Between 1976 and 1980, contract costs rose dramatically. In part, this
escalation reflected the closure of the Descanso landfill which serviced the
higher volume South portion of the Interior Zone. This added 26 miles to the
transportation costs for the solid waste generated in this region.
'Funding alternatives for this region are also discussed.
Special Wastes - Chapter VII
Special wastes include automobile hulks, agricultural wastes, bulky items,
dead animals, sewage sludge, street sweepings and tires. Individually, none
of these waste categories present major problems in solid waste management at
the present time. Collectively, however, problems of substantial dimensions
could quickly arise if established disposal procedures are not followed.
Current quantities and disposal practices are reviewed. Resource recovery
opportunites are also discussed.
Hazardous Wastes - Chapter VIII
Recent State legislation has modified review and approval procedures for the
hazardous waste element of county solid waste management plans. The State
Department of Health Services has been designated as the review agency for
this element of the Plan and has issued guidelines accordingly.
This Chapter discusses the impact of RCRA, the Resource Conservation and
Recovery Act of 1976, on hazardous waste management practices, including the
closure of the only Class I landfill in San Diego County.
EM
w A review of major legislative proposals, especially a siting study conducted
by the State Department of Health Services, is provided. The Emergency
Respo►tse Plan is also included for ease of reference.
Litter - Chapter IX
Litter is a special problem in solid waste management. It is trash which has
been carelessly discarded or accidentally scattered in places where it may be
visually offensive, ecologically harmful or hazardous to health and safety.
i
Of great assistance to local agencies in combating the growing litter problem
was the Litter Control, Recycling and Resource Recovery Act of 1980. This
legislation provided "pass -through" funding to cities and the County for
various litter clean-up and enforcement programs. Unfortunately, the program
` was eliminated by the Legislature during 1981.
Financing and Organizational Development - Chapter X
This section of the Plan summarizes solid waste responsibilities and
financing practices within the San Diego region. It also includes alterna-
tive organizational and financing models which could be used to meet the
region's solid waste needs.
Because of recent developments in State legislation limiting the financing
capabilities of local government, no signficiant changes in the solid waste
organization are anticipated.
The exception to this is the SANDER Project, a joint powers agreement between
the City and County of San Diego. It is considering a public -private mix for
ownership and operation of this large resource recovery facility.
Contingency Planning - Chapter XI
In order to protect the public health and preserve the environment, it is
essential that solid waste services not be interrupted. If waste removal is
-5-
not done on a regular and timely basis, refuse accumulates and will bacome a
potential health hazard. If disposal operations are interrupted, haulers are
unable to discharge their loads and collection services must be suspended.
This Chapter reviews contingency planning for both labor related stoppages
and natural disasters.
Local Enforcement Agencies - Chapter XII
During development of the Plan, legislation was enacted requiring designation
of Local Enforcement Agencies (LEAs) for health and non -health related solid
waste matters.
The State Solid Waste Management Board has required designated LEAs to
develop enforcement programs and to submit them to the State for review. The
State also requires that these LEA Programs be included in this Plan.
In San Diego County, most agencies designated themselves for non -health
related matters. The County Department of Health Services was designated by
all agencies but one for health related matters.
The State is the designated LEA for both non -health and health related
matters for the City of San Diego.
MAJOR CONCLUSIONS
Collection and Current practices are satisfactory. The combination of
Storage: public and private service providers has resulted in an
efficient and effective collection system.
Disposal: Adequate disposal facilities exist for current solid waste
volumes. However, long range planning, acquisition and
completed fill maintenance have been inadequately
considered.
i
E -6-
i
1
F
7__
Recoverable Current levels of recycling must be increased. Public
Resources: access to recycling -centers, information and education,
programs and new markets for recovered materials must be
encouraged.
Resource The SANDER Project is a vital component of a solid waste
Recovery: system which does not rely solely on iandfi':ling. Its
continued support is critical .to avoid a garbage crisis by
the end of this century.
S
Other recovery projects in the North and East County are
also necessary.
Interior Zone: Current efforts to decrease the cost of this transportation
system must be continued. Alternative funding mechanisms
and opportunites for resourc,- recovery must be pursued.
Special Wastes: Handling practices for these special wastes are adequate.
" Opportunites for recycling, waste exchange and recovery
must be investigated.
Hazardous This sensitive field requires special attention. Without
Wastes: adequate tracking, this component of the waste stream can
pose a serious threat -to the public health and safety.
Adequate handling facilities, volume reduction, recycling,
waste exchanging and recovery must be provided.
The newly created Hazardous Task Force will develop a
comprehensive management program from cradle -to -grave.
Litter: San Diego County is an attractive tourist area. In order
to maintain its attractiveness, litter cannot be allowed to
become a problem. However, fiscal constraints on local
. governments threaten existing levels of abatement and
education. The public and private industry must realize
-7-
,their responsibility to avoid as well as abate this
nuisance. Expansion of "Workfare," honor camp and other
available work force programs is necessary.
Finance and Funding constraints have generally impacted general fund
Organization: revenues available for solid waste activites. User fees,
revenue from recovery activites and other sources of
funding have become increasingly more important. Long rnge
funding programs for resource recovery, operations, future
facility acquisition and maintenance must be developed and
implemented.
Emergency and disaster planning contingencies must be
Contingency
Planning: maintained.
Implementation Schedule
Initial Schedule and Summary of Achievements During 1976-1981
I. MANAGEMENT
1, 7177 - 9/77 - Establish and imp',?meat a Solid Waste Enforcement
Program.
As required under the Solid Waste Control Act of 1976, the County
and fourteen of the sixteen cities have designated an enforcement
agency, or agencies, to enforce solid waste management standards
within their respective jurisdictions. Poway and Santee, as well
as any other newly incorporated cities, will make their
designations as appropriate.
2. 7/77 - 1/78 - Establish collection, disposal, resource recovery and
special waste contingency planning programs.
The SANDER Project, the BKK and Palomar Transfer stations have con-
tingency plans. The County of San Diego, has established a Hazard-
ous Waste Contingency Plan. The City and County of San Diego have
general and site specific plans.
3. 7/75 - 1/2000 - Plan review and revision.
The San Diego Regional Solid Waste -Management Plan will be reviewed
and revised as necessary, every three years, as required by
existing State law. The first revision will be submittedtothe
State Solid Waste Management Board by the end of May,
-8-
r
i 4. 7/77 - 6/78 - Consider establishment of a Solid Waste Advisory
Committee.
The Public Works Advisory Board serves as an on -going citizen input
body for solid waste matters. In addition, a Solid Waste Advisory
Committee for the San Diego Energy Recovery (SANDER) Project Board
of Directors has been created. Responsibilities of this group may
be expanded to include other facets of the waste spectrum. On an
ad -hoc basis, citizen committees have been formed, including the Ad
Hoc Committee on Contracting Landfill Operations, the Interior Zone
Advisory Committee, the Technical and Plan Revision Committees for
this Plan. This approach will continue to be utilized.
II. WASTE GENERATION CONTROL
1. 7/77 - 1/2000 - Maintain HADOPT waste generation computer model.
Maintenance of the waste generation computer model, now known as
SWAM I, is an on -going resp ,nsi bi 1 i ty of the Solid Waste Management
Section,. The model has been revised and is used in planning for
waste disposal. A revision to include differing fee schedules wi11
allow for more latitude in applying the model.
2. 7/78 - 2000 - Establish waste reduction programs:
a. Public Education Programs. The County of San Diego has
'F Increased the scope of its Public Information and Education
Program provided through contract with the San Diego Ecology
Centre, Inc. and the San Diego City/County War Against Litter
(WALCO) Committee.
b. Community Action Programs. Support for community programs is
inc-'emu ed— n the Ecology Centre and WALCO contracts.
c. Support Waste Reduction Legislation. All proposed legislation
dealing with solid waste is reviewed. Those items of legisla-
tion specifically dealing with waste reduction are supported as
appropriate.
3. 1/79 - 6/79 - Evaluate the feasibility of separate collection
program/assist in program implementation.
Because of rapidly rising collection costs and unstable secondary
materials market, a separate collection program for the San Diego
region is uneconomically feasible at this time. However, the
County was awarded grant funds in the amount of $191,000 in FY 80-
81 to construct three buy-back centers. These centers will be
located at the Sycamore and Otay landfills and in the North
County.
4. 7/77 - 1/2000 - Assist and coordinate vGlunteer recycling pro-
grams -
The County of San Diego has a contract with the San Diego Ecology
Centre for conducting a public awareness program to encourge volun-
tary recycling. The program is aimed at recycling aluminum cans,
newsprint, glass and high grade office and ledger paper.
III. STORAGE AND COLLECTION
1. 1/78 - 6/78 - Encourage adoption of Plan's model ordinance to en-
sure acceptable and uniform storage standards, including the incor-
poration of storage facilities in new and remodeled buildings.
Because of increasing awareness about solid waste, more planning
departments are requiring that adequate waste storage and handling
facilities be provided for new and substantially remodeled
buildings where practical. Stationary compactors are being
installed at a significant number of large commercial and
industrial complexes.
2. 7/77 - 1/2000 - Encourage implementation of innovative storage
concepts. a
The Department of Public Works encourages the implementation of
innovative storage concepts. As new technology is developed, staff
reviews the technique with respect to its application to existing
situations.
3. 1/77 - 1/2000 - Ensure that at least once weekly waste collection
service is available.
State law requires that garbage shall not be allowed to remain on
the premises more than seven days. Where waste collection services
are provided, the minimum collection frequency is once weekly.
4. 7;77 - 7/78 - Ensure bulky item collection service is available.
Bulky item collection is generally provided in the metropolitan
areas of the County, usually at a fee, except in the City of San
Diego. Bulky items in the City are handled on an individual basis.
Many other cities schedule special "bulky item" collection days.
5. 7/77 - 1/2000 - Assist cities in waste collection rate analysis on
request.
This staff assistance is available when requested.
\..r+
-10-
5. 7/77 - 7/79 - Mandatory collection feasibility studies.
With the incorporation of new cities, efforts toward establishment
of mandatory collection are advancing.
7. 7/77 - 7/79 - Conduct feasibility study for optimizing service
areas of private haulers within jurisdiction.
The County's solid waste ordinance removed restrictions on the
number of collection permits that could be issued in any given area
of the County. Private haulers are self-regulating with respect to
optimizng their respective service areas.
8. 7/78 - 7/78 - Seek legislative action to exempt collection vehicles
from Section 22515 of the California Vehicle Code.
Section 22515 of the California Vehicle Code provides that no
vehicle shall be left unattended with the engine running. This
rule in effect places certain constraints on the utilization of
one -person collection crews.
This concern should be pursued by the collection industry.
9. 7/78 - 7/79 - Establish Collection Safety Program.
Safety is essentially a responsibility of the collection industry.
10. 7/77 - 1/78 - Encourage participation in Injury Reporting System
(IRIS).
This federally funded program is no longer in effect.
11. 1/78 - 7/78 - Investigate feasibility of shift to one-man
collection crews.
The feasibility of one -person collection crews has been well
established.
IV. WASTE TRANSPORTATION
1. 7/.77 - 7/78 - Establish right to designate disposal facility as a
condition of collection franchise or permit issuance.
The County has the right to direct solid waste haulers to transport
solid waste to a designated landfill or to a resource recovery
facility. This has been included in the County's solid waste
ordinance.
L1 -bl-
eoll*_�
2. 1/77 - 1/2000 - Maintain and update computer model to minimize
transportation costs.
This is a continuing task of the Department of Public Works.
3. 7/77 - 7/78 - Study alternative methods for providing service to
the Interior Region to reduce costs without sacrificing service
levels.
This has been an on -going part of the solid waste division program.
V. PROCESSING AND REUSE
r
1. 7/77 - 1/2000 - Demonstration and operation of El Cajon Resource
Recovery Facility.
The County is exploring means of utilizing this inactive facility
prior to dismantling.
2. 1000 TPD Metropolitan Resource Recovery Facility. f" {
a. 1/76 - 7/77 Feasibility study A feasibility study has been
completed.
b. 7/77 - 6/81 Select, design and construct facilit Request For
riz' oposa s have Been solicited from the private sector.
c. 7/81 - 2000 Start up and operate facility The project is
expected to become operational i`n'IS$T.
3. 800 TPD North County Processing Facility.
The Palomar Transfer Station was constructed and became operational
October, 1979. Its resource recovery potential is being pursued
in the private sector.
i
4. 1/82 - 2000 - Plan and implement additional resource recovery as
economic feasibility is determined.
The search for viable and economical methods for resource recovery
is a continuing task of the Department of Public Works.
5. 7/77 - 2000 - Program to encourage expanded use of retreaded tires
and reclaimed oil.+
-12-
The choice between new tires and retreaded tires is primarily a
matter of economics, safety and customer preference. Approximately
{ 20-25 percent of tires discarded in San Diego County are retreaded.
A program to expand this market would not be productive at this
time.
The "Used Oil Recycling Act," or SB-68, was enacted in 1978 to
provide for the management of used oil and promote the use of
reclaimed oil in California.
V1. DISPOSAL (Coastal Region)
1. 7/78 - 6/79 - Close existing Jamacha Landfill.
Jamacha Landfill closed January, 1978.
2. 1/79 - 6/80 - Close existing Miramar Landfill.
Estimated closing date for the Miramar Landfill is May, 1982.
3. 1/82 - 6/83 - Close Montgomery Demolition Landfill.
Estimated closing date for the Montgomery Demolition Landfill is
now 1985. Fewer buildings are being demolished in San Diego than
initially estimated.
4. 6/81 - 6/82 - Close existing Oceanside landfill Operation.
Establish Oceanside replacement or expansion.
Oceanside Landfill was closed permanently July, 1980 by direction
of the Oceanside City Council. No replacement is proposed.
5. 1/82 - 6/83 - Close existing Bonsall Landfill.
Estimated closing date for the Bonsall Landfill is 1985.
6. 7/76 - 6/77 - Acquire additional acreage at Otay Landfill.
An additional 250 acres were acquired for expansion of the existing
site and became operational June, 1979.
7. 7/78 - 6/80 - Establish Jamacha replacement.
A Jamul landfill proposal was rejected by the Board of Supervisors.
-13-
a
8. 7/78 - 6/80 - Establish South Chollas replacement.
The proposed North Chollas site is not scheduled to become opera-
tional.
9. 7/78 - 12/80 - Establish Miramar's replacement.
It is anticipated that West Miramar will become operational upon
closing of existing Miramar, about May, 1982.
10. 7/80 - 6/82 - Establish Bonsall's replacement.
F
No action for a replacement facility is contemplated at this time.
11. 7/77 - 6/78 - Establish North Coastal Landfill.
The San Marcos Sanitary Landfill, replacement for the Encinitas
Landfill (April, 1977), became operational in June, 1979.
VII. INTERIOR REGION
1, 7/77 - 7/78 - Investigate the feasibility of contracting for
operation of low volume landfills.
The Board of Supervisors awarded a contract for private operation
of the County's six sanitary landfills in November, 1981.
2. 7/77 - 7/78 - Close Borrego Springs Container Facility.
The Borrego Springs Container Facility was closed concurrent with
the opening of the adjacent landfill.
3. 7/77 - 7/78 - Modify the Julian and Campo container site operation
by contracting for full services.
The current service contract provide:, for full service, including
removal of bulky wastes and litter cleanup.
4. 1/79 - 7/79 - Replace Viejas Landfill with a Oescanso Site.
The Oescanso Site became operational in January, 1979. Because of
a potential for groundwater contamination, it was necessary to
close the site in September, 1979. The site is presently being
operated as a temporary bin station.
-14-
5. 1/76 - 4/76 - Establish a container site at Barrett Junction.
The Barrett Junction site was established and opened in February,
1976.
6. 7/77 - 9/77 - Institute a total gate fee financing structure for
County operated landfills in Coastal Region.
It is Board of Supervisors' policy that the fee structure recover
full costs of the service. Full cost recovery through fees is
anticipated in FY 82-83.
7. 10/77 - 7/78 - Investigate land use fee system to partially support
Interior Region Solid Waste Management.
The Board has directed that 20% of the cost of the Interior Zone
System will remain a General Fund expense. The remaining 80% will
be recovered by a ccmbination of fees by FY 83-84.
VIII. LITTER REDUCTION
1. 7/78 - 7/79 - Establish regional coordination of Anti -litter
Program.
The County served as regional coordinator for the disbursement of
State grant litter funds. However, the State Program has been
discontinued.
2. 7/78 - 7/79 - Identify optimum location and numbers of litter
receptacles.
The location and number of litter receptacles are the responsibil-
ity of each respective agency.
3. 7/78 - 7/79 - Development of local anti -litter plans and programs.
These programs are the responsibility of each jurisdiction.
4. 7/78 - 7/79 - Adoption of comprehensive litter control ordinance.
The County solid waste ordinance provides a comprehensive litter
control program in the unincorporated areas. Cities within the
region either enforce provisions of respective local ordinances or
State litter laws.
-15-
IX. SPECIAL WASTES e0_11
1. 7/77 - 1/2000 - Monitor rates of vehicle abandonments.
The responsibility for enforcing the State's Abandoned Vehicle
Abatement Program is that of the California State Highway Patrol.
2. 7/77 - 1/2000 - Monitor agricultural waste generation trends and
develop
programs to mitigate problems which may resultu from agri-
cultural wastes.
The disposal of agricultural waste in San Diego is not a problem at
this time. State Solid Waste Management Board staff is investi-
gating the problem on a State-wide basis and developing minimum
standards tailored to the disposal of agricultural wastes. Such
standards will be applied as they are adopted.
3. 7/79 - 7/80 - Develop methods of disposing of or reusing crop
residues which are currently burned in the Eastern Air Pollution
Control District.
See response under item 2 above.
4. 7/77 - 7/78 - Cooperate with Federal, State and local regulatory
agencies in developing criteria for use of sewage sludge residues.
Development of a coordinated State Sludge Management Program is
contingent upon promulgation of Federal guidelines. North County
sewer districts are investigating alternatives for sludge disposal.
S. 1/78 - 1/2000 - Promote the composting of street sweepings with
other materials for use as a final cover for sanitary landfills.
Because street sweepings contain paper, broken glass, metal cans
and the like, they are not considered suitable as a final cover.
The City of San Diego incorporates tree trimmings in the final
cover.
6. 1/78 - 6/78 - Investigate slicing or shredding used tires prior to
landfill disposal or processing.
i
E Tirpc navA a cy t;, -move up through the landfill cover due to
their resilliency. Shredding the tires may alleviate this problem,
{ -16-
but it is costly. Unless there is a significant breakthrough in
tire shredding technology, no further action is planned on this
item. Other sire disposal technologies are investigated as they
become available.
7. 7/76 - 1/?O00 - Regulate the disposal of waste oils.
The responsibility for managing waste oil disposal is assigned to
the State Solid Waste Management Board.
X. HAZARDOUS WASTE CONTROL
1. 7/77 - 7/78 - Identify the County's short and long term needs and
capacities for hazardous waste disposal.
The State Department of Health Services is the lead agency for
hazardous waste management in California. The Department of Health
Services is presently engaged in surveying hazardous waste genera-
tion and in monitoring, handling and disposal of these wastes
through a system of shipping manifests. A Hazardous Waste Task
Force has been established to develop a comprehensive management
program.
2. 1/77 - 6/77 - Initiate proceedings to permit the County Department
of Public Health to administer the State's hazardous waste manage-
ment programs for San Diego County.
A contract between the County and State Department of Health Serv-
ices to administer the State's Hazardous Waste Management Program
in the County became effective in July, 1980, Under the terms of
the contract, the County will enforce State standards and initiate
action when appropriate.
3. 7/77 - 1/2000 - Review, issue and enforce hazardous waste generator
permits.
The responsibility of issuance of permits has been assigned to the
Environmental Protection Agency or to states having authorized
Hazardous Waste Permit programs. Thus, local governments are pre-
empted by Federal law from issuing such permits.
}
4. 7/77 - 7/78 - Prepare a model ordinance for the handling and dis-
posal of potentially hazardous waste.
i
It is the State Attorney General's opinion that the State's Hazard-
ous Waste Control Act has preempted local ordinances and regula-
tions regarding processing, handling and disposal of hazardous
wastes. Thus, no action has been or will be taken on this item.
-17-
REVISED SAN DIEGO REGION SOLID WASTE MANAGEMENT PLAN
1MFLEMENTATION SCHEDULE
1982 - 1985
Action Number
Time
Action
:. MANAGEMENT
1
82-85
Implement plan.
2
82-85
Review existing solid waste financing mechanisms
and propose appropriate changes.
3
82-85
Monitor Solid Waste Enforcement Program.
4
82-85
Review and update solid waste contingency planning
programs as the need arises.
II. RECYCLING &
RESOURCE
RECOVERY
1
82-85
Continue implementation of Board Policy 1-76 -
Solid Waste Disposal. Make any necessary recommen-
dations for revision.
2
82-85
Pursue implementation of SANDER Project.
3
82-83
Implement alternative for operating of E1 Cajon
Resource Recovery Facility.
4
82-85
Develop methane recovery programs at landfills.
5
82-85
Seek contractor(s) for gravel mining and/or asphalt
production at Sycamore.
6
82-85
Plan and implement resource recovery alternative in
North County.
III. WASTE
GENERATION &
CONTROL
1
82-85
Maintain and revise the Solid Waste Allocation
Matrix I.
2
82-85
Continue waste reduction programs:
a. Public information and education programs;
b. Community action programs;
c. Support waste reduction legislation,.
3
82-85
Assist in separate collection program implementa-
tion as requested.
1
82-85
Assist and coordinate volunteer recycling program.
-18-
PLAN IMPLEMENTATION SCHEDULE (cont'd)
Action Number Time
IV. STORAGE AND
COLLECTION
1 82-85
2
V. DISPOSAL
(URBAN
REGION)
1
2
3
4
5
6
7
VI. INTERIOR
REGION
1
2
3
4
5
82-85
Action
Encourage imrolementation of improved storage
concepts.
Assist cities in waste collection rate analyses on
request.
82-83 Close North Miramar Landfill and establish
West Miramar.
82-83 Propose funding mechanism for facility acquisition
and completed fill maintenance.
82-85 Maintain right to designate disposal facility as a
condition of collection franchise or permit
issuance.
82-85 Close Bonsall Landfill.
82-85 Study acquisition of additional acreage at Otay and
Sycamore landfills.
82-83 Establish North County replacement facility.
82-85 Close Montgomery Demolition Landfill.
82-85 Implement a financing structure for County operated
facilities.
82-83 Close Descanso Landfill.
82-83 Replace Descanso Landfill.
82-85 Investigate feasibility for resource recovery.
82-85 Monitor Interior Zone solid waste rural container
sites and other facilities for efficiency and
effects veness.
-19-
PLAN IMPLEMENTATION SCHEDULE (cont'd)
Action Number Time Action
VII. LITTER
REDUCTION
1
82-85
Develop and coordinate anti -litter programs as
requested.
2
82-85
Support legislation aimed at reducing litter.
VIII. SPECIAL
WASTES
1
82-85
Pursue alternative handling of vehicle
'
abandonments.
2
82-85
Monitor agricultural waste generation trends and
develop program to mitigate any problems.
3
82-85
Cooperate with Federal, State and local regulatory
agencies in programs for use of sewage sludge
residues.
4
82-85
Promote the composting of tree trimmings with
other materials.
5
82-85
Investigate slicing or shredding used tires prior
to landfill disposal or processing.
IX. HAZARDOUS
WASTE
CONTROL
1
82-63
Identify the County's short and long term needs and
capacities for hazardous wastes disposal.
2
82-83
Develop workplan for Hazardous Waste Management
Program for San Diego County.
3.
82-85
Continue implementation of SDOHS enforcement and
surveillance program.
-20-
eo*'11t
Chapter I
OVERVIEW
OF THE STUDY AREA
Effective management of solid wastes requires identification of those charac-
teristics which influence regional solid waste generation an6 disposal pat-
terns. This chapter identifies the geographic, political and demographic
makeup of the region as it impacts solid waste management.
GEOGRAPHICAL CONSIDERATIONS
Geography is integral to solid waste management. The most common landfill
disposal method utilizes canyons. Therefore, mountain and foothill ranges
must be identified.
Geology is important. Soil types restrict landfill locations and determi o
the types of waste which can be deposited. Earthquake faults, fracturing and
slope instability impact disposal siting.
Rainfall is important because of leachate concerns; it also impacts ground-
water tables.
The Appendix contains a discussion of San Diego County's geologic and hydro -
graphic conditions as they relate to solid waste concerns (A-I-1).
ENVIRONMENTAL QUALITY
A necessary aspect of solid waste management is an evaluation of any pollu-
tion associated with solid wastes.
The Air Pollution Control District is responsibile for monitoring and
enforcing air quality standards established by the State of California and
the Federal Environmental Protection Agency (EPA).
I -1
The Appendix contains a discussion of the Ambient Air Quality Standards
applicable in California (A-I-2). These standards must be met by arty solid
waste facility.
AGENCIES INVOLVED IN SOLID WASTE MATTERS
The Clean Water Act (CWA), Safe Drinking Water Act (SDWA), and Clean Air Act
(CAA) provide controls on air and water pollution. Passage of the Resource
Conservation and Recovery Act (RCRA) in 1976 closed the gaps in the waste
s
-disposal cycle providing control for the disposal of pollutants on or in the
land.
j The 1980-81 fiscal year marked the start of a new era in planning, imple-
menting and managing environmental programs at the regional and State levels.
Recognizing the relationship among air, water, and solid waste pollution,
State/EPA agreements now must present integrated approaches to solving water
supply, solid waste and air pollution control problems.
EPA is developing a single set of application forms and instructions for
these programs:
(1) Hazardous Waste (Resource Conservation and Recovery Act)
(2) Underground Injection Control under Safe Drinking Water Act
(3), Discharges to Surface Waters (National Pollution Discharge Elimina-
tion System, under Clean Water Act
(4) Prevention of Significant Deterioration under the Clean Air
Act
This set of forms will be used in applying for and approving State programs,
applying for permits, issuing permits and other similar matters.
These efforts at consolidation should avoid marLy of the previously experi-
enced problems of trading pollution among land, water and air.
Local Jurisdictions
In San Diego County, a number of governmental agencies have overlapping
Jurisdictions in the field of solid waste management. As indicated in the
State Solid Waste Management and Resource Recovery Act of 1972, local govern-
ments; have the primary responsibility for solid waste management subject to
the regulatory authority of other agencies and boards in specific aspects of
enforcement.
All of the cities have used their authority to develop general policies
governing the storage and collection of municipal refuse. All solid waste
planning, operational functions and regulatory controls in the unincorporated
areas of the county are administered at the County level.
Enforcement of city ordinances and policies is the responsibility of the in-
dividual city. County ordinances are enforced by the Solid Waste Division of
the Department of Public Works and the Department of Health Services.
` Other regional agencies and their roles in solid waste management are:
Air Pollution Control District is directly responsible for
maintaining air quality standards. This group regulates all
emissions into the atmosphere.
California Regional Water Quality Control Board is responsible for main-
taining the quality of coastal, surface and groundwater as described in
the Comprehensive Water Qualm Control Plan for the San Diego Region.
It must approve proposed sites for solid waste disposal facilities to
insure against pollution of ground and surface waters.
San Diego Association of Governments, formerly known as the Compre-
hensive Planning Organization, coordinates general planning
efforts for the region. The County's Regional Solid Waste
Management Plan must be reviewed by this agency.
1-3
Department of Health Services acts as lead agency in hazardous waste r1611
matters, as well as enforcing health related standards and regulations.
POPULATION TRENDS
Population and Demography
i The population of San Diego County increased from 1,357,800 in 1970 to more
i than 1,861,800 in 1980, a gain of over 37%. This growth rate is higher than
that projected in the original plan.
Population projections forecast an increase to 2,625,273 by the year 2000.
That is an increase of 38,200 new residents each year through the year 2000.
Only 15% of this annual increase is expected from births. The remaining 85%
increase comes from people moving into the county.
New residents will continue to concentrate in and around the suburban cities
and communities in the North County area. Such population concentrations,
together with increasingly high refuse haul costs, point toward utilization
of modularized, community acceptable, volume reduction techniques.
i
Cities
Three new cities have been incorporated in the county since the original plan
was issued, bringing the total to 16. These were Lemon Grove (1976), Poway
(1980), and Santee (1980). In addition to these three new cities, at least
eight areas are potential candidates for incorporation.
A discussion of growth trends appears in the Appendix (A-I-3).
i
SOLID WASTE CHARACTERISTICS
,
For FY 1979-80, the total tonnage of industrial, municipal, and "special"
wastes generated in the County and disposed of in area landfills was approxi-
mately 1,981,400 tons. On a per capita per year basis, this represents 1.066
i I-4
tons. This is down slightly from the preceding six year average of 1.089
tons per capita per year.
1
A graph of projected waste generation in the County appears in the Appendix
#� (A-I-4).
t
The character of the waste generated in the area has changed slightly since
i
the Plan was first written. In 1970, plastics comprised 2.0% of collected
wastes; in 1980, plastics make up 6.0%. Efforts in aluminum recycling
3
brought with it a reduction in ferrous metal cans used for soft drinks and
replaced them with all aluminum cans.
1
SUMMARY
San Diego County is a large and physically diversified area with a mild
climate. The area's economic base is heavily dependent upon trade,
government and tourism, all relatively "clean" fields of industry. Overall
local per capita waste generation is generally comparable to the national
average of one ton.
Increasingly, densities along the coast have made it more and more difficult
to find suitable landfill sites. This led to the development of an alterna-
tive policy to the current practice of landfilling all solid wastes. (See
8/S policy I-76 in the Appendix (A-D).
While few major changes have occurred in the physical imake-up of the region,
population changes have increased the problems of solid waste management,
since solid waste is generated by people at a near constant rate. Shifts in
population centers have increased the complexity of management problems in
certain areas of the region since the costs of waste transportation have
risen sharply. It is expected that because of this, a new consideration will
be made toward utilization of smaller, modularized, community acceptable
forms of resource recovery and energy conversion systems. Improvements in
technology have made such systems feasible. Additionally, transfer stations
remain an alternative to collector haul costs.
1-5
i
A large scale waste -to -energy facility, known as the San Diego Energy''
Recovery (SANDER) Project (formerly known as the SCURR, Southern California
Urban Resource Recovery Project), is planned for implementation in the second
half of the 80's.
In the North County area the 800 T/D capacity Palomar Transfer Station came
on line. Solid waste from collection vehicles was shredded and the ferrous
metals removed. The remainder was compacted into large transpoft vehicles
,
for efficient transfer to the landfill. Provisions were made during design
of this facility to incorporate resource recovery processes as they become
economically feasible. The County is pursuing this option.
Encouragement from the California Solid Waste Management Board has enhanced
the development of a viable network of recycling centers under the sponsor-
ship of numerous civic, service, religious and charitable groups. Commercial
buyback centers are also conveniently located within the cities and other
population centers of the County.
The County of San Diego awarded a contract to a private firm for operation of
its six sanitary landfills. The contract requires use of compaction equip-
ment to help extend projected landfill life.
4w'
I-6
C-H-A-P-T-E-R T-W-O
STORAGE.AND COLLECTION
W
Chapter II
STORAGE AND COLLECTION
This chapter describes waste storage and collection practices in the densely
populated western third of San Diego Ccwnty as shown in Figure II-1. This
area is predominantly urban and suburban in nature as contrasted to the rural
character of the interior region. Discussion of storage and collection func-
tions in the eastern portion of the County is included in Chapter VI.
SOLID WASTE STORAGE
On -site storage of solid waste includes all facilities, enclosures and con-
tainers used to hold wastes until they are taken for disposal.
Each storage site has its own distinct handling characteristics, and its own
peculiar storage needs. Regulations governing on -site storage at single
family homes, small and multi -family complexes, commercial establishments and
industrial plants should specify mimimum standards appropriate to the facil-
ity's storage needs.
On -Site Storage Standards '
Three cities in San Diego County presently regulate on -site waste storage
beyond specifications for storage containers.
Coronado requires that waste matter and receptacles be kept on the owner's
premises at all times in a location approved by a Sanitary In:,crtor.
Storage must not present an unsightly appearance.
E1 Cajon requires minimum size enclosures for both cans and commercial
bins which must be "adequately screened from public view and the adjoining
property".
The City of San Diego regulates placement of containers as well as their
type and condition.
FIGURE II-1 04
f`nACTAI ncrTnu ncuAnn.-r.n.t
II-2
f�
k..✓
In addition, waste storage in mobile home parks, bakeries, restaurants,
hospitals, ships and aircraft, and organized camps throughout the region, is
regulated under the State Wealth and Safety Code and the Administrative Code.
These regulations are enforced by the local Department of Health Services.
Almost all residential refuse is currently collected from the street, curb or
alley. Most residents store wastes and waste containers away from public
view prior to collection day. However, some unsightly waste accumulations
continue to be stored at the curbside where they are fully visible from the
street.
With the increasing use of bulk containers and mechanized collection by
generators of large volumes of wastes_, the suitabil;ty and accessibility of
storage space has become critical. For example, in some of the older sec-
tions of the San Diego metropolitan area, commercial land and building devel-
opers have not considered the need for adequate on -site storage facilities.
Owners of businesses built on small lots frequently find that many storaos
areas are inadequate in size, poorly located on the property, in full view of
or encroaching upon the public right-of-way and adjacent properties, and not
readily accessible to collection vehicles. These conditions exist to some
degree in most communities throughout the County.
In many of the urban areas of the region, architecturai designs of high-rise
buildings, large apartments, or condominiums still do not provide for suit-
able waste storage facilities.
In recognition of the need to correct these deficiencies, Section 17313,
Title 14, Division 7 (1975) of the California Administrative Code provides
that:
"The design of any new,, substantially remodeled or expanded
building or )ther facility shall provide for proper storage
or handling which will accommodate the solid waste loading
anticipated and which will allow for efficient and safe waste
removal or collection. The design shall demonstrate to local
land use avid building permit issuing authorities that it
include; the required provisions."
II-3
Each local jurisdiction has the responsibility to establish necessary stan-
dards and review existing procedures in accordance with this State require-
ment.
Storage Containers for Manual Collection
As shown in Table II-1, all local jurisdictions in the region have regula-
tions governing storage of household garbage and refuse. There is no uni-
formity from community to community.
Residential waste storage containers used in San Diego County range from
specially designed, high -impact, plastic or metal cans to makeshift con-
tainers such as paperboard boxes and used grocery bags.
To insure adequate storage and safe handling of manually collected wastes,
residents should use only reusable waste containers and single -use plastic
and paper bags specifically designed for waste containment.
The Appendix contains a list of 11 container specifications which jurisdic-
tions are encouraged to require in their ordinances (A-II-1).
Storage Containers for Mechanized Collection
Mechanized waste collection is an efficient and cost-effective means of
serving large residential complexes and commercial and industrial establish-
ments. Since large portable bins and drop -boxes are emptied mechanically,
they must be specially constructed. They are designed to prevent spillage or
leakage during on -site storage or transport. They are corrosion resistant,
easily cleaned, and designed to facilitate removal of the refuse by gravity
or by mechanical means.
Such containers should be located on a firm, level, ail -weather surface such
as a concrete slab and should be easily accessible to the collection vehicle.
Currently, mechanical waste collection is found in the City of Imperial Beach
II-4
and at Camp Pendleton, and by private bin haulers throughout the county for
large residential, commercial and industrial establishments.
TABLE II-1
EXISTING COLLECTION CONDITIONS
RESIDENTIAL DWELLING UNITS
ao.e
ua
1Naae
roaw
tna ur
l LUM
— - lMt1TT
GAL.
P0t0E0 " tACATTOM
fai0l1011CT
M"reMR
OSSIDKtTOILITY
�+ CQal0M17
CazisMt
M
f0
0". Allan
1
f S-30
CltrA tllitr 1111
M MkMY gllatiw
CAW.Ytaa
32
so
Crab
1
5.10
Collars.
Msa.aabusry •allaattea
Ceeasaia
33
bi
club. Auer
1
Taw
cltr/lhaq
Mandatory $1.70 salt prior/
rs6fMw/glluti�a yrgwt
Col Me.
32
H
Ceb• Allen
1
0.51
art/Mutr U;li
a
=Coar
to Cajon
40
Oct. Alloy
S.SO
Csllater
NWwcol
Ssaatlb
32
SA
Crab, Alry
•.SS
Mr/iter UU
lloctlps
Iaaelt
66
1
3.70
11Maclx,
La Me"
33
Web:Amor
CCitryl� QQftlr
t al �
SWAM'
3
Laaa Gars
33
as
Cab. Alley
1
3.70
CMutepe/Qtrlr
row La Mesa, ?
National Cur
33
0
Cab
1
S.SS
collect"
Man-sulsary allesttq
0eeaa11"
b
0
Cagy. Allay
1
6.74
CLtr/0tl lltr U U
MUMaary ea 44" Collection
U
01o0s. City
so
Crab. Alloy
L
Ttsa
City/Tan"
IlrYtay µl eo110"U t
Sea Oiep, Cr-W
tS
s0
Tyto•ftld for
As
♦.60
CoilooW
>t Ltawaeas (1S osiloolm aab-
AnwtodSon
30.60
1Nw-snl t"Nopertma
Ifte.
30
s0
Coe►
1
callaq
llossin
sum"
ai
s0
Cab
1
4.6S
Callata
Nee -salts.. allostlon
YLtu.
10
30
Cab
1
6.40
Collects.
Naa.ea/ m alletrion
w�
0.10
On -Site Compaction
Facilities with limited storage space and high volumes, such as congested
office buildings, can use self -packing containers to reduce the volume and
facilitate removal. Volume reducing compactors are potentially cost-effec-
tive and efficient elements of the solid waste storage and transportation
system. Capacities of these devices range from less than one cubic foot in
some home installations to 40 cubic yards or more in portable containers.
COLLECTION OF SOLID WASTE
Solid waste collection in the urban region of San Diego County is permitted
through a variety of practices. Each of the 16 incorporated cities maintains
responsibility for management and administration �of refuse collection. The
County of San Diego regulates collection in the unincorporated communities.
I I -5
In most incorporated areas of San Diego County collection of solid waste is
performed by franchised haulers or licensees. Only the cities of San Diego
and Imperial Beach operate their own collection systems. The waste collec-
tion industry in San Diego County is comprised of about 30 companies. A
third of these are operated by independent owners. The remaining two-thirds
are owned by six major companies of which at least three are national.
Cities. About 70 percent of the solid waste collected County -wide is handled
by the private sector. As shown in Table II-2, residential and commercial
solid waste is collected under exclusive franchises in 12 of the 16 incorpo-
rated cities and by private licensed haulers on a limited permit basis in two
cities and the unincorporated areas of the County.
Non-exclusive commercial bin and drop -body service is also provided by the
private sector in the cities of San Diego, Oceanside and Imperial Beach by
special arrangement.
Count . In the unincorporated area, the County requires that any person
wishing to provide solid waste collection service obtain a permit. Permits,
issued by the Department of Public Works, are available in 27 solid waste
permit areas. For convenience, these areas coincide with the sub -regional
census tract boundaries.
Permits require the holder to provide weekly residential and commercial ser-
vice in the permit area. Current rate schedules must be filed with the
Department.• The County conducts no rate review. -
Port Authority. The San Diego Port District performs its own waste collec-
tion services for District operated and maintained facilities. Tenants of
District property make their own arrangements for refuse removal.
Military Facilities. Waste from the various military installations in the
San Diego region is collected by military service personnel, by civilian
employees and by private haulers. Garbage collected from ships is "cooked"
as prescribed by Federal health laws prior to removal to a local landfill.
II-6
t
TABLE II-2
WASTE COLLECTION FRANCHISE HOLDERS
COLLECTION FIRM
µE't110b OF AWARD
DATE
PERIOD
NAME
JURISDICTION
CARLSBAD
o9-01-80
S years, renewable annually
Coast Waste Management, Inc.
Council Appointed
CIIUTA VISTA
08-24.64
06-30-72 through 06-30-82
Chula Vista Sanitary Service, Inc.
Competitive Award
CORONADO
07-31-76
3 years with option to
extend for 3 years.
Reliable Ulnposal Company
Regular Service Contract
Expires 07-31-92
with the City
rally, Public B
origIndefinite,
with performane
Most recently, assumption
most
DEL Na
standards 8 right to cancel
for on 6 nwnths
Coast Waste Management, Inc.
oar hasQhise upon
any reason
written noticePEL
CAJON
k02.26.791
04-28-81 through 06-30-83
Universal Refuse Removal Co., Inc.
ESCONDIDO
8 years.
Escondido Disposal. Inc.
Lowest Sealed Bid
IMPERIAL BEACHWeekly
solid waste collects
n is provided to city residents by
nicipal employees
OI-Ul-BU t-3l-By with 1
LOCO Olsposa Corp., dba La 11esn
Contract Agreement witLA
MESA
ma
year automatic extensions
Disposal Company
City Council
MION GROVE
11-20-78
5 years
EDCO Disposal Corporation
Negotiation.
NAT3O;IAL CITY
11-18-86
10 years
CDCO Disposal Corporation
Exclusive Contract without
competitive bidding in
accordance with AO-24S4
OCEANSIDE
07-01-78
S year
Oceanside Disposal Company
Bid
POWAY
Employees County System cur
entlY; may change for FY 82-83
lid waste collection is prov
ded at no additional charge to city
csidents by municipal
SAN DlEGO CITY
employee!.
SAN DIEGO COUNTY
tAnnual
One year, renewable
unlimited number of firms
Permit to operate n
unincorporated areaSAN
11ARCOS
on ion
years w renews opti
current expiration 1983
Mashburn
Sanitation -Company
City Council Action
SANTEE
Employees County System cur
ently; may change for FY 82-83
VISTA
09-11-78
S years, renewable
Vista Sanitation District
Collection Frequencies
Fifteen cities and the unincorporated area of the County require basic resi-
dential waste collection once a week. Imperial Beach requires twice a week
collection.
Under certain conditions, particularly in inner-city areas, dense population
and inadequate storage space often combine to require more frequent collec-
tion service than that normally provided. The City of San Diego, althnwgh
basically providing once -a -week collection service, solves this problem by
II-7
making collections twice a week in certain congested areas of the City during
the summer months.
A growing national practice in waste collection is the source separation and _
collection of such recyclable materials as paper, metals and glass. Only the
franchise holder in the City of Chula Vista provides separate collection of
newspaper.
There are indications that regularly scheduled separate collections of re-
cyclable materials stimulate greater public participation. However, until
separate collection is cost effective, we do not anticipate new programs.
Service Charges
Basic rates charged for waste collection from residential areas vary signifi-
cantly among the individual jurisdictions of the County, as shown in Table
II-1. Charges for commercial collection services are determined by the level
of service provided.
Area jurisdictions use a variety of methods to determine the types and fre-
quencies of waste collection service and the establishment of charges.
SAFETY
The refuse collection industry's accident rate is high. This is reflected in
higher costs both for worker's compensation and vehicle insurance.
Some of the more significant causes of injury are:
1. Hazards encountered in handling refuse containers, such as sharp objects
and excessive weights.
2. Incentive systems encourage employees to rush through their assigned
routes.
3. Injuries caused by heavy manual work tend to cause longer periods of
absence.
4. Employees do not work under direct supervision and consequently poor work
habits can go uncorrected.
5. Preemployment screening and physical examinations are frequently
inadequate.
II-8
f
r
s
iceN
Many of these detrimental factors can be rectified through the development
and implementation of in-depth safety procedures and training programs. An
example of such is the one developed by Mashburn Sanitation Company,
joperating in the North County. This firm has an effective accident
prevention program including an internal safety committee, the promulgation
and enforcement of safety rules, and effective personnel screening and
training procedures.
f The City of San Diego has a two week training program for all newly hired
collection personnel. The City also includes a full time safety and training
coordinator position in the Solid Waste Division.
SUMMARY
Storage and collection of solid waste in San Diego County are re,;,ilated by a
patchwork of policies and procedures. The fundamental activities are being
accomplished to the general satisfaction of the public, the political juris-
dictions and private industry. Certain aspects of storage and collection
need improvement. For example, adoption of standards for adequate storage
facilities and uniform waste containers should be encouraged; operational
procedures and training programs designed to reduce injuries among collection
personnel should be developed.
II-9
f4*�
C-H-A-P-T-E-R T-H-R-E-E
WASTE GENERATION AND DISPOSAL
W
Chapter III
WASTE GENERATION AND DISPOSAL
f
1
Our affluent society generates more and more solid waste each year. Disposal
of this discarded debris of human living has always been an expensive and
difficult task. Now the growing mountains of refuse have become a critical
problem, particularly in urban areas. The landfill and solid waste crisis
requires immediate attention.
The basic need for waste disposal in landfills will continue. Volumes will
be reduced by resource recovery, but plants utilizing resource recovery
methods cannot provide final disposal for all of the refuse generated. Some
material will always require sanitary landfilling.
The purposes of this chapter are: to analyze the current generation trends
for solid waste in San Diego County; to discuss existing disposal facilities
in the region; to forecast future volumes of solid waste through the year
2000; to identify a physical system for meeting the waste disposal needs of
San Diego County residents; and to discuss responsibility and provision for
on -going maintenance of completed landfills.
This chapter discusses the urban region. The Interior Zone is discussed in
Chapter VI.
WASTE GENERATION
In general, the amount of municipal solid waste generated in any given geo-
graphica'� area is a function of the number of residents, the types of
dwelling units, the number of workers, the types of commercial and industrial
establishments, and the amount of demolition materials, which often reflects
the economic climate of the area.
s
1t
FIGURE ill—i
III-2
x •n<
�R
M
,.%W
TF0014N
Future Generation Volumes
During the decade of the Seventies, the actual population increase expe-
rienced in San Diego County was 108% or" that originally estimated.
i
I
Based on this actual data, waste generation prediction plots have been
developed. Because solid waste is such a dynamic field, generation
projections are only as good as the data on which they are based.
Table III-1 shows a comparison of population and waste tonnage based on
actual 1980 census data.
TABLE III-1
Population and Tons of Waste by Categories
Projected in Original Plan
(Quantities in Millions
TONS
TONS TONS
TONS
Year
Population
Residential
Employment Demolition
Total
1980
1.635
1.007
.653 .339
2.000
1985
1.842
1.135
.773 .367
2.275
1995
2.?55
1.389
1.015 .424
2.828
Based on Series V Data
1980
1.738
2.015
1985
1.997
1.279
.845
.073
2.197
1995
2.383
1.531
1.013
.087
2.631
2000
2.553
1.639
1.093
.093
2.825
Adjusted for Growth Factor Actually Experienced 1975-1980
1985
2.197
1.405
.929
.080
2.414
1995
2.621
1.684
1.114
.096
2.894
2000
2,808
1.803
1.202
.102
3.107
Figures III-2, 3, and 4 show the predicted waste -tonnage generation distribu-
tion for the urban area of San Diego County for the years 1981, 1988 and
2000. As can be seen, considerable growth is predicted to take place in the
Borth County area.
III-3
DISPOSAL OF WASTE
For centuries refuse was disposed of by dumping it on the nearest patch of
land preferably out of sight and smell. When it became too voluminous or too
offensive it was reduced by open burning.
San Diego County enjoys its enviable position in urban area landfill
availability to solid waste pioneer Jean Vincenz, San Diego County's first
Public Works' Director (1947-62). As Public Works Commissioner for Fresno in
the '20's, Vincenz initiated the practice of sanitary landfilling, i.e., the
provision of daily cover and compaction.
During his tenure in San Diego, initial steps were taken to establish
numerous sites including the existing Otay, Ramona and Sycamore Landfills.
At this time all disposal sites in San Diego County are sanitary landfills
(cover materials applied at the close of each operating day with the ex-
ception of the San )Marcos landfill where shredded waste is treated
—� differently). Figure III-5 depicts a typical sanitary landfill
operation.
FIGURE III-5
! TYPICAL LANDFILL OPERATING PROCEDURE
4W-`*f^"T%'V "!""' POflTA/SE fENCS TO
.CATCH 11LORING
PAPER
4011AL1-ARTH
1 •y .w '
RIGINAL DAILY EARTH
GROUND y COVEN
ti
mOl 0 wAEiD7E
' r,.
SOURCE: Sanitary Landfill Facts, U.S. Dept. of
Health, Education and Welfare, 1970.
i
i
�-1 I I I -10
Alternatives to daily cover are being explored. The State Solid Waste
Management Board is considering the use of specific performance standards
to protect the public's health and safety while preserving valuable landfill
space by amending daily cover requirements.
Another alternative is using a "foaming" solution as a substitute for
traditional soil cover. This material has been used in Europe for about ten
years. Currently being tested in Georgia, it offers several advantages:
1) Cost appears coiapetitive with soil; 2) Foam cover requires little or no
space between layers of fill; 3) Effectiveness as a vector deterent appears
the same as soil cover.
The Department of Public Works will continue to follow the testing. When
appropriate, it will be proposed for future use.
EXISTING DISPOSAL SITE OPERATIONS
There are currently eight landfills in San Diego County. Six are owned by
the County of 'San Diego and two are owned by the City of San Diego.
Cif of San Diego Landfills
The City of San Diego operates one Class II (sanitary) and one Class III
(demolition) landfill, staffed by a total of 48 personnel. This includes an
engineering staff of 3 who establish grades, drainage and roadway design
necessary to operate a state permitted sanitary landfill.
Miramar - 7 days week - 8:00 AM - 4:30 PM, Holidays - Closed Thanksgiving,
Christmas, New Year's Day; Montgomery - 5 days week - 8:00 AM - 3:30 PM,
Holiday - Recognized construction industry Holidays.
Active County Sanitary Landfills
There are six active sanitary landfills owned by the County of San Diego.
The County's Department of Public Works maintains complete staged development
E plans for each of these sites. Effective March 1, 1982 these sites will be
operated under the control of the County by private contract.
r
Current information on these sites is available from the Department. The
following information was accurate at the time this revision was prepared.
4
`- III-11
Bon sa11 �..,
The Bonsall Landfill handles a variety of special wastes and is the only
landfill in the North County which receives sludge and grit from the waste-
water ,.treatment facilities in the area.
The site is underlain with intrusive granitic rock typical of the foothill
area of San Diego County. The weathering of this material has resulted in a
fairly shallow soil cover. Although the remaining volume of approximately
1,100,000 cubic should result in a site life of seven to nine years, the
scarcity of cover material will cause the site to close within three years
(1985), assuming normal operation.
{ A number of alternatives are being explored to extend the site life.
I. Location Gopher Canyon Road 2h miles "st of Highway 15
2.
Day __ 7 days
Hours 7:30-4:30(Mon.-Fri.) 7:30-4:00(Sat.-Sun.)
S.
'
property sire 122 acres
Landfill size 44 acres
4.
Ton/Day -._ 325
Service Ufa 3 years
3.
Remaining Volume __1.1oo.000 C.Y.
!! 6,
pater vehicle Total, 280
Weekend vehicle Total Sat.-110, Sun.-640
7.
personnel 1 S.W.S.S., 4 Operators, 2 Fee collectors
S.
Equipment 2 Dozers, 1 Scraper, 1 Water truck '-
9.
owned County of San Oi"o
Acquisition cost $89,215.50
10.
Laasad
r-
Expiration of lease
i ll.
-Dace opened 1968
-22.
R.W.tl.C.B. permit No. 66416
13.
s.s.w.M.B, permit No. 37-AA-004
14.
E.U.Y. No. P67-128
15.
Methane Monitoring System
i ys _ Hone one
Scheduled to be
Leachate Monitoring System installed FY 1981-82
16.
Capital Improvements
17.
Maintenance
IS. Nest Fiscal Year Budget Schedule
COMMEKS:
III-12
Y[CIUITV M A P
j Borrego
The Borrego Landfill is located in the Interior Zone. Information about the
site is included here for easy reference.
1.
Location 4 mite sosth of the east
end of Palm Canyon Road
j 2.
Closea on
Dal Tuesday - Saturday Sun 6 Mon
Hours __ 7:00 - 2:00_
i
3.
Property sise 42 acres
Landfill sirs 21 acres
}
4.
}
Ton/Day N/A
Service life 30 years
S.
Remaining volume 4SO.000 C.Y.
6.
Dai1T vehicle Total M/A
Weekend vehicle Total N/A
j 7.
Personnel 1 Operator
f
8.
Pquipmenc 1 Tracked 9" Loader - Water truck
9.
Owned _ County of San Dim
Acquisition cost
10.
Leased
Expiration of lease
U.
Date opened January - 1973 (as buMinq site in 1960)
12.
S.W.q.C.7. remit Ma. 72-10
13.
S.S.7.M.B. permit No. 37w AAA 006
—
14.
S.O.P. no. P72.85
} 13.
Methane Monitoring System Noel
i >'
Leachate Monitoring systemNone
. 16.
Capital leprovemente
17.
Maintenance
12.
Next iiseal Year Budget Sehedule
CO!!0'M:
VTCIN1TY M d P
i
III-14
O
n
W
Q
2
O
m
III.15
Otay
The Otay landfill operated for a long time as the only Class I and Class II-1
disposal area in the County of San Diego. A separate discussion of this
aspect of the Otay landfill is contained in the hazardous waste chapter.
The site accommodates a variety of special wastes including sludges,
cleanings from wastewater treatment facilities, cannery wastes, wastes from
the kelp harvesting and processing industry, and slaughterhouse wastes.
1.
Location 805 S. Main Street.10tay
yssloy Rnad)
2.
Dap 7 0ays
Houcs 7:00-4:00(Mon.-Fri.) 7:30-4:00(Sat.-Sun.)
3.
Property at= SOD acres
Landfill sire
4.
Tom/Day 900
Service life 25 years
3.
Remaining VoLuma 34.00O.OJ0 C.Y.
6.
Dss17 Vehicle To CAL 360
weekend vakicie Total Sit.-660. Sun.-530
1.
Parsoanel 2 S.w.S.S.,_6 Ooerators.
2 Fee Collectors _
s.
gquipeant 3 Dozen. I Scraper.
I water truck
9.
Osmed Cowty of San Ole"
Acquisition cost $1,129.197.64
+
10.
Lsaeed 98.6 acres 0 -19-77
Expiration of leas 02-18-92
11.
Date opaec4 February. 1966
12.
R.w.q.C.R. Psratt No. 74.44
13.
s.s.w.x.g, Pernit No. 374A409
14.
S.U.P. M. P72-89 i C.U.P. PCC-72-1
15.
Methase Monitoring System ►fie
Lascbate Monitoring System In place
16. Capital1"rewwna
17. Maintenance
12. Nest fiscal Year Mgst Sdwdule
CO.OMM. :
VICINITY MA
10
III. 17
Ramona
Located in a highly agricultural area, the Ramona Landfill receives the
special wastes of -the surrounding poultry industry. The site regularly re-
ceives egg wastes, poultry residue and, on occasion, large amounts of dead
poultry during heat waves and various epidemics.
1.
Location loan R,old. Ram"& ~
• 2.
Day Closed Tuesday 6 Medrasday Hours _8100 to 4:00 Thursday to Monday
3.
property sis 80 acres Lendlill sass 37 acres
4•
Tod/Day soScrvies 11ls 20 years
3.
Reealaiag toles 319.000 C.Y.
A.
Daily Vehicle Total 60 veaiuet vehicle Total sat. 215. sun. 240
7.
iatyamel _—_ 1 Uoerator..l Fee collector
i.
yui�meac _1 Tncksd loader. 1 hater truck
9.
0saed ____County o1 San Oil" Acquleitios cost __S1.033,50
1 .
Leased t rpirstion of lease
U.
Data peset _(burning 1948) October 1969
12.
LI.V.Q.C.g. ftgm.t He. MR14 �!
13.
s.s.p.Mt.i. leamit No. 37-M-005
14.
S.U.P. NO.
13.
lkdwm lbsitering System Rye Loschste Monitoring system Hone
16.
Capital Sgrovsssats w
17.
mustseeeee
13.
text ftscal year &Apt Schedule
0�lwoMiit Closed: Tuesday, Wednesday. Thanksgiving, Christms. Now year's.
July U.N. Mai Hal Day. and Labor Day.
�tM1A1L''
.OW1Ii✓!
I
i
.0 w+
�w
,wr�.rtiivo y�acri
VICINITY MAP
III -18 I``M
�.1
III-19
c_ E
J .J
7
6 � `
O W
•
W
� J
1
1
--n.siE-Z—�C-S
San Marcos
The San Marcos Landfill, like the Bonsall site, is underlain with intrusive
granite rock. Original geol'ogical studies predicted a dearth of soil cover
available from the site, Beverly limiting its capacity. The site was
originally dismissed as a candidate for acquisition.
The availability of grant funds to build a shredding station and the State's
agreement to waive cover for shredded waste made the site viable. Both the
landfill site and the Palomar Transfer Station began operation in 1979.
Actual operating experience has identified our ability to rip more cover from
the site than originally predicted. Assuming that the site continues to
operate under current conditions, it is expected to reach capacity in 1993.
I. Location Ouesthaven San Marcos
2. pay Closed Sunday Hours 7:00 to 4:30
3. Property $irs 201 acres Lasdlin size 95 acres
4. Tom/pay 850 service life 15 years
S. lasulain• Volume 8,670,000 (Tout not reninlnq)
6. DILLY Vehicle total S7selumd Vehicle Total
7, perseaseL 1.S.H.S.S., 4 aperators. 2 fee collectors. I C.S.C.H.
6. Equipment 3 Dozers. 1 Scraper, 1 Hater truck
9, owned County of San Diego Acquisition cost $1,983.029.00
10. Laos" Expiration of lease,
11. Date opal June 1979
12. D.W.Q.C.B. permit No. 78-78
13. S.S.W.M.D, permit la.' 37-AA-008
14. S.U.P. Ho. P77.45 (PC 77-733)
33, Methane lbmitorins system Mont Leschate Honitorias system In plate
16. Capital Isprovsmests
17. VAift ssee
is. last Tiseal Year Budget Schedule
CONKUITSt
III-20
R
=200
III -21
Sycamore
The Sycamore landfill is located within the City of San Diego, near the
City of Santee. Major portions of the landfill were acquired from the
Federal Government as part of the Camp Elliott Land Disposal Program. The
site has a remaining useful life of 20 years. However, plans are
currently underway to establish a gravel mining operation on the site
which will remove the large cobblestone, thereby increasing its service
life by as much as another 15 to 20 years.
A portion of this site is leased to a private concern for the purposes of
composting poultry wastes into soil additives.
1. Location Mission Gorse. Santee (14494 Most Boulevard San Oleoo CA 92125)
2. Day 7 days Flours 7:30-4:30(Mon.-Friday)7:30-4.00(— Sat -Sun.)
3. Property six* 503'acrtt Lwaill sin
4. tbn/Day 900 Sestice life 20 ysars (kithout Rraysl operation)
S- 160a18in6 Velma 27.200.000 c. Y. (rithout itravel opsrseioa)
6. Drily vehicle Total 420 Weeksad Vehicle Total Sat.-I.030 - Sun.-840
7- Persossal 1 S.W,S.S.. 5 Operators, 2 Fee collectors
S. squlpsant 3 Dozers. 1 Scraper, 1 Water truck
9. owned County of San Dim Acquisition cost 1413.111.17
10. Lsused 28.5 acres 04-18-78 (Navy) Expiration of lease 04-17-83
U. Date opened Auauit 1962
12. t.W.Q.cJ. larsit No. 76-40
13. 3.3.W.M.S. Pettit !b. 37-SS-01S I
14. S-lr.P. NO. C.u-P. 6066/Awndeent /2
M Methane Monitoring Syster —f a Lesehate Monitoring Systse _Ln Alas
16. capital loproweeats
17. Maintenance
18. Nexc PiscaL Year Budget schedule
CONN : Closed: Thanksgiving, Christsrs. Now year's
SYCAMOPE
sA NITA RY
LA WDrILL
VICINITY M ',n
III-22
ou
1--
-N-
SYCAMORE
LEGEND
h .... m Property Line
Landfill Limits
HI.23
Military Disposal
The urban region of San Diego County includes the Camp Pendleton Marine Base.
The Base operates its own disposal system. Therefore, this 209-square-mile
area is omitted from calculations of refuse generation and disposal.
Standard sanitary landfill practices are followed by base personnel and
civilians who operate this system.
A study of resource recovery opportunities has been made. Conclusions from
the study are being developed.
The Eleventh Naval District utilizes City and County disposal sites.
FUTURE DISPOSAL NEEDS FOR THE SAN DIEGO REGION
To evaluate the adequacy of existing landfill facilities it is necessary to
compare their remaining capacities with the expected future volumes of waste
and any compaction of the waste.
Information on remaining projected capabilities was obtained from the City of
San Diego and the County.
The information obtained is then fed into the Solid Waste Allocation Matrix I
(SWAM I). SWAM I then projects wastesheds for various solid waste facilities
based on the assumptions in the matrix. A complete discussion of the basic
assumptions used in this matrix is included in the Appendix (A-III-1) to this
Plan.
In brief, SWAM I uses population predictions based on growth plans and actual
census data, identifies existing facilities and establishes the shortest haul
distance to assign trash from its area of generation to a particular disposal
facility.
Using projected remaining capacities and predicted volumes based on the above
information, the Matrix identifies closing dates for facilities. SWAM I then
reroutes the annual volume of trash to remaining or newly identified
facilities.
III-24 --
In order to project future disposal needs for the San Diego region, a number
of "scenarios" were developed. These conditions were programmed into the
matrix. For each different set of conditions, SWAM I then predicted future
landfill disposal capacity.
z
Figure III-6
w The first matrix run (Figure III-6) shows our existing, urban area facilities
as of 1982.
These include the Otay, Sycamore, Montgomery, Miramar, Bonsall, San Marcos
and Ramona Landfills and the Palomar Transfer Station.
Current service areas can be identified by using the legend which appears on
the left side of the figures. Waste processed at the Palomar Transfer
Station is shipped to the San Marcos Landfill for disposal.
Figures III-7 & 8
Figures III-7 and III-8 represent a "do nothing" condition. The matrix
assumes that there would be only existing solid waste facilities.
The run also assumes: 1) that trash will be compacted to the contract
density of 1200 pounds per cubic yard, 2) population growth in San Diego
County will increase 10% over predicted amounts as demonstrated by the 1980
Census data. 3) The City's West Miramar facility opens when the existing
Miramar Landfill closes in mid-1982. 4) The West Miramar site will have a
capacity of 35.6 million cubic yards. 5) Trash generation factors do not
change.
Figure III-7 shows the service areas for the year 1988. No new facilities
have been added. By this time, only the Bonsall Landfill has closed. The
trash routed to Bonsall would then be received at the Palomar Transfer
Station. However, all waste received at Palomar Transfer Station is disposed
of at the San Marcos site.
•-�` III -25
ZMA
Figure I11-8 dramatically represents the future disposal picture without an
new solid waste facilities on line. By the year 2000, the Ramona (1994),
West Miramar (1998), Palomar Transfer Station and San Marcos facilities
(1993) have all closed, leaving only the Otay and Sycamore Landfills to serve
the projected 2.808 million population which will generate 3.107 million tons
of solid waste that year.
Figure III-9 b 10
The next two figures (III-9 and III-10) assume that by 1988 only the SANDER
Plant has been added to the existing solid waste system.
The following assumptions about SANDER have been made:
1. The Plant is located in the South Bay Area.
2. The Plant accepts 1200 tons of solid waste per day. ,
3. The Plant becomes operational in 1987. '
All other conditions applied to scenario one, the "do nothing" alternative,
---�' remain the same.
As with the "do nothing" conditions, the 1988 impact of the SANDER Project is
minimal. Figure III-9 shows SANDER on line for the first time. Its
wasteshed is located in the southwest portion of the figure. It takes in
south and central county area trash and achieves a 90% reduction by volume
(80% by weight). Residue from the SANDER Plant is transferred to the Otay
Landfill for disposal.
Only the Bonsall Landfill has closed. Its waste has been routed to the
Palomar Transfer Station, assuming that it is operational. After receipt,
all Palomar Transfer Station waste is transferred to the San Marcos Landfill.
Figure III-10 shows wasteshed in the year 2000. The SANDER Plant has
extended the life of the West Miramar Landfill by 2-1/2 years. It will now
close in mid-2000. Other remaining facilities are the Otay and Sycamore
Landfills.
III-32
f.ti
t
Figure III-11 t
Figure III-11 builds on the successful implementation of the SANDER Project.
This -wn assumes that if SANDER can be operational by 1987, resource recovery
can also be on line at the Palomar Transfer Station with San Marcos Landfill
still open. This assumption was made since Palomar Transfer Station was
designed to accommodate this potential.
By the year 1990, a similar resource recovery plant at the Sycamore Landfill
has been added to the system.
These two plants are assumed to achieve the same volume and wt:ight reductions
of SAhuER, i.e., 90% and 80% respectively. However, unlike the SANDER Plant,
their capacities will not be limited to 1200 tons per day. Rather, they will
be capable of accepting all the raw municipal solid waste in the area. The
Sycamore and San Marcos landfills will be restricted to wastes not acceptable
at a resource recovery facility, like demolition waste and residue from the
respective resource recovery facility. Because of the 1200 ton per day
limitation of SANDER. Otay and Miramar landfills will receive some municipal
solid waste.
Under this alternative, by the year 2000, only the B onsall and Ramona land-
fills have closed. All others currently in the system have capacity
projections beyond the year 2000. Specific closure dates beyond that year
have not been calculated for this Revision.
Figure III-12
This final SWAM I projection has been produced to identify the existing
facilities in the year 2003. It assumes the three resource recovery plants
have been on line since 1990. West Miramar site has closed. Its waste has
been rerouted to the Sycamore Facility since SANDER has a 1200 ton capacity.
Table III-2 identifies projected closure dates for the existing urban area
landfills under the three sets of coixditions discussed in the preceding
section.
III-33
'16
=77-
'A
TABLE III -2
Projected Closure Dates
Conditions
Bonsall
Miramar
Montgomery
Otay
Ramona
San Marcos
Sycamore
Situation 1
No new facilities
1985
1998
1985
2004
1994
1993
2000+
thru year 2000
Situation 2
SANDER on line in
Mid
the So. Bay in
1985
2000
1985
2000+
1994
1993
2000+
1987 (1200 T/PD)
Situation 3
SANDER, Palomar
Transfer Station &
1985
2000+
1985
2000+
1994
2000+
2000+
Table III-3 shows the projected, regional haul costs for transporting the anticipated
! volumes of trash for the current year, 1982 and years 1985, 1990, 1995 and 2000. Costs
i under all three of the situations are shown. Costs are based on assumptions in SWAM I.
They are discussed in Appendix (A-III-1).
y
TABLE III -3
Projected Annual Haul Costs
(in millions of dollars)
Condition
1982
1985*
1990
1995
2000
Situation 1
$16.2
$17.7
$20.2
$27.1
$41.6
Situation 2
$17.7
$19.4
$26.2
$39.4
Situation 3
$17.7
$18.7
$21.0
$22.9
*included since this would be the year for the next Plan revision process to commence.
Table III-4 projects the remaining cumulative landfill capacity for the region in
millions of cubic yards. Again, capacity has been calculated for each of three
situations: Situation 1 assumes no new facilities in the system thru the year 2000;
Situation 2 assumes that SANDER comes on line in 1987 but no other facilities are added
through the year 2000; Situation 3 brings SANDER and the Palomar Resource Recovery
Facility on line in 1987 and the Sycamore Resource Recovery becomes operational in 1990.
Again projections for 1985 are made since that would be the year of the next Plan
revision.
`� III -42
i
TABLE III-4
Remaining Regional Landfill Capacity
(in millions of cubic yards)
1982
1985
1990
1995
2000
Situation 1
104.6
93.5
73.1
51.3
27.2
Situation 2
93.5
75.8
57.4
36.7
Situation 3
93.5
79.5
68.7
57.1
Landfill Closure Plans
In the past, landfill sites have often been closed without definite plans for
ultimate use. Landfill sites to be completed in the near future are proposed
for open space use. Table III-5 lists the currently operating landfills in the
coastal region and their probable final uses.
TABLE III-5
Landfill Site Probable Use Upon Closure
Site Proposed Use
Bonsall Open Space
Miramar (City of San Diego)
Montgomery (City of San Diego)
Otay Open Space and/or Park Site
Ramona Open Space
San Marcos Regional Park Site
Sycamore Open Space and Park Land
Sanitary landfilling is a fairly recent practice in San Diego County; 1951 by
the City of San Diego and 1954 by the County.
Table III-6 shows the historical use of existing sol-id waste landfills and rural
container sites.
COMPLETED LANDFILLS
There are 28 identified completed landfills within San Diego County. Figure
III-12 shows the locations of these comple%1:ed disposal sites.
III-43
W
LAW
TABLE III-6
OIVOSAL FACILITIES IN SAW DIEDO COUNTY
HISTORICAL USE OF EXISTOG 9DL10 WkSTE SITES WITHIN SAN OIMO
-AUG. 19E1 _1952_191981
�mo
ommmoommommmmmmmmm
=1111101111�mmmmmm
Bill
���������������■�000000000�000
���������0000000cccococ0000cooc
toe
oc000�0000c0000coc000000c00000
o�cocococ��occ0000000ee00000eo
0000cocoo�occo
ocoo�0000ce000
oococc000coo�cooco
00000000aoo
limccomecom
i■loo���������■����00000000coo
�■����������O��COC�IloEECOEooOC.
o • Rural Tnnafor Station
a • Sanit" Landfill
0 • Bornalta
e • CIce" Landflll
d • Dom IIt•cn LandfIII
III-44
FIGURE III-12
1 - V.. ^..1 nl-^/
I
r]
Ok
SUMMARY
96% of the solid waste in San Diego County is disposed of at eight landfills.
Based on current generation figures, the Bonsall, Montgomery and existing
Miramar landfills will close by 1988; the San Marcos and Ramona sites will
close before the year 2000. The City of San Diego plans to open the West
} Miramar site in 1982. However without additional facilities, it, too, will
reach capacity by the year 1998.
j In the year 2000, the Borrego, Sycamore and Otay facilities will be the only
available sites if additional facilities are not acquired and if resource
recovery is not developed. Acquisition, permit approval and facility
development can take as long as 10 years.
The SANDER Project is the only alternative facility currently being planned.
SANDER will have a design capacity of 1200 tons per day. Assuming it acheives a
90% reduction in volume, the SANDER Project will conserve approximately 600,000
' cubic yards of landfill space annually.
s '
w
The County of San Diego has identified the following alternatives for
averting a disposal crisis in the region:
1. Development of the SANDER project, proposed to come online in 1987.
2. Development of a replacement facility for the Bonsall Landfill.
3. Investigation of acquisition of additional acreage at the Otay and
Sycamore Landfills.
4. Development of resource recovery projects at the E1 Cajon, Sycamore, and
Palomar Transfer Facilities.
5. Development of an Interior Zone facility to replace the Descanso Landfill.
6. Other resource recovery systems will be implemented as they become viable.
III-46
0
Chapter IV,
RECOVEn,`81,E RESOURCES
The waste stream contains many valuable resources which can be separated and _
recycled. This saves both virgin materials and energy. Recycling aluminum
cans, for example, saves 95% of the energy required to manufacture from the
original ore. Recycling ferrous metal saves 74% of the energy; selected
plastics can save over 80%. Innovative thinking can expand this list.
Direct recovery of metals, glass, paper, non-ferrous metals, plastics and oil
can be accomplished at the source, at intermediate points such as transfer
stations, or at integrated refuse processing plants. Recovery through
conversion generally requires a processing facility. This effort is
described more thoroughly in Chapter V.
The purpose of this chapter is to discuss recycling in San Diego County.
The residents of San Diego County should be aware that they are facing a
virtual "garbage crisis". Many realize they must change their "throw -away"
Lifestyle. They are learning that waste products are not necessarily
"worthless trash". Rather they are valuable resources that can easily be
conserved, recycled or otherwise recovered.
The public's response has been encouraging. During 1980, over 61,000 tons of
post consumer materials were recycled back into industry. This does not
include the nearly 128,000 tons of ferrous metal shipped through the Port of
San Diego. Approximately 40% of the-County's newsprint, and 25% of its
aluminum is currently being recycled.
The recovery of materials is beginning to reduce the quantities of solid
waste that otherwise would have to be landfilled. The potential for further
reduction is great.
Recycling and separate collection of recyclable material is not new. In
fact, the highest recycling rates ever achieved were during World War II when
e—,
rates of two or three times higher than our present figures were attained.
After World War II, however, recycling rates dropped sharply and no real
public interest was generated until 1970. At that time the environmental
movement became quite active.
The strengthening of the oil producing/exporting countries' cartel during the
early 70's added momentum to the developing concensus that recycling really
is an important economic activity.
i
j Recycling Centers
San Diego County has a viable network of commercial recycling centers.
i Although markets for recycled materials have fluctuated dramatically in the
past, these recycling centers have become a stable and dependable source of
supply for certain raw and semi -processed materials. They can be expected to
contribute -„Ore as their operations become more routine and as manufacturers
become aware of the advantages of using recycled materials.
These recycling activities have grown into a multi -million dollar industry
i
which is highly labor intensive. It employs over 400 local people on either
a full or part time basis and is supported by an unknown number of additional
industries and volunteer organizations. Labor levels, however, are extremely
sensitive to market conditions.
The County of San Diego received a State Solid Waste Management Board grant
for construction of three "buy back" centers. They are located at County
facilities in the north, east and south County. The centers are to open in
April, 1982. They will be operated under private contract and will accept
paper, glass, aluminum, oil and other recycables as markets develop.
The City of San Diego has two drop off recycling centers. They are located
at the City's Operations buildings in the Chollas and the Rose Canyon area.
The City plans to add a center at their West Miramar site.
E
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1
IV-2
s �i
A Curbside Collection
Along with the development of recycling centers, the '70's saw various tests
of separate collections of recyclable materials.
In January, 1974 the City of San Diego instituted curbside collection of
newspapers. Because of several problems, the private dealer was unable to
profitably continue the collection.
Curbside collection of newspapers continued until September, 1977 when the
CETA funds expired. Because the revenues from collection did not equal the
costs, the program was not resumed. ,
According to EPA figures, there were over 216 curbside programs in 1978. Of
these only a few could demonstrate significant financial justification.
However, according to the EPA survey, reasons for the programs were mainly
resource savings and conserving landfill space not financial feasibility.
While curbside collection may not be financially rewarding, it does have a
legitimate place in municipal solid waste disposal options. Curbside pro-
grams rake for a more recycling aware public. However, this awareness is not
i always enough to -make a program successful. More projects wil] be estab-
lished as they become economically sound.
i
The specific realities of each program need to be examined to determine if it
is an appropriate choice or if other methods would serve better. In general,
curbside collection is best described as being neighborhood specific and
sensitive to local conditions and criteria.
Collection Bins - Civic and Charitable Organizations
Numerous collection bins have been placed at shopping centers, church parking
lots, etc. throughout the county by civic, charitable, and church groups.
They are provided to encourage volunteer, deposit of recyclable materials.
For the nest part, these bins are designed for newspapers and aluminum cans.
IV-3
The actual quantity of material col l cLted by these sources is unknown since
it is often sold to commercial collection centers rather than buyers from the
commodity market.
Collection Centers - Commercial Organizations
There is a viable netwo0% of commercial buyback centers throughout the
county. Others are being planned to expand the activity. During 1980, these
centers processed ever 61,000 tons of recyclable material. The table below
provides a breakdown of the material processed in 1980.
TABLE IV-1
RECYCLABLE MATERIAL PROCESSED (1980) San Diego County
Commodity Tons
Aluminum 4,035
Newsprint 28,113
Cardboard 16,897
Plastics
Nigh -grade Ledgers 11,288
Glass 1,050
Other (Film) - 6
TOTAL 61,389
The SANDER Project conducted a survey of commercial recycling centers in its
wasteshed. Of those responding, two indicated they planned to add aluminum
to their processing activity within the next 18 months, one will add news-
print, and one plans to add plastic. None of the commercial centers plan to
process glass because of the absence of near -by markets. Used oil was not
considered in this survey. Although recyclable, it requires different equip-
ment and handling procedures.
The 61,389 tons removed from the waste stream by commercial recyclers repre-
sents 3% by weight of the total quantity. This represents approximately
120,000 cubic yards of landfill volume. This is nearly twice the quantity of
material recycled in 1978. Surveys of the commercial recyclers indicate that
the upward trend will continue through 1986'at a rate between 5% and 6% per w.
year. IV-4
Typically, the secondary materials industry is oriented to short-range market
requirements. Current demand for these materials generally determines both
the dealer's buying and selling prices.
The market has experienced major price fluctuations and supply -demand changes
in recent years. Recyclable materials are generally used as supplements to
virgin materials. They are in strong demand only when a firm's desired pro-
duction exceeds virgin material availability. Even slight changes in the
' volume of production can significantly influence the demand for secondary
t
materials and the prices paid for them.
The salvage industry is a labor intensive operation since recycled materials
are seldom received in pure condition. A typical salvage operation in San
Diego County consists of sorting, disassembly, breaking of joined material,
burning off contaminants and chemical recovery or laundering. Preparation
for shipment includes shredding, baling or bundling. Figure IV-1 shows a
,..� typical structure of the salvage industry and flow of commodities.
FIGURE IV-1
TYPICAL SALVAGE INDUSTRY STRUCTURE
SCRAP CONSUMING INDUSTRIES
DEALER— SPECIALIST BROKER
PROCESSOR DEALER
MW
REFUSE ���
z HAULER SMALL
I DEALER
CHARITABLE
SOCIAL SERVICE ORGANIZATIONS
ORGANIZATIONS AND SCHOOLS
1
SCAVENGER.
JUNKMEN
S I
r SOURCES
SOURCE: "Salvage Markets for Materials in Solid Wastes,"
United States Environmental Protection Agency (1972).
IV-5
x
f,
Informal Recoverable Materials Activities
Perhaps the most extensive recyclable activities are conducted by charitable
non-profit agencies. These organizations make door-to-door collections in
search of resalable commodities: textiles, used clothing and furniture,
household goods, repairable white goods. A portion of the goods obtained is
usually beyond repair and is sold as "junk" or wiping rags or may be
discarded as waste. However, the material becomes reusable merchandise
available to the public at the thrift stores each organization maintains.
The periodic recycling drives of numerous charitable groups and local civic
+ organizations, service clubs, churches and schools constitute an important
f
aspect of recycling. Collected items are generally sold directly to
! secondary materials dealers and constitute over one half of all the newsprint
i and cans recovered during favorable market conditions.
Second-hand dealers, as well as swap meets, garage sales or "flea -markets"
are also a part of the recycling picture. Discards may change hands several
times before they finally enter the waste stream.
San Diego Ecology Centre, Inc.
the non-profit San Diego Ecology Centre, Inc. contrit-lites to recycling
efforts in San Diego County. Partially funded by grant funds, by the City
and County of San Diego, and by private donations, the Centre assists
recycling efforts throughout the County. The Centre also functions as a
clearinghouse for environmental information and provides referral services.
Military Recycling
The military services have a program for reprocessing materials declared
surplus to the needs of military installations in San Diego County. At each
major military base is an arm of the United States Defense Supply Agency.
All reusable or recyclable items no longer needed by a particular military
activity are made available to units where they can be used. Recycled
IV-6
materials range from airplanes to pencil sharpeners.
PA spokesperson for the
Agency's center at the North Island naval Air Station indicated that such
management has significantly reduced the Navy's "waste to disposal". Only
absolute wastes now end up in the trash container.
OBSTACLES TO SALVAGING
Over the years industry has often found new materials to be cheaper than
recovered materials: natural resources have been plentiful; public policy has
favored them; environmental costs have been omitted from the price. Virgin
materials producers generally do not pay the full costs of the environmental
impact caused by their processing activities. Secondary materials users
usually receive no credit for removing these materials from the waste
system.
Capital gains treatment for profit, depreciation schedules, depletion
allowances and other tax write-offs encourage the use of virgin materials and
' place recycled materials at an economic disadvantage.
Mary regulatory provisions were instituted in the past when the national
emphasis was on industrial development. They now have the effect of limiting
markets for recyclable materials. In the light of current needs for resource
conservation and recycling, these provisions must now be reevaluated.
Tax legislation must be developed that encourages the use of recycled
} materials.
Scrap Metal Salvaging
There are presently six major scrap metal dealers operating in San Diego
County.
Local salvaging operations are dependent to a great degree upon foreign
markets. Prices paid for used ferrous and non-ferrous scrap tend to
w fluctuate substantially and unpredictably.
' IV-7
Ferrous Metals
Junked automobiles are the greatest source of ferrous metals processed in San
Diego County. According to a spokesperson for the Scrap Disposal Company an
estimated 50,000 to 75,000 automobile hulks were processed into scrap by this
firm during 1980. Most were brought in as flattened hulks from outside the
County and, in fact, many came from outside the State.
Approximately 128,000 tons of ferrous scrap were shipped during calendar year
1980 to Japanese markets through the Port of San Diego by Scrap Disposal.
(Scrap materials salvaged in San Diego are transported to the mill by rail,
truck or ship. No information is available on rail or truck loadings.)
Major uses for reclaimed ferrous products are as scrap raw material for the
steel industry, for copper mine precipitation operations and as steel scrap
after de -tinning. Demand is largely determined by three factors: (1) total
iron and steel production, which correlates with economic activity as a
whole, (2) the ratio of virgin metal to scrap consumed by the industry, which ;
is largely but not entirely governed by process mix and (3) export demand for
scrap.
Ferrous scrap is sold by grade. Prices have gone through periods of substan-
tial fluctuations during the past five years.
The County's Palomar Transfer Station which Loses a belt type magnetic separ-
ation over its shredded refuse conveyor, removed approximately 3,000 tons of
ferrous scrap from the waste stream during fiscal 1980-81.
Markets for ferrous scrap at this time are seriously depressed by the reduced
demands of foreign consumers. In addition, shredded, light weight, ferrous
scrap separated from municipal refuse contains organic impurities and other
contaminates in such quantities as to make marketing difficult without an
additional processing or cleaning step. The costs associated with such
additional steps must be weighed carefully. The initial ferrous recovery
operation at the Palomar Transfer Station required installation of a
secondary clean-up process. �--
IV-8
04
Non -Ferrous Metals
Aluminum is the most important of the non-ferrous metals. While there are
well developed salvaging activities in other -non-ferrous metals such as _
copper, brass and lead, the intrinsic value of these materials is so widely
recognized that they are not discarded in large volumes into the solid waste
stream.
Recyclable aluminum has a current market value of $575 to $650 a ton.
In 1980 over 4,000 tons of aluminum were recycled in San Diego County.
Through the efforts of the major aluminum compa-ies (Alcoa and Reynolds) and
the major users of aluminum cans (beer and soft drink suppliers) the
recycling effort in aluminum has become institutionalized into a major in-
dustry. We estimate that approximately 25% of the aluminum beverage cans
used in San Diego County are recycled.
{ Waste Plastics
"Plastics" is a generic term covering many organic, synthetic or processed
materials that are molded, cast, extruded, drawn or laminated into objects,
films, or filaments. Of the 2.69 billion pounds of plastic material used in
the United States in 1980, approximately 85% were thermoplastic types which
can be remelted and recycled. The other 15% were thermosetting which "set"
after forming and require additional steps for recycling or resource
recovery.
In 1970 plastics comprised 2.0% of the collected waste; in 1980 plastics make
# up 6.0%. It is expected that the proportion of plastics in domestic refuse
will continue to increase as the number of applications grows unless somehow
S
discouraged through media or legislation.
The State Solid Waste Management Board is promoting markets for reclaimed
plastic materials as well as other materials from the waste stream.
IV-9
Many innovative products are being manufactured in Europe and Japan from
reclaimed plastics. Rising prices for natural gas and oil (the raw materials
for plastic) are causing United States manufacturers to take a new look at
the possibilities of recycling plastics at their highest energy level. In _
the meantime, the high Btu value of the various types of post consumer
plastics makes them attractive for use in energy conversion equipment when
markets are not available for higher energy level recycling.
Waste Paper
Reclamation of waste paper has great potential for reducing the total amount
and volume of solid waste requiring disposal. Of all the material found in
municipal waste, paper is the largest component, constituting nearly 45% (wet
weight) of the waste stream.
Once paper enters the waste stream it becomes contaminated by mixture with
other refuse. Because of the high costs of recovery and decontamination,
paper has seldom been salvaged for recycling from this source. Such
re�.lamation must await the development of different techniques for separation
or energy conversion.
At the present time newsprint and corrugated are the waste papers which are
most readily diverted from the solid waste stream, salvaged in quantity and
recycled with a minimum of expenditure of money and effort. High quality
mixed papers including such items as bond papers, ledger stock, computer
print out sheets and punched data cards are also an important but less
voluminous category.
Newsprint recycling can save 50% of the energy used in virgin paper
manufacturing.
A 1980 survey made of San Diego County recyclers indicated that over 28,000
tons of newsprint were recycled during the calendar year. This is
approximately 40% of the newsprint available for recycling. This percentage
could double as expanded processing facilities come on line in the area.
t
4
r I V-10
0
Ah
White Office Paper
White office paper makes up approximately 8% of all paper found in the
municipal waste stream. Instead of throwing away used white bond paper, _
computer cards, printouts and other high grade papers, offices can collect
' and sell them to local recyclers and waste haulers at premium prices.
Approximately 11,288 tons of high grade papers were recycled during 1980.
The County of San Diego's office paper recycling effort is yielding
approximately 5 tons per month from participating County facilities. This
program will be expanded during 1982-83.
The City of San Diego, Solid Waste Division, began an office paper recycling
program in 1981. There is no cumulative data available on this program.
Other cities have either individual programs (Vista) or participate in the
coordinated effort of the Ecology Centre (Chula Vista).
More effort must be expended towards increasing this type of recycling
effort.
Waste Lubricating Oil
Lubricating oil is not generally thought of as an element of solid waste.
Its disposal and recoverability, however, are of particular concern to solid
waste management because of its hazardous nature, The principal postcustomer
sources of used lubricating oils are accumulations from crankcase drainings
at service stations, automotive repair garages, aircraft and commercial
automotive fl eet operators.
On the basis of the number of motor vehicles registered in the County and
projected miles driven, it is estimated that lubricating motor oil is
currently being consumed at an annual rate of 6 million gallons.
The "Used Oil Recycling Act of 1977", or SB 68, encourages waste oil
reclamation by prescribing requirements for the collection, storage,
IV-11
i
i
i
i
recycling, use and disposal of used oil. Its intended purpose is to conserve
irreplaceable petroleum resources. Responsibility for implementing
provisions of the Act is assigned to the State Solid Waste Management Board.
The Act specifically requires the Board to:
I. Encourage the establishment of voluntary used oil collection and
recycling programs.
2. Adopt rules requiring oil retailers to post signs indicating the
location of a nearby collection facility.
3. Adopt regulations governing the operation of collection facilities,
used oil haulers, and of used oil recyclers.
" 4. Conduct a public information program regarding the need for and the
benefits of collecting and recycling used oil.
5. Encourage the procurement of re -refined automotive and industrial
oils for all State and local uses.
6. Submit an annual report to the Legislature analyzing the
effectiveness of the program.
While used motor oil is a valuable resource, it is also identified as a
hazardous waste under EPA regulations. Such disposal is therefore also
governed by the rules and regulations established for the disposal of other
types of hazardous wastes.
There are two major markets for used oil: as a boiler or heating fuel or re -
refined for reuse as a lubricant. About 80 percent of the waste oil can be
recovered by reprocessing at a saving of approximately 70 percent of the
energy required for initial processing.
F
i
Of the estimated 6 million gallons of automotive -type lubricating oil used in
San Diego County annually, an estimated 3 million gallons, or 50 percent, is
recovered for reuse. Half of the recycled oil is burned as fuel and half is
i recycled for reuse.
s
s
Customer preference for new oil continues to persist. In future years, as
sources of natural crude oil are depleted, there will be p greater dependency
upon recycled oil as a motor lubricant.
4
I V-12
In San Diego County, there are six companies reclaiming used oil. Five of
these reclaim for burning, asphalt processing, tar paper manufacture or
energy reclamation and one, Nelco Oil Refining Corp., reclaims for recycling
purposes. _
Sears, Roebuck & Co. outlets have an active oil recycling program. As a
' consequence, the Sears chain is one of the major suppliers of used oil to
Nel co.
a Another major source of waste oil is from the cleaning of ship's tanks and
bilges, and tank pumpings. The U.S. Navy has installed shore -based
facilities to recover contaminated and other shipboard fuels not suitable for
fleet activities. Waste oil accumulations from these sources are upgraded
a and reused as industrial fuel by utility firms and maritime fleet owners.
While it is seldom practical to attempt to re -refine all used oil generated
in an area, the possibility exists to increase substantially the quantity and
ratio now being re -refined in San Diego County.
Waste Glass
In 1972 glass was 5 to 6% of the waste stream. By 1977 the percentage
dropped to 4.5% to 5.5% reflecting the increased use of aluminum cans in the
soft drink industry. Further decreases in percentage of glass can be
expected as plastics make further inroads in the soft drink industry.
On the basis of 4.5% glass, San Diego County's 1980 waste stream contained
89,145 tons of glass. Only 1,050 tons were recovered by the various
t
recycling programs in the County during the same time period. This will
continue until a near -by industry is developed to provide a market demand.
At present, Los Angeles area glass container manufacturers provide the only
1 market for this area. As an aggregate, glass is not competitive with crushed
rock, which is abundant in San Diego County.
Glass has a high negative value in any form of further waste processing.
Where shredders are used, glass increases the wear on hammers by as much as
IV-13
S0%. In incinerators, glass represents a sensible heat loss of 0.3 Btu/-
pound/degree F. It also contributes much to the slagging problems exper-
ienced in furnaces and grates and adds to the weight of the ash that must be
disposed of. In pyrolytic reactors, it represents a sensible heat loss and
adds to the weight of the char which then requires further processing. In
fluidized bed reactors, it imposes strict temperature control requirements to
avoid its characteristic fritting temperature and contributes to the inerts
loading that must be removed from the reactor.
Even in low technology, mechanically -assisted, hand sorting operations glass
presents a hazard to operating personnel in the form of cuts from flying
shard. For these reasons, as well as to reduce waste stream volumes, glass
should be removed from the waste stream by source separation to the fullest
extent possible.
SUMMARY
The United States consumes a disproportionate share of the world's available
raw materials and energy. The depletion and rapidly rising costs of virgin
materials increases the need for recyclable materials recovery programs. In
addition, the increased costs for waste collection and disposal and the rapid
depletion of suitable landfill space lend urgency to innovative development
of new programs for recycling as well as expansion and upgrading of those
already in existence.
Materials should be recycled at the point of highest energy value. Reuse,
for example, as represented by refilling empty food and beverage containers
can retain nearly 100% of the item's energy value. Reconstitution, such as
recycling aluminum cans back into new aluminum cans, retains nearly 95% of
their energy value -- lubricating oil approximately 70% and newsprint, 50%.
Markets for such materials need to be expanded and new markets developed for
other waste components. The SSWMB is promoting the recycling of plastics
from the waste stream. Grant funds totaling more than $600,000 (FY 80-81)
are being distributed to five (5) organizations in Fresno, Alameda and Los
Angeles Counties to develop and expand recycling and resource recovery of
I Y-14
plastics in California. Reports of findings from this effort will be
searched for opportunities for plastic recycling in San Diego County.
It no longer makes long-term economic sense to bury all our municipal solid
waste. Likewise, it is difficult to plan for a 10 to 20 year time -frame in
` light of the rapidly changing conditions and technology. Therefore, a
( flexible system that recovers both materials and energy from the waste stream
a
fits with the requirements of the future. As the decade passes, it will be
necessary to achieve a balance that (1) solves the County's solid waste
disposal problems, (2) recovers all the materials that are feasible to remove
I from the waste stream and (3) converts to useful energy that fraction which
cannot be recycled at a higher energy value.
0
9
When recycling programs make money, they will proliferate.
I V-15
C-H-A-P-T-E-R F-I-V-E
HIGH TECHdOLOGY RESOURCE RECOVERY
kj
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Chapter V
HIGH TECHNOLOGY RESOURCE RECOVERY
Resource recovery involves using materials from the waste stream and proces-
sing them to the extent they become useful. Recovery of materials such as
magnetic metals, glass, paper, non-ferrous metals and oil can be accomplished
by separation at the source, at intermediate points such as transfer stations
or at integrated processing plants. Low technology, labor intensive recovery
is described more thoroughly in the preceding chapter. Resource recovery
through transformation/conversion, which requires the use of more specialized
equipTx, t and generally requires a more comprehensive processing facility, is
described in this Chapter.
The purpose of this chapter is to discuss the basic justifications for
resource recovery, types of conversion processes applicable to the San Diego
region and County efforts and plans toward maximizing resource recovery
implementation.
There are at least four justifications for resource recovery beyond
production of energy: (1) reduction in solid waste management costs, (2)
reduction of some adverse environmental effects, (3) conservation of
resources, and (4) creation of local industry and employment.
Reduction of Costs
Resource recovery systems tend to reduce haul and disposal costs when con-
sidered as alternatives to or in combination with conventional methods of
disposal. Resource recovery facilities have been generally considered unpro-
fitablr, unless the life cycle cost approach was used. Recently, however, the
cost of energy has skyrocketed. The rising cost of oil has forced the local
utility company to raise rates as much as 60 percent in one year. Addition-
ally, the California Public Utilities Commission, using the Federal Public
V-1
W
Utilities Regulatory Act as a guide, is in the process of promulgating rules
favorable to small power producers. These developments have given projects
such as the San Diego Energy Recovery (SANDER) Project, a very favorable
economic outlook.
Reduction In Adverse Environmental Effects
Resource recovery reduces the amount of organic degradable wastes to be
buried. The organic fraction of solid waste is the primary source of
environmental pollution such as methane gas and leachate. Thus resource
recovery can diminish several potential environmental problems by converting
the organic fraction into energy.
The reduction in haul distance also reduces the exhaust emissions from
collection and haul vehicles. The economic value of the decrease in air and
water pyliutants, together with a reduction in the land area required for
waste disposal are difficult to determine. Such favorable effects, however,
must be considered when evaluating the total environmental impact of resource
recovery.
Conservation of Resources
Although resource recovery has social as well as economic implications, the
only measurable method of evaluating this benefit is through the potential
market value of recovered resources.
Two major problems in the evaluation of recovered resources are the dynamic
nature of the markets and the fact that the amount of a resource in the waste
stream decreases as its value increases. Very low quantities of a resource
in the waste stream may make recovery impractical. Wide scale application of
recovery procedures will aid in stabilizing the market, however, since it
will provide a supply of recovered materials that is relatively consistent in
quantity and quality.
V-2
Creation of Industry
The increased utilization of resource recovery in a region creates new
industry and employment directly related to the recovery function. New
markets which utilize recovered products in their manufacturing process must
be identified concurrent with increased recovery of material from the waste
a
stream.
The energy crisis of the '80s cannot be solved with large waste -to -energy
a facilities but they assist in making us energy independant.
STATE GOAL
The State 'Solid Waste Management Board's goal is to reduce the total amount
of resin!=—tial, commercial and industrial wastes now disposed of in land-
fills. The State Solid Waste Management Board through its various programs
and grants encourages recycling, reuse and waste -to -energy facilities
throughout the State. While not a specific mandate for resource recovery,
this goal underlines the high priority that resource recovery must be given
,by solid waste managers throughout the State.
A discussion of the current "state of the art" in resource recovery appears
in the Appendix (A-IV-1).
RESOURCE RECOVERY IN SAN DIEGO COUNTY
San Diego County has historically been in the forefront of innovative solid
waste management. In the early 170s, the County secured private and public
funds for the development and construction of the E1 Cajon Resource Recovery
Demonstration Project; in the mid -seventies, an Economic Development Adminis-
tration grant was secured for the construction of the Palomar Transfer
Station; and in the start of the 80's, the Board of Supervisors, together
with the City of San Diego, is actively supporting the San Diego Energy
Recovery (SANDER) Project.
V-3
1,31
Historically, landfilling of solid waste has been the most economical dis-
posal method. However, the ongoing costs of landfilling, including site
maintenance, long-term methane gas and leachate monitoring, as well as capi-
tal cost of replacement, when considered with the benefits of recycling and
resource recovery, make it advantageous to reconsider landfilling economics.
Research and development of new resource recovery techniques are in their
infancy. Maturation will come only through experience such as that which was
gained from the El Cajon Demonstration Project.
To advance utilization of alternative methods of solid waste disposal, in
1979, the Board of Supervisors as the agency responsible for regional solid
waste management, adopted a policy to:
`• 1) Continue to operate and maintain existing County landfills only
for the disposal of waste products and/or waste residuals which
cannot be accepted at transfer stations or other solid waste pro-
cessing facilities. ,
2) Identify candidate sites for the location of transfer stations or
other solid waste processing facilities as alternatives to land-
fill sites.
3) Whenever feasible, to utilize a shredding process to further
decrease solid waste volume.
4) Seek funding for urban resource recovery projects that result in
production of energy, animal food sources or other useful pro-
ducts.
5) Encourage lifestyle changes in order to reduce per capita solid
waste generation.
V-4
6) Support public information and education programs and the efforts
of other public and private community groups in establishing
resource recovery and conservation programs.
This was done with the awareness, however, that existing landfills will con-
tinue to be operated in order to accommodate those certain wastes and/or
waste residuals which cannot be disposed of by any other known method.
The El Cajon Resource Recovery Demonstration Facility
In 1975, construction began on a 200 ton per day municipal solid waste
resource recovery center. Located in the City of El Cajon, the project was a
$14.4 million cooperative effort among the Occidental Research Corporation
($8.2 million), the Environmental Protection Agency ($4.2 million) and the
County of San Diego ($2 million).
The project was designed to test the production of liquid fuel from the
organic portion of solid waste through a pyrolysis process. The production
of fuel was erratic.
A discussion of the demonstration project is included in the Appendix(A-V-2).
The E1 Cajon Facility provides a conveniently located site where new resource
recovery systems, equipment and technologies can be demonstrated. A complete
and functioning "front end" processing system is already in place and was
successfully demonstrated during start-up testing of the plant. Due to its
convenient location in an industrial park, approximately 7 miles from the
County"s Sycamore Landfill, the plant can be used as a solid waste processing
facility with any plant residue shipped to Sycamore.
The Board of Supervisors approved an advertisement of a Request for Proposal
for the Operation of the E1 Cajon plant as a solid waste facility.
The alternative to private operation of the plant is dismantling it and
terminating the lease with the City of El Cajon.
V-5
Palomar Transfer Station
i
The Palomar Transfer Station is a resource recovery and refuse transfer
facility on County -owned land in the City of Carlsbad. This facility shreds
solid waste for disposal at the San Marcos Landfill. Recovery of ferrous r
metals is also done at the project site.
The purpose of shredding is to save space and earth cover material. Shredded
solid waste compacts with less effort and has a greater density than
unshredded solid wastes. Less material is required for periodic covering.
Sufficient ground and building space has been reserved at the site to add
a resource recovery operation. Processes considered include: 1) an air
classifier to separate paper and other organics from heavier items, 2)
extracting equipment to separate out zinc, brass, copper and aluminum, 3)
glass extraction, if it becomes economically feasible, 4) automobile and
truck tire recovery, and 5) energy conversion process. The Co_,ty is
soliciting interest from the private sector in developing this capability.
San Diego Energy Recovery Project
The proposed San Diego Energy Recovery (SANDER) Project is a joint County and
City of San Diego project. The proposed project would involve mass burning,
the combustion (burning) of unrecycled municipal solid waste (MSW) as
received, in a furnace/boiler. The combustion process would produce steam,
which would then be used to generate electricity.
Mass burning uses trash instead of coal or oil to produce steam or electri-
city. Unrecycled waste is unloaded into a pit inside an enclosed building,
picked up by crane and transferred to moving grates where it is burned. The
heat produced during burning is captured as steam which can be converted into
electricity. In Europe and the Orient this process has been used
successfully for over 30 years.
The steam produced by SANDER can be used by industrial customers or converted
to electricity and sold, providing enough energy to power approximately
V-6
I
30,000 homes. Revenues received from energy sales and tipping fees will be
used to pay for the facility. Increased recycling will create new revenues
for private individuals and recycling businesses.
A complete discussion of the project is included in the Appendix (A-V-3).
A site for the SANDER project has not been designated. Siting criteria for
the SANDER project includes: 1) at least 10 acres; 2) good freeway access
with minimum residential street impact; 3) zoned or have the ability to be
zoned industrial; 4) sufficient waste in the service area to provide the
plant design capacity and recycling activities; 5) utilization of modern air
pollution control equipment; 6) support from the community for the proposed
site; 7) a back-up landfill for residue disposal; 8) a nearby market if steam
is to be sold.
Wasteshed
The SANDER Project will serve the southwest portion of the County. The
wasteshed area encompasses the area south of Interstate 8, the western edges
of Spring Valley and the City of El Cajon, all of the communities in the
Southbay and the southern -most section of the City of San Diego.
In 1987, the scheduled date for commencement of SANDER operation, the
available tonnage within the wasteshed is projected to be 1600 to 2000 tons
per day (7 days a week). The SANDER Facility has been sized to process
approximately 18% of the region's municipal solid waste. Th-*As leaves
significant tonnages available for recycling. Recycling activity in the
SANDER wasteshed has been estimated by the local recycling industry to be 307
tons per day by 1986. There is sufficient tonnage for both the waste -to -
energy plant and recycling/source separation in the proposed wasteshed.
If the proposed wasteshed becomes inadequate either due to a decrease in
solid waste collected or an increase in recycling, the boundary can be
adjusted to include additional tonnage without harm to the overall waste
disposal system or to recycling activities both within and outside the
V-7
wasteshed. Likewise, if more tonnage than the plant can process is
available, the wasteshed can be constricted as required.
Commitment of Waste
The assurance of an adequate supply of solid waste is essential to the
economic viability of a waste -to -energy project. If capacity -level waste is
not received at the facility on a consistent basis, tipping fees and energy
revenues will decrease and the project may incur the risk of not being able
to meet bond repayment and operating costs. Therefore, legal, voluntary and
practical controls regulating the commitment of solid waste to a waste -to -
energy project are examined thoroughly by the bond investment community in
order to ensure a project's financial strength.
Assured commitments of waste are normally evidenced by (1) legal controls --
including the Federal and State constitutions, legislation, and court rulings
-- implementing the "police power" authority to regulate collection and
disposal of solid wastes and (2) voluntary long-term agreements -- entered
into by the different local government agencies served to deliver waste to
the facility until bond repayment is accomplished.
The legal authority of the County and City of San Diego to commit waste to
SANDER is substantial. Both government agencies have extensive police powers
granted by the State Constitution and the Legislature to regulate the
collection and disposal of solid waste within their respective jurisdictions.
For example, the Nejedly-Z'berg-Dill, Solid Waste Management and Resource
Recovery Act of 1972 (Government Code Section 66700 et. seg.) delegates
primary responsibility for solid waste planning and management to local
governments with the County being assigned a primary role. Furthermore,
Government Code S66780.8 requires that solid waste resources necessary for a
waste -to -energy project's economic feasibility be specifically committed to
the project for the life of bonded indebtedness.
County Code Section 68.811 permits the Ccurty, "CO direct collected solid waste
to that facility which best suits the interest and needs of the County.
V-8
OWN
As a preliminary step, the County Board of Supervisors on February 25, 1981
approved in principle, a commitment by the County to direct the needed ton-
nage of municipal solid waste within its control to the SANDER Facility. The
Board also approved the basic wasteshed area making one adjustment in the
southeastern Chula Vista area to reflect current coiiection practices.
The San Diego city Council is expected to take similar action, as 30%-60% of
the municipal solid waste processed by the resource recovery facility will be
collected within the San Diego City boundaries. Thirty percent of the waste
is collected by City crews. The remainder of the waste is collected by
commercial haulers, whose operations are subject to an annual permit issued
by the City and County.
In addition to legal controls and anticipated voluntary agreements, the
County and City of San Diego have a strong practical control in that they own
the only disposal sites within a reasonable hauling distance of the SANDER
wasteshed.
Prior to issuance of bonds, the Board of Supervisors and San Diego City
Council will be requested to enter into formal arrangements to deliver waste
to the facility over the period of indebtedness. As an additional safeguard,
other cities within the wasteshed will be requested to enter into similar
agreements for long-term delivery of waste to the facility.
The combination of legal, voluntary and practical controls should assure that
the SANDER Facility operates at capacity level.
Recycling
The SANDER Board of Directors and the County of San Diego have supported
recycling as a compatible activity with the SANDER Project and encourage
increased recycling in order to reduce the need for disposal and to conserve
our natural resources.
V-9
Some of the current recycling activities in the SANDER wasteshed are:
1. There are 27 permanent recycling locations in the SANDER wasteshed.
2. Over 7 of these are in the million dollar plus category of business.
3. Last year In the SANDER wasteshed, over 6 million pounds of aluminum _
cans wvrth over 2.75 million dollars were recycled. This represents
a 60% recycling rate.
4. Over 6,000 tons of newsprint were recycled equal to approximately 40%
of what is available in the wasteshed.
5. Significant expansion plans are being carried out which will double
recycling rates for paper and bring about an 8% increase for alumi-
num. Additionally, plastics are being added to the materials being
recycled.
To achieve the SANDER Project's objective to increase recycling in the San
Diego area, the SANDER Project is planning to:
Encourage Increased Private Sector Recycling
Although there is a viable network of volunteer and commercial buy-back
centers, there is room in the marketplace for more activity. An increase
in the number of locations makes recycling more convenient and this will
serve to raise the recycling rate.
Insure That There is an Adequate Information and Referral Service
In order to best serve the citizens of San Diego, it is necessary to have
a recycling information clearinghouse. This information clearinghouse
should not operate any recycling centers and should be a non-profit
organization that has a reputation for fairness among the recycling
businesses.
Support Public Education Regarding Waste Reduction and Product Waste
There exists a need to educate the public that rather than a no -growth
society, recycling's aim is to achieve a no -waste society. The SANDER
project staff will be working and coordinating this educational effort
with the Ecology Centre.
Encourage the Inclusion of San Diego Businesses in an Industrial Waste
Exchange
The SANDER project staff will explore the possibilities of a waste ex-
change for the SANDER wasteshed. This waste exchange will help conserve
energy and resources while reducing waste management problems and dis-
posal costs. Various raw materials can be made available at an attrac-
tive cost to certain firms by their exchange from a company with no
further use for the material.
V-10
Conduct a Feasibility Study of Product Development fram Seleci d P
of the Wastestream onions
This feasibility stu4 will look at product development for:
1. the ash residue from the SANDER plant
t 2. the glass portion of the municipal solid waste
! 3. the increasing plastics portion of the municipal solid waste
4. the mixed paper portion of the municipal solid waste.
j When these possibilities have been evaluated SANDER staff will determine
if curbside collection is the appropriate recycling method. If
appropriate, staff will Rork with private industry to provide curbside
collection.
4
In conclusion, recycling has become more institutionalized in the 1980's due
! to the increase in energy costs, the shortage of raw materials and the
r political instability with foreign derived raw materials. Indeed, to a large
degree, our ability to maintain our economic well-being and to preserve a
livable environment will be related to our ability to increase our recycling
t rates.
A flexible system that provides both energy and materials from municipal
solid waste fits the future recycling trends. As the decade passes it will
be necessary to derive the correct balance that (1) solves the City and
# County's solid waste disposal problem, (2) recovers all the materials that
are feasible to remove from the municipal solid waste, and (3) converts to
useful energy that fraction which cannot be recycled.
The planning process for SANDER calls for ,the completion of -a dram
environmental impact report, issuance of a request for proposal and draft
contracts for the design, construction and operation of the facility,
evaluation and selection of one contractor, contract negotiations and
arrangements for financing.
`Following a three-year construction period, the plant should begin operation
in 1987.
An,imNortant part of overall planning for SANDER is a comprehensive program
U encourage and increase recycling in the SANDER service area. Through
s _
V-11
coordination of recycling and energy recovery activities, materials and
energy that are presently being thrown away will be taken out of the
waste stream and put to productive reuse.
SANDER provides an alternative to filling San Diego's urban canyons with
refuse. Without SANDER, open space will continue to be used as landfills,
new sites will be located far from urban areas, thus significantly increasing
hauling costs and filling up yet more of our canyons.
SUMMARY
The County of San Diego has taken an active role in promoting and furthering
resource recovery. During the period of this Revision:
1. The County and City of San Diego will continue the planning and
implementation of SANDER.
2. The County Board of Supervisors as the regional planning authority for i
solid waste management shall continue to assess the applicablity of
resource recovery for other regions of the County.
3. The County and City of San Diego and other cities in the SANDER warceshed
will commit wastes in the SANDER wasteshed to the project during the
period of bonded indebtedness.
4. The Coup;- and City will support increased recycling and reuse of valu-
able resources in the wasteshed area of a resource recovery facility.
5. The County and City will work with state agencies to increase cooperation
and support of resource recovery.
V-12
C-H-A-P-T-E-R S-I-X
THE INTERIOR ZONE
I
04
CHAPTER VI
THE INTERIOR ZONE
The solid waste management system of San Diego County has been divided into _
the urban and interior regions. This chapter is concerned with solid waste
management in the interior region.
This region occupies approximately 65 percent of the County's land area with
only 3% of the County's population. Solid waste management in the Interior
Zone is the responsibility of the County's Department of Public Works. Serv-
ices currently provided include regulation of solid waste collection firms
and operation of ten rural container facilities and one sanitary landfill.
Figure VI-1 shows the Interior Zone and identifies the 10 rural container
sites and the Qorrego Sanitary Landfill contained therein.
COLLECTION OF SOLID WASTES
F '
Solid waste collection service is not mandatory in the interior region.
Residents and commercial establishments may subscribe for collection service
from permitted firms, or they may transport wastes to appropriate facilities
s
themselves.
There are five firms providing collection service to the area at this time.
These companies obtain permits issued by the County. This allows them to
contract with households and businesses to collect solid wastes in specified
3
areas.
All of the service areas have residential service available to customers.
Table VI-1 lists the interior region collection service areas, collection
companies and their standard rates for residential curb service as of
October, 1981. These rates fluctuate periodically. The collection service
areas are delineated in Figure VI-2.
VI -1
FIGURE VIA
9
Figure VI-2
INTERIOR REGION SOLID WASTE COLLECTION SERVICE AREAS
♦.(� �p p e �p a pr p N
�I f1G NN RNYI
Table VI-1
Interior Region Collection Service Areas
Collectors and Rates
Monthly Service Rates
Sub -Regional Area Company Rural or Backyard Other
Alpine All American 12.08
Ramona Country Disp 7.00
OLD 8.50 to 15.50 5.00 (Senior
Palomar -Julian OLD 8.50 to 15.50 Citizen Rate)
Inland Disp N/A*
Laguna -Pine Valley All American 12.08
Mountain Empire Trk. 10.00
Mountain Empire All American 12.08
Mountain Empire Trk. 10.00
Anza OLD N/A*
Borrego Springs OLD 9.60
*County permits require that collectors provide both residential and
commercial services; however, there are no residential accounts in this
3 service area at this time.
i
r
! Solid waste generated in the State, Federal and private campgrounds in the
interior region is collected by private haulers under contract with the
j appropriate party. Campers, however, often take their own wastes to the
,
nearest rural container site.
I
The County requires that permitted haulers service each account at least once
a week. The Department of Public Works does not regulate collection rates,
however, all permitted contractors are required to file rate schedules and to
notify the Department of any rate changes.
RURAL CONTAINER SYSTEM
The San Diego County rural container system provides modern refuse collection
stations for the interior region of the County. The system was designed in
1971 in response to legislation prohibiting the continued burning of solid
wastes by public agencies. This law forced the closing of area open -burning
dumps.
VI -4
ev'_,
At this time there are ten container sites: Palomar Mountain*, Sunshine
Summit*, Ranchita*, Boulevard,. Campo*, Julian*, Vallecito*, Ocotillo Wells,
Barrett Junction and Descanso. The six located at former burn sites are
identified with an asterisk.
Description of Facilities_
While the container site represents a disposal facility to the back county
resident who uses it, it is more accurately a temporary stogy facility
pending its transfer to a sanitary landfill for permanent disposal.
Each site accommodates between five and 26 six -cubic -yard steel refuse bins,
alone a loading dock. Some bins have hinged lids intended to control the
breedjng of flies and o;:her vectors, to limit fire hazards and to protect the
contents from rain.
FIGURE VI-3
COUNTY RURAL CONTAINER SITE
W,
TYPICAL. LAYOUT
RURAL CONTAINER. STATION
COUNTY OF SAN OIEGO
VI -5
The five larger volume stations have large bins known as "drag-ons" for bulky
waste. Smaller stations (Valiecito, Ocotillo Wells, Palomar Mountain,
Sunshine Summit and Ranchita) have fenced areas where bulky items are dumped
on the ground. _
All rural container sites are fenced to prevent the blowing of litter. A
drawing depicting the typical arrangement of a County Rural Container Site
appears in Figure VI-3.
Initially, all rural container sites were open 24 hours a day, seven days a
week for the user's convenience. It was deemed uneconomical to restrict
hours and maintain a fee collector for the low volumes of waste deposited.
Signs were posted to instruct the public in the use of the s•7te.
The container sites at Palomar Mountain, Sunshine Summit, Ranchita,
Vallecitos, and Ocotillo Wells are still open, unattended 24 hours a day,
j seven days a week.
Cost to the County to provide this service escalated from $300,000 (1976) to
almost $1 million (1981). In April, 1981 the Board of Supervisors directed
that fee collection be initiated at two of the higher volume sites (Julian,
Descanso). In July, 1981 fee collection was expanded by the Board of
Supervisors to a total of five sites.
The County has contracted with private collection firms for transport of
wastes deposited at the rural container sites. Frequency of collection
varies depending on the needs of the site, contract arrangements, and
seasonal demands.
Table VI-2 contains collection frequency schedules for each site and
indicates the landfill used for disposal.
VI-6
F-0 1
LAMW
Table V1-2
Rural Container
Collection and Disposal Information
Container Collection Frequency*2
Contracted
Landfill(s)
Site (times per week)
Transporter
Used
Boul mrd*1
Campo*
2
All
American
Sycamore
Ocotillo Wells
2
1
All
OLD
American
Inc.
Sycamore
Borrego Springs
.allec*lo
Julian
1
3
OLD
Inc.
Borrego Springs
Ranchita
2
OLD
OLD
Inc.
Inc.
Ramona
Borrego Springs
Sunshine Summit
2
OLD
Inc.
Ramona
Palomar Mountain
Barrett J�nction*1
2
2
OLD
All
Inc.
American
Ramona
Sycamore/Otay
Descanso*
4
All
American
Sycamore
Open Friday -Monday
*2May
8am to 5pm
vary subject to
seasonal demands.
Extent of Use
Fiscal year 1973-74 tonnage records indicated that 7,552 tons of waste were
deposited in the Interior Zone container sites. By fiscal year 1980-81 this
amount had risen to 15,587 tons (see Table VI-3). In April, 1981 fee
collection was started at two of the container sites. By July, 1981 five
sites had fee collectors. An analysis of site use since the introduction of
fee collectors has shown that tonnages are declining. Projected tonnage for
FY 81-82 was 8,888 tons. Note that the Descanso facility, originally a
sanitary landfill, became a container site in FY 79-80.
Table VI-3
Interior Zone Container System
Annual Tonnages (FY 1973-1982)
roj
Site 73-74 74-75 75-76 76-77 77-78 78-79 79-80 80-81 P61-82 ed
Ranchita 151 165 222 234 304 330 256 246 39--- 4
Vallecito 99 104 113 154 183 176 227 238 258
Boulevard 1171 1108 1812 1873 1652 1290 1157 1388 530
Campo 2004 1790 2635 2925 2857 2441 2391 2762 734
Julian 2832 1852 2477 2879 2794 3246 3414 3283 1594
Palomar Mtn. 467 387 527 507 606 474 756 579 542
Sunshine '3ummit 716 676 960 937 862 751 694 901 786
Ocotillo 112 119 151 148 199 240 230 239 236
Barrett Junction -- -- 233 718 914 1340 1645 2647 1028
Descanso -- -- -- -- -- -- 4800 3304 2786
Total 7552 6201 9130 10,375 10,371 10,288 15,570 15,587 8,888
VI -7
Costs
In FY 1 980-81, $878,868 was spent on interior region container system
contracts. Based on the overall tonnage of 15,587 the average cost per ton
was $56.38. Costs per ton for each sector are shown in Table VI-4.
As mentioned in the previous section, since the addition of fee collectors at
five of the ten container sites, a marked reduction in tonnage has been
observed. If current trends continue, staff projects a 43% reduction in
waste tonnage during the 1981-82 fiscal year. Likewise, operation costs are
also projected to decline.
Table VI-4
Contract Cost Data for Rural Container Sites
(Actual FY 1980-81, Projected 1981-82)
FY 80-81 Projected Projected
FY 80-81 Annual FY 81-82 FY 81-82
Site Tons Costs Cost/Ton Tons Ann. Costs
Descanso
3,304
2,786
Barrett Junc.
2,647
$594,871
$58.89
1,028
$2519500
Campo
2,7162
734
Boulevard
1,388
530
Ocotillo Wls.
239
$ 41,487
$86.98
236
$ 46,500
Vallecito
238
258
Julian
3,283
$164,526
$50.11
1,594
$ 60,700
Ranchita
246
394
Sunshine Summit
901
$ 77,984
$45.18
786
$ 70,350
Palomar Mtn.
579
542
Totals 15,587 $878,868 11 8,888 $429,050
VI -8
i
DISPOSAL OF INTERIOR ZONE WASTES
Most wastes from the interior region are transported for landfilling.
Illegal burning and dumping also occur but existing enforcement activities _
appear to be adequate. The observance of smoke at an unauthorized location
alerts enforcement personnel from the State Forestry Service, the Air
Pollution Control District (APCD) and fire districts. The APCD also has
seven enforcement personnel in the field on a continuous basic to watch for
violations. The Department of Public Works provides compliance officers who
investigate reported illegal dumping to determine responsible parties and to
ensure clean-up.
Burning
Most of the Interior Zone is located in the Eastern Air Pollution Control
District, where burning of refuse is permitted. In this district, yearly
permits may be issued to residents of single family residences and duplexes,
�i allowing them to barn their yard clippings and other refuse, except during
periods of extreme fire hazard.
! ".,
Permit issuance and enforcement is a function shared among the State Forestry
Service, the APCD and local fire districts.
The amount of air pollution caused by this procedure is considered to be less
harmful than the fire damage that could be sustained if the rural land was
not cleared of weeds.
Ashes from open burning are buried or transported to a transfer bin site or a
sanitary landfill.
Landfills
All wastes collected by contract haulers in the interior region are disposed
of at County sanitary landfills. There currently is one sanitary landfill
VI-9
located in the interior region of the County. The Borrego site is open
days a week, Tuesday through Saturday, 7:00 a.m. to 2:00 p.m.
Where more efficient, other wastes are transported to the Sycamore or Ctay
Landfills.
RESOURCE RECOVERY IN THE INTERIOR ZONE
Because of the low volume of solid waste generated over a large geographical
area, the Interior Zone offers limited resource recovery potential.
In 1981 the Board of Supervisors approved submittal of two grant applications
to provide partial funding for an incineration project on the site of the
completed Viejas Landfill and a mobile composting unit. Neither received
state funding.
Energy Recovery
There are currently no small modular incinerator units pvocessing municipal
solid waste in Southern California. The Interior Zone wastestream, which is
60 tons a day, and available "market", the adjacent Descanso Detention
Facility, made the Viejas project an excellent opportunity to demonstrate
small scale incineration in a Southern California air basin.
As energy costs for the adjacent Descanso Detention Facility increase, the
project becomes more and more attractive. A Request for Proposals from the
private sector will be solicited during FY 82-83.
Composting
Several public agencies and private individuals have expressed an interest in
estabiishing a composting program at the Julian and Campo rural container
sites.
Seasonally, these sites receive large quantities of brush and yard clippings.
Although fee collection has decreased these quantities, there appears to be a
sufficient interest to make a composting project feasible.
VI -10
To determine its feasibility, the Department of Public Works has arranged for
a limited trial at the Julian and Campo sites. This trial will take place in
the Spring of FY 81-82.
Both of these projects remain viable alternatives to the current system of
waste transportation in the Interior Zone.
Financing the Interior Zone
The initial Solid Waste Management Plan projected the need to establish a
mechanism to enable area residents to pay their fair share of the costs of
providing Interior Zone solid waste services. One appropriate mechanism was
the land use fee allowed under Section 25210.77e and 25830 of the Government
Code.
Land use fees may be levied by counties and county service areas,
specifically to be used for:
',. Acquisition, operation, and maintenance of County waste
disposal sites, and for financing waste collection, pro-
cessing, reclamation and disposal services, where such
services are provided. In establishing the schedule of fees,
the Board of Supervisors shall classify land within the unin-
corporated area based upon various uses to which the land is
put, the volume of waste occurring from different land uses,
and other factors.
While relatively inexpensive when it was inititated in 1973, costs for
transport of solid waste from the Interior Zone have escalated. This was due
in part to the closure of the Descanso landfill in 1979, the increasing
volumes being transported and the inflationary costs of that transportation.
Initiation of fee collection at five sites has reduced volume by
approximately 43%.
The Department of Public Works initiated a series of studies regarding waste
generation and rural container site usage in the region. As a result, a
benefit fee area and land uses within that area were identified. The
Department proposed the establishment of an Interior Zone region and a land
use benefit fee to recover the costs of service in that area.
VI -11
In the Spring of 1981 the Board of Supervisors directed that by FY 1983-84,'
80% of the costs of the Interior Zone system will be recovered by revenue
generated within that region. The remaining 20% of the costs will remain a,
General Fund expense. _
In order to implement Board direction, an Interior Zone Advisory Committee
(IZAC) was formed. The Interior Zone Advisory Committee is working with the
Department of Public Works on implementing the Board of Supervisor's
directions, which include direction to seek a landfill site in the Interior
Zone to decrease the amount of transportation necessary.
SUMMARY
! Fee collection at the five higher volume sites has resulted in a dramatic
drop in volume. Some of the volume is being handled by individuals on their
own property, either by recycling or on -site burning; some of the volume has
been redirected to County landfills, i.e., industrial and commercial wastes
which were improperly being deposited at the unattended Interior Zone sites;
some increased illegal dumping in the region has been noted.
During the period of this revision, the following actions will be
implemented:
1. By FY 1983-84, sources of funding within the Interior Zone will be
implemented. 20% of the cost of service in that area will be borne by
the General Fund.
2. The Department of Public Works will identify a solid waste facility in
the Interior Zone.
3. The Department of Public Works will continue to monitor volumes at
existing rural container sites and propose any necessary changes.
4. The Department of Public Works will, in conjunction with interested
i community representatives, pursue recycling and resource recovery
opportunities in the Interior Zone.
VI -12
C-H-A-P-T-E-R S-E-V-E-N
SPECIAL WASTES
I
ra
7-1
CHAPTER VII
SPECIAL WASTES
Special wastes are miscellaneous categories which require special Collection,
handling, or disposal. These include abandoned automobiles, agricultural
wastes, bulky articles, dead animals, sewage sludge, and tires.
Many of them lend themselves to reuse, however, not to the same extent as
those wastes discussed in Chapter IV. This chapter identifie
}
volume and disposal method for these wastes. s the current
OBSOLETE AUTOMOBILES
it Obsolete automobiles can contribute significantly to degradation
environment unless properly managed. Most vehicles eventually °f the
of as scrap metal. ally are disposed
P However, a significant number of them are ,jbandoned.
Owners either don't realize that other means of disposal are i,vail
a
unwilling to incur the costs of delivering the hulks to dismantlers.
or are s.
Abandoning motor vehicles on public roads is a misdeme
anor. Nonetheless,
automobiles continue to be aban
doned on public thoroughfares and in vacant
lots. Because of diminishing funds and increasingly higher costs of remov
abandoned vehicle abatement programs are not a high priority. al,
! The average size American made automobile yields approximately and a half tons of marketable scra p tely one to one
County have provided a major source •ofOscraptferrous automofor et in San Diego
both locally and overseas. When steel he steel industry
i prices are high, there is greater
r
incentive to sell to scrap processors.
AGRICULTURE WASTES
Agriculture wastes in San Diego County consist mostly of crop residues,
animal manures and stable bedding material. It is estimated that 338,80
? tons of such wastes were produced in San Diego County in 19780
�. While this
VII -1
represents a significant volume of the total annual solid waste generated,
only a small amount of it actually enters the municipal waste stream. Most
of it is burned on site, retrenched to the soil, converted into compost or
fertilizer, or piled on.or near the point of origin.
Estimated quantities of the principal categories of agriculture wastes
produced in the County are shown in Table VII-1 below.
TABLE VII -1
AGRICULTURE SOLID WASTES PRODUCED
IN SAN DIEGO COUNTY DURING 1978
SOURCE TONS (DRY)
Crop Residues 115,800
Poultry 66;700
Range Cattle 40,000
Horses & Stable Waste 68,300
Dairy Herds. 48,000
TOTAL 338,800
Crop Residues
Prevailing agricultural practices keep most of the agricultural wastes away
from the solid waste stream. Grain acreage waste is usually marketed as
feed. Straw is left in the field unless prices for livestock bedding justify
baling and hauling. Weather conditions permit the soil to absorb the residue
with a light disc -harrowing. On rare occasions and only in limited areas,
the straw and stubble are burned off.
Fruit and nut tree prunings are generally burned on site. While the techno-
logy exists for making wood chips and/or for converting the waste into
energy, it remains uneconomic. The State Department of Forestry is currently
experimenting with a program to convert its waste material into burnable wood
chips.
Vegetable residues remaining after harvest are plowed back into the soil.
VII -2
Poultry Wastes
There are 92 poultry ranches in the County. An estimated 66,700 dry weight
tons of chicken manure are produced annually from this source. Escalating _
} costs of commercial fertilizer have increased the demand for natural
fertilizers and thus virtually eliminated poultry wastes from reaching the
solid waste stream in the San Diego region.
The Prohoroff Farms in San Marcos and Woodward Sand and Gravel Company of
Lakeside are the two principal processors of poultry organics in the County.
Woodward Sand is currently leasing a 22 acre site at the County's Sycamore
Landfill. Poultry wastes are collected from nearby ranches and composted
with other organics such as wood shavings, dairy wastes and paper to produce
marketable soil additives.
Range Cattle Wastes
Open range beef cattle in San Diego County number about 40,000 and produce
about 40,000 tons of dry waste each year. This poses no disposal problem
since these wastes are spread over a large expanse of open pasture land and
are naturally recycled back into the soil.
Horse & Stable Wastes
The domestic horse population continues to increase in the County. Estimates
{
currently range from 35 000 to 37 000 9 , producing an estimated 63,000 tons of
manure. This does not include stable bedding. Little is known about
i
domestic horse wastes since they are usually disposed of on -site or utilized
a
to some extent by the region's mushroom growing industry.
i An additional 1800 racing and show horses are brought into the County each
year for the race track and the San Diego County Exposition. During their
? eight week stay, they generate an estimated 5,300 tons of stable waste and
i
bedding. This waste is currently being disposed of at sanitary landfills.
i
VI I -3
' The 22nd Agricultural District has commissioned a study to evaluate
alternatives to sanitary landfill of this waste.
Dairy Herd Wastes
The 34 dairy herds in San Diego County are producing an annual 48,000 tons of
dry manure. Because of the high cost of commercial fertilizers a strong
4 market exists for this product in the community. Therefore, none of these
1
wastes currently require disposal at a landfill.
Because of the high nitrate content, dairy herd bedding materials, along with
the manures, are being composted. Commercial composting operations blend
chicken manure and dairy manures into special blends for use by local fruit
and flower growing industries.
Projections
The horse population is increasing substantially in spite of rising feed -
costs. There was a 20% increase between 1973 and 1978. The acreage under
cultivation has increased from 56,300 acres to 85,200 acres. While crop
residues and horse manures are expected to increase slightly during the
coming years, poultry organics would appear as remaining constant and dairy
wastes may decrease somewhat. An update of these projections to the year
2000 utilizing current data is shown in Table VII-2.
TABLE
VII-2
AGRICULTURAL SOLID WASTE VOLUMES IN
SAN DIEGO
COUNTY'PROJECTED TO
YEAR 2000
TONS1990
SOURCE
1980
1985
1995
2000
CROP RESIDUES
127,699
162,294
207,960
265,420
338,745
POULTRY
66,700
66,700
66,700
66,700
66,700
RANGE CATTLE
40,000
40,000
40,000
40,000
40,000
HORSES
37,000
38,850
40,793
42,833
44,975
DAIRY HERDS
47,045
44,693
42,458
40,335
38,378
STABLE WASTE
5,300
5,300
5,300
5,300
5,300
VII-4
AiL
The Department of Public Works will continue to monitor developments in the
technology of utilizing animal wastes to produce methane or bio-gas, and
conversion of the waste slurry to a high-grade fertilizer.
BULKY WASTES
The estimated useful life of white goods before discard varies fran eight
years for a clothes washer to 20 years for a cooking range or i refrigerator,
as shown in Table VII-3.
TABLE VII -3
SERVICE LIFE EXPECTANCY IN YEARS, OF HOUSEHOLD APPLIANCES
Appliance Primary useful e Estilma a age at discara
Room air conditioners
15
10
Dehumidifiers
20
Disposers
10
Kitchen ranges
15
20
Freezers
20
Refrigerators
12
20
Dishwashers
10
Washers
5
8
-- Dryers
15
Water heaters
10
Source: Hai-naFook of Environmentalcontrol,
Volume 11
Richard G. Bond
and Conrad P. Straut
Many of these items are "traded -in" on new appliances or given to charitable
institutions where they are repaired. Those not repairable are sold as scrap
to the numerous scrap dealers in the area or find their way into the waste
stream.
s
i
Bulky wastes consume a disproportionate volume of landfill space and pose a
potential hazard to landfill equipment operators. They generally require
special handling by both the collector and the disposal operator.
Many waste haulers schedule special collection periods for bulky waste.
These are often in conjunction with annual clean-up drives. Such drives
range from "no fee" and "no limit" collection to a charge for each item
picked up. Bulk items are also collected by the City of San Diego during
special weekend community clean-up drives.
VII-5
0
DEAD ANIMALS
In urbanized areas of the County, dead animals could pose a serious health
threat unless disposed of promptly and properly.
Local governmental agencies have assumed responsibility for the removal and
disposal of dead animals from public property within their respective
juristictions. Veterinarian establishments, humane societies and animal
shelters and individual pet owners generally arrange for their disposal
needs.
4�.4
Estimates provided by local animal shelters and humane societies indicated
that some 112,000 small animals required disposal during 1979. About 20,000
were removed from the road system and 92,000 were destroyed at humane
societies, impoundments and animal shelters. Not included is an undetermined
number of animals requiring disposal as a result of experimental laboratory
work at medical and research institutions. An additional number of animal
carcasses are disposed of on -site as permitted in the rural areas of the
County.
With few exceptions, animal carcasses are collected by a private firm for
shipment to a Los Angeles area processing facility.
The City of San Diego provides a dead animal collection service to private
citizens on a request basis. Approximately 5700 animals were picked up in
1960 and disposed of at the City's Miramar Landfill.
The removal and disposal of animal carcasses in San Diego County can become a
serious health problem if not properly managed.
SEWAGE SLUDGE RESIDUES
Regional wastewater treatment plants produce an estimated 56 dry weight tons
per day of sewage sludge residues.
VII-6
I} Sludge production is dependent upon the volume of sewage flow,
characteristics of the sewage, degree of treatment and efficiency of the
treatment plant. Primary treatment removes about 60% of the suspended solids
from the raw sewage. Secondary treatment reduces suspended solid
concentrations by 90%.
On the basis of given data, Table VII-4 shows characterizations and
approximations of sludge production in the San Diego region projected to the
year 2000.
TABLE VII-4
SEWAGE SLUDGE PRODUCTION APPROXIMATIONS
FOR SAN DIEGO COUNTY PROJECTED TO YEAR 2000
Year Population Primary Treatment Secondary Treatment
(Tons)* (Tons)**
1980
1,862,000
20,403
30,604
1985
2,068,000
22,660
33,990
1990
2,261,000
24,774
37,162
1995
2,454,000
26,890
40,335
2000
2,625,000
28,763
43,145
*0.06
pounds/capita/day
**0.09 pounds/capita/day
Current Disposal Practices
The San Diego Metropolitan Wastewater Treatment Facility (METRO), operated by
the City of San Diego, is the region's largest producer of sludge residues.
About 46,000 cubic yards at 25 percent moisture content, or 65 percent of the
estimated 71,400 cubic yards produced in the County, were generated by the
Metro facility in 1979.
Sludge from the Metro system is presently anaerobically digested and pumped
via an underground pipeline to Fiesta Island in Mission Bay. At that point,
it is dewatered, dried and blended with other organics such as composted park
trimmings to create a soil amendment for park land development. This sludge
reclamation program is considered viable both from the standpoint of waste
disposal and creating soil for plant life support.
VII -7
The City of Oceanside disposes of its sludge residues at sanitary landfills.
The Escondido, Valley Center, Encina and San E1ijo wastewater treatment
plants have a "give -a -way" program, while the remaining smaller plants
incorporated the sludges directly onto adjacent district owned land. Sludge
residues produced by the Camp Pendleton wastewater treatment facilities are
distributed over landscaped areas.
The Encina Joint Advisory Comittee (JAC) has initiated a study to review all
possible sludge disposal alternatives, as well as regulatory constraints for
sludge use, in the North County region.
The �+�. vi a comprehensive sludge management program becomes more apparent.
Tha current practice of disposing of wastewater plant residues at a sanitary
landfill should be considered only as an interim solution.
USED TIRES
Burial of tires at a sanitary landfill is troublesome and unsatisfactory.
Whole tires compacted in bulk spring back to their former shape and tend to
work up while the fill is settling. If not mixed with other refuse, tires
create spongy spots in the landfill. They are resistant to natural
decomposition, making them a permanent and ever increasing solid waste
problem. Currently there is no comprehensive used tire management program in
i
San Diego County.
The 1.15 million County registered automobiles and trucks in 1978 generated
approximately 2.3 million worn-out tires. Table VII-5 shows the number of
worn-out tires requiring disposal projected to the year 2000, These numbers
were predicated on vehicular registrations and presently anticipated tread
life.
Reuse
There is a thriving used tire reutilization industry in the nearby border
city of Tijuana, Mexico. A principle source of supply for this industry is
VII-8
i
tire discards from San Diego County. Typical items manufactured from tire
carcasses are doormats, belt pieces, footwear, pier guides and loading dock
bumpers. Tires with remaining serviceable tread are remounted for continued
use or retreaded for consumption by the local market.
TABLE VI I -5
TIRES DISCARDED IN SAN DIEGO
r COUNTY PROJECTED TO YEAR 2000
REGISTERED ESTIMATED
YEAR AUTOMOBILES & TRUCKS TIRES DISCARDED*
1979 1,166,550 2,333,100
1980 1,189,980 2,379,960
1985 1,341,384 2,682,768
1990 1,491,336 2,982,672
1995 1,623,600 3,247,200
2000 1,751,640 3,503,280
1 *Discard factor of 2 tires/vehicle/year assumed.
The automotive and truck tire retreading industry in the Co•_nty also delays a
significant number of used tires from early disposal. While the number of
passenger car retreads has been constant in recent years, the number of truck
tires recapped has been growing steadily.
An EPA study showed that on the national level retreads make up 22 percent of
replacement sales in the passenger car tire market and 37.5 percent in the r
truck and bus tare market. These figures compare with the estimated 500,000
tires of various sizes annually retreaded by local tire retreaders.
Expanding retreading is the most obvious and economically attractive form of
tire recycling. However, energy can be recovered from tires by shredding
them for use as a supplemental fuel in conventional coal-fired installations.
As of this date, there are no facilities located in southern California
capable of burning old tires.
The chemical constituents of tires can be removed and recycled into synthetic
rubber by destructive distillation, pyrolysis, carbonization or hydrogen-
ization. These processes are not now economically competitive with
"-- VII-9
traditional synthetic rubber production but surging costs of fossil fuel may
soon make than economically viable.
Low concentrations of rubber have been used in asphalt pavements with no
negative effect. Rubberized pavements have shown less tendency to shove,
crack or ravel. Intact tires may be used as crash barriers around
obstructions near highway transitional traffic lanes, as bumpers for docks
and towing vessels and as retaining walls for soil erosion control. When
properly ballasted and chained in groups, scrap tires can be used to create
I
artificial underwater reefs attractive to marine life. Stockpiling old tires
against the time when commercially extractable amounts of petroleum are in
short supply and recycling technology is developed is also a viable
alternative.
The possibility exists for recovering carbon black, sulfur, and energy from
tires worn beyond the capability of recycling by other means. If landfi l l i ng
remains the more viable alternative, then tire shredding as a means of volume
reduction should be considered.
SUMMARY
Several categories of special wastes pose problems in landfills. These
include abandoned vehicles, bulky'items such as major appliances, and tires.
Other special wastes, i.e., dead animals and sewage sludge, are potential
health hazards unless disposed of with care.
Recycling and resource recovery alternatives for each of these categories
must be pursued.
The Department of Public Works will:
1. Explore establishment of a tire recycling program.
2. Support legislation to encourage vehicle recycling through
establishment of a refundable registration fee when a vehicle is
deposited at a dismantlers.
3. Pursue alternative disposal of sludges.
F5
VI I -10
KQ
s�
C—H—A—P—T-E—R E—I—G—H—T
HAZARDOUS AND POTENTIALLY HAZARDOUS WASTES
Fl,
Chapter VIII
HAZARDOUS AND POTENTIALLY
HAZARDOUS WASTES
The waste materials described in this chapter require special storage, col-
lection, handling and disposal. They are perilous to public health and the
environment. Their successful management requires special regulation, sur-
veillance, and precaution.
LEGAL BASIS FOR HAZARDOUS WASTE MANAGEMENT
The California Health and Safety Code defines hazardous wastes as:
A waste, or combination of wastes, wh ch because of its quantity,
concentration, or physical, chemical, or infectious characteristics
may either:
(a) Cause, or significantly contribute to an increase in mortality or
an increase in serious irreversible, or incapacitating irrevers-
ible, illness.
(b) Pose a substantial present or potential hazard to human health or
-the environment when improperly treated, stored, transported, or
disposed of, or otherwise managed.
Federal and State laws exert a significant impact on the management of haz-
ardous wastes. Table VIII-1 lists the numerous agencies within San Diego
County involved in this management function. It is within this broad
framework of laws and regulations that San Diego County's plans for the
handling of such waste :.:jst be developed. A discussion of the state agencies
involved in hazardous waste management and their specific responsibilities,
policies and plans is contained in the Appendix (A-VIII-1).
Count of San Diego
} The DEPARTMENT OF HEALTH SERVICES (DHS) has been designated by the Chief
Administrative Officer as the lead responsible department in the overall area
f
of hazardous wastes.
I
VIII-1
TABLE VIII-1
SUMMARY OF FEDERAL, STATE AND COUNTY AGENCIES'
RESPONSIBILITIES IN MANAGEMENT OF HAZARDOUS
WASTE SYSTEMS IN SAN DIEGO COUNTY
Agency Administrative and Regulatory Enabling
Responsibilities Legislation
Health and Determine those materials and Occupational Safety and
Social concentrations of materials Health Act of 1970,
Services which are deemed to be Section 20 (6), Public
toxic. Law 91-596 (OSHA)
Environ-
Promote programs, assist
Solid Waste Disposal
mental
local government, in develop-
Act of 1965 (Public Law
Protection
ment of improved solid waste
89-272) as amended by
Agency
management programs.
the Resource Conserva-
(EPA)
National standards for col-
tion and Recovery Act
lection, recovery, and dis-
of 1976 (Public Law 94-
posal Ve wastes. Policy and
580) (RCRA)
legislative directives em-
phasizing state and local
government responsibility for
funding and implementing
solid waste management pro-
grams.
California
Promote programs; assist
California Health and
Department
local government in develop-
Safety Code Chapter 6.5
of Health
ment of improved hazardous
and Title 22
Services
waste management programs;
(SDOHS)
conduct studies of such ele-
ments related to hazardous
wastes and protection of air
and water qual?ty; evalua-
tion of disposal procedures
for waste waters and sewage
sludges; enforce provisions
relating to hazardous sub-
stance, health care institu-
tions and radioactive contam-
ination.
State Water
Responsible for control of
Porter -Cologne Water
Resources
water quality, including
Quality Control Act of
' Control
ground water; control poli-
1969, Title 23, Sub -
Board
cies and prescribe require-
chapter 15, Division 7
ments for protection of water
and 7.5
quality from discharge.
California
Develop air quality standards
Mulford -Carrell Air
Air Resources
for air basins in Califor-
Resources Act of 1967
Board
nia.
Health & Safety Code,
Div. 26, Part I
r
VIII-2
W
TABLE VI II - 1 (CONTINUED)
Agency Administrative and Regulatory Enabling
Responsibilities Legislation
California Enforce provisions of General
Department of Industry Safety Orders Tor
Industrial the protection oemployees
Relations, working at industrial/
Division of hazardous waste disposal
Industrial facilities.
Safety
California
Responsible for setting regu-
Department of
lations on the handling of
Agriculture
agricultural chemicals and
empty containers.
California
Enforce regulations for
Highway
transportation of hazardous
Patrol
materials; applicable to
industrial wastes and used
pesticide containers in the
cases of leakage, accidents,
and spillage.
San Diego
Responsible for protection of
County
public health at the local
Department
level; review disposal
of Health
facility plans at land use
Services
permit stage; surveillance
of generators, transporters,
and storers of hazardous
substances and the proper
disposal of their wastes
through a grant provided by
SDOHS.
County Agri-
Responsible for issuing per -
cultural
mits for the sale and use of
Commissioners
selected pesticides; users
must agree to store and dis-
pose of empty containers in a
manner set forth by the Com-
missioner and in conformance
with regulations established
by State agencies.
San Diego Enforce regulations con -
County Air trolling the emission of
Pollution certain air pollutants
Control emitted in the disposal of
District hazardous wastes.
VIII-3
Title 8 of the Adminis-
trative Code, Sub-
chapter 4, Article 4
California Agriculture
Code, Section 12991
California Vehicle Code,
Section 2450, et. seq.
California Health and
Safety Code and Title
22 of the Administrative
Code by delegation.
California Administra-
tive Code, Title 3,
Group 3, Article 10,
"Storage, Transportation
& Disposal"
Board of Supervisors
Resolution - June 7,
1975
F77,777 -I
DHS is charges with the following responsibilities:
Educate and advise on the proper disposal, storage, and transportation
of hazardous wastes.
f—j
Monitor to see that proper disposal, storage, and/or transportation of _
hazardous wastes is done.
Respond to improper disposal, storage, and/or transportation of
hazardous wastes.
Develop an overall long-term plan for the handling of hazardous waste
in San Diego County.
Report to responsible agencies and departments on the handling of
hazardous wastes.
Provide (with any necessary consultation with SDOHS) determinations as
to whether a particular identified W_,te is hazardous.
The Department of*Public Works (DON) will:
Provide DHS with copies of the manifests from the BKK transfer station
t on a monthly basis.
Continue efforts toward establishing a hazardous waste disposal facil-
ity at the Otay Landfill.
Enforcement and Surveillance
Enforcement and surveillance of local hazardous waste processing, source
control and disposal are under the jurisdiction of the California State
Department of Health Services. This responsibility has been delegated by
SDOHS to the County DHS.
First-hand knowledge of hazardous waste generation and methods of disposal
is essential to a viable hazardous waste management program. Inadequate
surveillance of generation and disposal of such wastes and the apparent
willingness of some industries to take advantage of the present situation
compound the problem. A discussion of hazardous waste generation and
disposal in California and existing waste treatment technologies is con-
tained in the Appendix (A-VIII-2 and A-VIII-3).
VIII-4
This task of control was strengthened in San Diego County in May, 1980 when
the State Department of Health Services contracted with San Diego County to
provide one person year to identify and monitor the generation and disposal
of hazardous wastes in the County. Funding is from the State Department of
Health Services.
Illega► hazardous waste disposers will be identified through complaint.;,
spot-check surveillance, public awareness, mail questionnaires and phone
questionnaires. If these generators are disposing of wastes illegally,
enforcement and compliance steps will be taken. Enforcement is conducted by
legal staff of the State Department of Health Services following recommenda-
tions made by County staff.
Program objectives are:
1) Surveillance of hazardous waste generators, haulers, storage facilities
and treatment facilities to identify those establishments that properly
or improperly dispose of hazardous waste. Priority of surveillance
actions are:
a. Complaints
b. Extremely hazardous waste producers
c. Large volume producers
d. Industries that have histories of high incidence of violations
e. Establishments that have not notified Federal or State authorities
of their waste generation activities
f. Hazardous waste transporters
2) Education and consultation with industry, public and private parties
to bring about an understanding of hazardous waste disposal requirements
to prevent illegal disposal of hazardous waste. Education and consulta-
tion will be 'through:
a) public forums and panel participation, and
b) consultation with industry to answer or refer questions.
3) Compliance and/or enforcement of generators, haulers and disposal site
operators illegally storing and/or disposing of wastes. Enforcement
shall primarily be through State enforcement procedures upon recommen-
dations by County staff. This is necessary because Title 22 of the
California Administrative Code preempts local ordinances. Priority
will be centered on generators, especially those that are endangering
public health and safety.
`" VIII-5
�r
a -
In addition, chaptered legislation effective January, 1981, allows penalties
of $5,000, $25,000 and $50,000 per day (depending on violation) for improper
handling, storage or disposal of hazardous wastes. (California Health and'
Safety Codes Chapter 6.5, Section 25188, 25189, and 25191 cover these viola-
tions.)
SAN DIEGO COUNTY HAZARDOUS INDUSTRIAL WASTES
Most hazardous industrial wastes are by-products of a variety of manufac-
turing industries. Some of the hazardous wastes produced in San Diego County
are liquids containing sulfuric, hydrochloric, nitric and hydrofluoric acids,
corrosive acids and alkalies, solvents, cyanide plating wastes, acid
etchants, oils and sludges.
Disposal of Hazardous Industrial Wastes
In former years, many highly toxic and dangerous wastes were sealed in 55-
gallon drums, barged to sea, and dumped in a designated area 20 miles west of
Point Loma. About once every two years, 100 to 200 drums were disposed of in
this manner. Most of these wastes were liquid cyanide compounds, although
other liquids and solvents have also been included. No oily wastes or radio-
active materials were known to have been dumped. According to the Regional
Water Quality Control Board's records, the last dumping of this type took
place in 1968.
The County of San Diego also operated a Class I site in conjunction with its
Otay Landfill. Approximately 1.3 million gallons of hazardous wastes were
received annually.
In 1980 the Otay Class I Landfill was approaching capacity. The County Board
of Supervisors closed the site on November 1, 1980. Concurrent with this
action, the Board of Supervisors solicited bids to lease a portion of the
Otay Landfill for purposes of establishing a hazardous waste transfer
station.
VIII-6
BKK Corporation was the successful bidder, and was awarded a 5 year lease on
the property by -the Board of Supervisors.
The BKK operation will receive and/or store bulk loads of liquid industrial
wastes. On -site neutralization of some acidic wastes, oil -separation and
dewatering will take place prior to transfer to the BKK Landfill in West
Covina. Solid wastes in drums or other non -leaking containers will also be
accepted.
BKK anticipates an annual volume of approximately 4 million gallons being
handled on the site.
The station will be open Monday through Friday. BKK's primary business will
be commercial. A rate schedule will be posted on site and monitored by the
County. An artist's concept of the facility appears in Figure VIII-1.
4,p,y NAURMti WAS
1�-, Nei :•
VIII-7
ram" ' f0Y11PS •RLS1riCs vwo" 1Ni W_
TRAN40K (AGILITY -,Am OIU4
BKK is required to maintain a contingency plan, copies of which are on file
with the City of Chula Vista, as well as other appropriate agencies.
As public awareness of proper hazardous waste disposal increases, many
individual citizens bring small quantities of hazardous waste to the Otay
facility. In response to a request from the County to accommodate this small
generator, BKK has initiated a -special program to accept very small quanti-
ties (5 gallons or less) of hazardous waste for a minimal fee. This should
assist in encouraging legal disposal by small and infrequent generators.
Military Hazardous Waste Disposal
The Navy Public Works Center operates a licensed industrial waste treatment
and an oily waste treatment/oil recovery facility at North Island. A per-
mitted oily waste treatment/waste oil recovery facility operated by the Naval
Supply Center is located at Point Loma. The Navy has programmed (currently
FY-84) an additional oily waste treatment facility for the Naval Station.
The Public Works Center also operates three permitted hazardous waste trans- �
fer stations, one at North Island, one at the Naval Station and one at Point
Loma, for consolidation of smaller volumes of hazardous wastes prior to recy-
cling, treatment or disposal at Class I sites.
APCD Regulations
Superimposed upon water quality control standards which govern the disposal
of industrial and hazardous wastes in the San Diego County Air Pollution
Control District's Rule 66. Subsection M of Rule 66 stipulates that:
a person shall not, during any one day, discard, dump, or otherwise
dispose of a total of more than one and one-half gallons of any organic
solvent which exceeds the compositional limitations for photochemically
reactive compounds...by any means which will permit the evaporation of
such solvent into the atmosphere... .
This would include such liquified wastes as paint thinners, gasoline, waste
paint, and sludges which contain photochemically reactive organic compounds.
VIII-8
Zak
Additionally, Rule 67.2, effective 1-31-78 governing dry cleaning equipment
using petroleum -based solvent states in part:
(4) The still residue is stored in sealed containers or underground tanks
and disposed of at a Class I dump or incinerated or disposed of in a
manner prescribed by the Air Pollution Control Officer...
i
(6) The used filtering material is put into a sealed container immediately
after removal from the filter and is disposed of at a Class I dump,
' unless the dry cleaning system is equipped with one of the following
j filtering systems:
(i) Cartridge filters containing paper or carbon or a combination
thereof, which are fully drained in the filter housing for at
least 12 hours before removal.
(ii) Diatemaceous earth filtering system, connected to a centrifugal
R solvent extractor or other device capable of removing sufficient
solvent so that the remaining diatomaceous earth and soil does
not contain more than .4 pounds of solvent per pound of filter
powder and soil removed.
r (iii") Any other type of filtering system or process found by the Air
t Pollution Control Officer to emit into the atmosphere 1 pound
9 or less of solvent in the discarded soil, lint and filtering
material per 100 pounds (1 kilogram per 100 kilograms) of
articles cleaned.
Regional Industrial Waste Haulers
? Registered waste haulers are licensed by the Hazardous Waste Management
t
Section of SDOHS. Licensed haulers operating in the San Diego area in
October 1980 were:
American Processing Company
Aztec Oil
Baron -Blakeslee
Cleaning Dynamic Corp.
Consolidated Pumping Service
5-Star Rubbish Service
Industrial and Municipal Service Co.
J.W. Industrial Cleaning
Camp Pendleton - USMC
Modern Septic Service
11th Naval District Public Works Center
Nelco Oil Refining
Larry O'Harra Enterprises
San Diego Gas & Electric Co.
Sani-Tainer Inc.
J. C. Shumacher Co.
Victor/California
Chancellor/Ogden
IT Corp.
Findley Chemical Disposal
Pacific Coast Disposal Co.
George F. Casey Co.
Hazardous wastes collected by these firms are hauled to West Covina, Casmalia
and Kettleman Hills for disposal.
VIII-9
Industrial Waste Generation in the Region
e-"
The principal sources of industrial wastes in San Diego County are located in
the greater metropolitan area, but new industrial parks are being developed
throughout the County. A substantial number of industries in the region are
permitted to discharge certain industrial wastes directly into local sewerage f
systems under specific circumstances and with the surveillance of the
Industrial Waste Surveillance Program.
It is difficult to obtain complete and accurate data on the total quantity of
hazardous industrial wastes being generated in the region despite the
required California Hazardous Waste Manifest. The Appendix includes a report
of hazardous wastes manifested and generated in San Diego County for 1980 and
disposed of off -site at Class I locations (A-VIII-4).
Additional information on generation of hazardous wastes is needed. Some of
the generated hazardous wastes are pre-treated either on -site or by fir;ns
providing treatment. This reduces the quantity of hazardous waste which
needs disposal. Conceivably, generators could be using unapproved disposal
methods without detection.
The City of San Diego has a viable program to control disposal of hazardous
wastes into the Metro Sewer System. The County of San Diego has a similar
program of control. Combining these programs, expected within a period of
one to two years, effective controls will be working to assure the legal
disposal of a vast majority of the hazardous wastes generated.
MEDICAL WASTES
Wastes which have disease transmission potential are identified as hazardous
and require special handling and care in storage, collection, transportation
and disposal.
Types of hazardous medical waste materials include;
pathological and surgical wastes
clinical and other biological laboratory wastes
animal carcasses
sharps (needles, syringes, blades, etc.), tubing, bags, and bottles
patient care items (linen, personal and food service items, etc.)
from contaminated patient areas
drugs and chemicals
stools, mucosa and urine
VIII-10
The storage and disposal of infectious wastes are regulated under Title 22 of
the California Administrative Code. By law, disposal shall be by (1) incin-
eration, (2) sanitary landfill, or (3) other approved methods.
Emergency regulations in Title 22 further clarify and define the handling and
disposal of health facility wastes. These regulations require, when disposal
is by other than on -site incineration, that local health officials certify to
the State annually that the storage, collection, transportation, processing
and disposal of medical wastes and hazardous wastes associated with hospital
services do not jeopardize public health and safety.
Air pollution regulations have greatly influenced hospital disposal prac-
tices. Most lci:al hospitals and a number of nursing and convalescent insti-
tutions formerly used on -site incinerators to reduce the daily volume of
their wastes. With enactment of the Air Pollution Control Bill's stringent
air -quality standards in January, 1974 on -site incineration was greatly
reduced. Most medical wastes are currently taken to a public sanitary
landfill or where appropriate, discharged to the sanitary sewer.
Hospitals are the greatest source of medical wastes. Volumes of hospital
wastes are closely related to bed capacities. Hospitals in larger
communities and teaching hospitals tend to generate more wastes than those in
smaller communities and non -teaching hospitals respectively. Several local
hospital administrators have indicated that the generation rate in this area
is somewhat above the national average and was estimated to be about eleven
pounds per patient per day. Hospitals that have experimental programs pro-
duce more than the estimated waste.
Based on August, 1981 data supplied by the Hospital Council of San Diego
County, there are 1,022 tons per year of infectious wastes generated by
hospitals in San Diego County.
Solid waste loadings from hospitals and most other medical related facilities
will increase about 5% per year as a result of the population growth and
increasing use of disposables in patient treatment.
Local hospitals are largely using disposable plastic bags for the bulk of
their wastes. Most use a two -bag system for primary classification of wastes
for internal storage and handling. Conventional or non-infectious waste is
put in opaque non -red plastic bags. Infectious waste is placed in red
plastic bags. This reduces the potential for contamination of the environ-
ment and cross -infection.
The local health department recognizes three methods of disposal or conver-
sion of the infectious wastes to innocuous material. These are: on -site
incineration (does not require local health officer approval, only APCD
permit); heat and pressure autoclaving; and/or transport to an off -site
central thermal processing facility.
In San Diego County, medical waste is most often disposed of: by thermal
destruction at a central facility; processing to produce a sterile
homogeneous material that can be safely hauled and disposed of off -site; or
liquid disinfection of selected wastes, the liquid being discharged to the
sewer and the solid disposed of in a proper landfill.
The San Diego County Health Officer annually certifies each institution's
plan for disposal of medical waste. The County Department of Health Services
continues surveillance and enforcement of existing laws and regulations for
the processing and disposal of medical wastes. The County Department of
Public Works and the County Department of Health Services should develop an
awareness program for all collection and disposal personnel on the potential
hazards connected with the handling of medical wastes.
RADIOACTIVE WASTES
Sources of radioactive wastes in the San Diego region are nuclear power gen-
eration, medical services, research and development in industrial laboratory
work. The quantity of radioactive materials used by area hospitals and re-
quiring disposal is considered normal.
Radioactive solid wastes must, by Federal Department of Transportation
regulations, be properly packaged for both safe transport and ultimate
disposal. Disposal is at either Beatty, Nevada or Richland, Washington.
VIII-12
These sites are licensed by their respective states. To transport radio-
active solid waste, a firm must be licensed by Federal DOT. In San Diego
County, there are two radioactive solid waste disposal vendors, Tom Grey and
Associates and Pacific Nuclear. Both firms are also licensed by the State of
9
i California.
EXPLOSIVES
The safe handling and disposal of explosives or explosive devices warrants
serious consideration. A catastrophe could result from the undetected entry
of discarded explosives into the solid waste stream. This is particularly a
concern for resource recovery facilities involving a shredding process.
Such an incident occurred at the Palomar Transfer Station in March, 1980 when
waste solvent in cans exploded going through the shredder. Fortunately,
there were no inJuries to personnel, but damage to the plant and equipment
was extensive.
In the City of San Diego, a specialized unit of the Fire Department disposes
of recovered explosives including confiscated fireworks picked up from U.S.
Customs, and picric acid from schools. A similar unit in the Sheriff's
Department provides this service for the other 15 cities and the unincorpo-
rated areas of the County.
Such explosives are presently taken to "Green Farm", a Federally -owned
ordnance testing site near the Miramar Naval Air Station, where they are
t
detonated or burned in the open. Unmovable explosives such as bomb devices
F are either deactivated or detonated on the spot. Ordnance requiring defusing
is handled by the 70th Arny Disposal Unit stationed at Fort Rosecrans.
This same Disposal Unit handled the disposal of fireworks confiscated by U.S.
Customs until the tragic accident in July 1980, when three of their members
were killed from a fireworks explosion that happened while loading fireworks
on a truck.
i
F
1
�- VIII-13
t
i
Adequate arrangements now exist for detonating and disposing of discarded
"live" explosives, bomb devices and the like. The chief potential hazard `
remains the undetected entry of explosive materials into the waste stream.
INCINERATOR RESIDUE FROM RESOURCE RECOVERY PROJECTS
Currently, State regulations classify incinerator residue as hazardous, thus
requiring disposal in a Class I landfill. This creates problems for many
resource recovery projects because of the scarcity of Class I sites in
California. For those projects not near Class I sites, the costs of disposal
of the residue as hazardous waste may be prohibitive.
It is the opinion of EPA and most people in the solid waste field, that the
7 ash residue from municipal waste Incineration is not hazardous. In the
Spring of 1981, the State Solid Waste Management Board and the SDOHS
undertook a study of resource recovery plant residue for the benefit of all
projects in California. The ruling on reclassification of the residue from a
waste -to -energy facility is expected by early 1982.
STATE HAZARDOUS WASTE SITING PROGRAM
Early in 1981, as a result of the closure of a number of hazardous waste dis-
posal sites in Southern California, the State Department of Health Services
initiated a study, called the "State Hazardous Waste Siting Program". The
goal of this study is to ensure the availability of safe treatment and
disposal facilities for hazardous waste.
The lead agency for the study is the California Department of Health Ser-
vices. The State Water Resources Control Board, State Solid Waste Management
Board and the United States Environmental Protection Agency also assist in
providing overall direction to the study.
Technical investigations are being performed by the Los Angeles County Sani-
tation Districts and private consultants.
Public participation in the study is coordinated by the Southern California
Association of Governments (SCAG), assisted in San Diego County by the San
Diego Association of Governments (SANDAL). Principal elements of the public
participation element are:
1) A Policy Advisory Committee, composed of county supervisors, mayors and
council members from throughout the seven county area. This committee
;
has developed proposed legislation which fixes responsibility for hazard-
ous waste planning and establishment of hazardous waste facilities. The
committee will address the political feasibility of the criteria and the
potential sites, and will also review and develop positions on other
legislation affecting hazardous waste treatment and disposal in Southern
California.
i
( 2) A Citizens Advisory Committee, composed of private citizens appointed by
participating political jurisdictions. This committee will provide com-
ments on the preliminary list of sites and their rankings, as well as on
the draft report.
3) A Residual Waste Management Technical Committee has also been formed to
provide professional expertise and input to the technical studies. The
committee consists of planning directors, environmental health officials,
z
sanitation district general managers and public works directors.
The anticipated completion of the study is mid-1982. This study is part of
the on -going California Hazardous Waste Management Program of SDOHS.
COUNTY HAZARDOUS WASTE TASK FORCE
The County is well aware of the need to provide a more comprehensive cradle
to grave, hazardous waste management program. Two years ago, the County
sought grant funds to provide a more complete enforcement and surveillance
program. The County has also been active on a State Department of Health
Services Committee Establishing Hazardous Waste Facility Siting Criteria.
Both of these programs are discussed elsewhere in this chapter.
i
t
I _
The County has 'developed a Hazardous Waste Management Task Force. This team r
of professionals will develop a method for identifying potential generators
of hazardous wastes, propose and implement a tracking system for generated
waste and oordinate San Diego County activities with those of the State and
Federal governments. -
Working out of the Chief Administrative Officer's Special Projects Section,
the Task Force will provide recommendations for a comprehensive hazardous
waste program in early 1983.
RESPONDING TO EMERGENCIES
The City of San Diego has a Manual of Response which includes actions for
chemical accidents, radiological incidents and bomb explosions. Action plans
for oil spills, pipeline and industrial explosions and -explosions in the
harbor are being developed. The City of San Diego's plans for the future
include training for police and fire personnel in handling hazardous wastes
if funding becomes available through State legislation.
The San Diego County Office of Disaster Preparedness published a Hazardous
Materials Incident Response Plan in June, 1981. Excerpts from the plan
i appear in the Appendix (A-VIII-5).
i
In addition to the Emergency Response Plan, a program is being developed to
I train deputy sheriffs and County road maintenance personnel in the basics of
hazardous materials. It has been agreed that these two classes of personnel
are very likely to be the first government persons on the scene of s
hazardous substance spill on County roads. Their knowledge regarding what
safeguards to immediately take could prevent harm to others, themselves and
the environment.
VIII-16
C-H-A-P-T-E-R
LITTER
N-I-N-E
0
Chapter IX
LITTER
Litter is' defined by the California State Solid Waste Management Board as
"any post -consumer solid waste which is not deposited in 1) an authorized
solid waste disposal site, 2) appropriate storage containers, or 3) other
areas designated for disposal." This chapter discusses litter programs in
San Diego County.
Although litter is often thought of as primarily an aesthetic problem, it can
also be both costly and physically injurious. Broken bottles and torn
beverage cans are a threat to County residents. Litter can also cause damage
to lawns and clog storm drains. Fatalities have been caused by automobiles
striking bulky foreign objects in the highway or swerving to avoid them.
QUANTITIES. COMPOSITION AND DISTRIBUTION OF LITTER
Litter is not distributed evenly over the County. Evaluations showed urban
areas to have 57 percent of the total public land litter. This is three
times the amount found on any other type of property including beaches,
desert, dry, bushy lands, suburban areas, or canyons.
Litter is almost twice as dense on roadways as on beaches. In fact, 85
percent of the sampled areas were roadways. According to the findings, 97.3
percent of the litter is on roadways, 1.5 percent on park lands, and 1.0
percent on beaches.
Responses gathered from a Survey of Public Opinions Regarding Solid Waste
Management Problems in San Diego County indicate that the visibility or
litter and the particular type of environment in which it is observed
influence public perception of litter problem areas. When respondents were
asked to identify areas having the worst litter problems, the most frequently
mentioned were beaches (29 percent), streets (15 percent), and canyons and
alleys (15 percent each).
I X-1
There is a substantial difference between those areas which actually have the
most litter and those which are viewed as having the worst litter problems.
The areas named as worst by the public are those which are usually traveled
through at slow speed, so that there is more time to see any litter present
! than is the case on major roadways which are usually traveled at high _
speeds.
The Appendix contains a table showing where respondents thought that the
worst litter problem exists (A-IX-1).
i
Interviews showed that litter is regarded as a more serious problem than
rubbish disposal and about on a par with education and noise pollution.
49 percent of the respondents rated litter as very serious or somewhat
` serious. Only eight percent said that litter was not a serious problem.
' LITTER CONTROL IN SAN DIEGO COUNTY
Litter control measures include all techniques utilized either to reduce
litter by discouraging the act of littering or to provide for cleanup and ;
removal after it has occurred.
The City of San Diego's ongoing litter program includes public education,
litter law enforcement, abandoned vehicle abatement, litter cleanup and
organized collection. The enforcement section is authorized to issue Notices
of Violation or to cite litter law violators. Weekend community cleanup
projects are conducted in conjunction with community groups and the private
sector. The City Fire Department also administers an ongoing weed and
rubbish abatement program.
The most common "after -the -fact" approach to litter and illegal dumping
control in San Diego County includes volunteer and governmental (paid)
cleanup, and the extensive use of the Probation Department's programs using
inmates from various honor camps, court appointed alternative sentence
workers, and workers from the Department of Human Service's Workfare Program,
where persons receiving food stamps are required to work in public service.
IX-2 '%W''
The role which public education plays in litter prevention and the proper
handling of waste varies as much from community to community as the practices
of the sanitation departments, local ordinances, and enforcement. If proper-
ly planned and implemented, public education can contribute much to reducing
improper waste handling. _
A variety of publicly -funded and volunteer litter control groups are involved
in anti -litter publicity, education, and cleanup programs. Some of these
activities are discussed in the Appendix (A-IX-2).
Anti -Litter Laws
Litter and illegal dumping control through enactment of anti -litter laws re-
lies primarily on the psychology of imposition of fines on violators. Most
people are law-abiding and reluctant to compound the anti -social act of lit-
tering by violating a local or state statute. For those who are caught and
found guilty of littering, the original fine and the threat of increased
r
fines for subsequent violations are deterrents to repeated littering. If
this litter control technique is to be effective, however, litter laws must
be strictly enforced. Table IX-1 lists local litter ordinances.
In March, 1981 the City of San Diego adopted an ordinance putting more teeth
into its anti -litter laws. Littering, illegal dumping, transporting open
loads of spillable refuse, and maintenance of open or inadequate refuse con-
tainers, are specifically prohibited. The City also granted citation author-
ity to its sanitation inspectors to enforce these sections. These inspectors
are expected to begin issuing citations in FY 1982.
Required Collection
While litter control is not its primary aim, regularly scheduled refuse col-
lection service has the effect of reducing litter problems that are associ-
ated with prolonged accumulation of wastes and overflowing storage con-
tainers. In addition, organized collection reduces the numbers of unsuitable
IX-3
Table IX-1
LITTER CONTROL ORDINANCES
in San Diego County
Jurisdiction
Ordinance
Carlsbad
Dumping or throwing rubbish on private or
public land without written permission of the
City Council is prohibited.
Chula Vista
Litter defined. Unlawful to throw or deposit
litter in public places. Sidewalk shall be
left clean. Handbills regulated.
Coronado
Unlawful to thrat or deposit litter in public
places. Sidewalk shall be left clean.
Handbills regulated.
Del Mar
Litter defined. Distribution of handbills
regulated. Abatement of litter, weeds, etc.,
on private property provided. Non-payment of
charges results in a lien upon the property.
El Cajon
Litter defined. Unlawful to litter on public
or private property. Distribution of
�
commercial handbills in public places
prohibited. Charges for removing litter from
private property assessed against property.
Non-payment becomes lien upon property.
Escondido
Unlawful to accumulate trash or deposit same
in public places or waters. Unlawful to
litter with handbills.
Imperial Beach
Unlawful to throw, deposit, drop, or place
debris, including dirt and rocks, onto
street.
La Mesa
Throwing or depositing litter not allowed
except in authorized receptacles or places.
Charges to owners for litter removal from
private property. Non-payment results in a
lien upon the property.
Lemon Grove
Throwing or depositing litter not allowed
except in authorized receptacles or places.
IX-4 "...WI
Table IX-1
LITTER CONTROL ORDINANCES (continued)
National City Local ordinance makes it unlawful to accumu-
late trash on private property or deposit on
street. Litter removed from private property
charged to owner. Lien can be filed for non-
payment.
Oceanside Littering prohibited. Litter to be placed in
an authorized container. Debris, etc., on
private property can be abated at no cost to
city. Nonpayment results in a lien on the
property.
Poway Adopted County Ordinance as of December 1,
1980.
San Diego (City) Illegal dumping prohibited, littering forbid-
den. Open or inadequate refuse containers
unlawful. Transportation of uncovered waste
prohibited. Abatement of public nuisances
provided for.
San Diego !County) No garbage, dead animal, diseased, putrid or
offensive animal or vegetable matter, rubbish,
-w' construction wastes, or discarded appliances
shall be placed or allowed to be placed or
remain upon any vacant lot, park, public or
private property, camping place, stree-c, road,
highway, alley or on the bank of any stream or
drywater course, or in any standing water,
stream, or drywater course, and the same are
declared to be a public nuisance.
San Marcos Litter is not specifically mentioned but
accumulation of "junk" is not allowed.
Santee Throwing or depositing litter not al l ovied
except in authorized receptacles or places.
Vista Littering forbidden. Distribution of hand-
bills regulated. Accumulation of "junk" is
not allowed.
Port of San Diego Dumping or throwing of trash (defined) upon
Port property or San Diego Bay prohibited.
IX-5
,i
1
vehicles used to transport wastes, thereby reducing the amount of litter
blowing from trucks enroute to disposal sites, as well as the temptation to
dispose of wastes illegally. Prevention of litter in this manner is most
effective in areas of mandatory collection.
Litter Cleanups
Litter pickup programs were costly in 1980: California taxpayers paid nearly
$100 million to clean up litter. Litter cleanups provide only a temporary
solution to the .litter problem. During FY 1980-81, the City of San Diego
alone expended nearly $1,108,000 for litter enforcement and cleanup activi-
ties and an additional $893,000 to pick up and remove litter from the
beaches. The City's litter clean-up efforts are augmented by community group
volunteers and private sector service. The City has also utilized the ser-
vices of the County probationers in anti -litter efforts.
Because of this appalling waste of resources used to combat the litter pro-
blem, the County's Department of Public Works has aggressively sought means LA
to "untrash" San Diego County at the lowest cost to its citizens. As of 1981 rV
the County's Department of Public Works was using twelve crews with a
t
combined work force of 140 workers from the Department of Probation programs
and the Department of Human Services Workfare Doijonstration Project.
The effectiveness of this Litter Control Program has in a large part been due
to the excellent cooperation among various members of the Probation and Human
Services Departments and the Department of Public Works. This program has
provided a cleaner environment around our landfills and access roads and has
also been instrumental in reducing litter along rural roads, open spaces, and
within the County park system.
State Litter Grant Funds
With the passage of the Litter Control, Recycling and Resource Recovery Act
of 1977 (SB 650) and the Solid Waste Management Act of 1980 (SB 261)
s
"pass -through" funds for litter clean up and enforcement became available to
IX-6
Ok
local governments. Administered by the State Solid Waste Management Board
these were used for a variety of programs.
The original legislation established a five year program. If determined
successful by the Legislative Analyst's Office, it was the Legislature's intent to
refund the program. Unfortunately, during the Legislature's budget deliberations
for FY 81-82, this program was eliminated.
A complete discussion of the litter programs funded by State grant appears in
the Appendix (A-IX-3).
THE GREAT CALIFORNIA RESOURCE RALLY
The first annual Great California Resource Rally was sponsored by the State
Solid Waste Management Board. It took place during the week of April 20-26,
f
1981 in order to coincide with the national Keep America Beautiful Week and
i
Earth Day, 1981.
�.• An estimated 400.000 Californians participated in Rally -related activities
and over 75,000 of those were residents of San Diego County. The number of
Californians aware of the rally (determined by statewide opinion survey) was
4,600,000. The first Great California Resource Rally was successful in
raising both awareness of and concern regarding our present "garbage
crisis".
In San Diego County, over forty events were scheduled and promoted dur=nq the
Rally week. A unique coalition of government, industry, and business
Participated in clean-ups of neighborhoods, beachs, deserts, parks, highways,
downtown areas and even the bottom of the San Diego Bay. Recycling drives
throughout the county focused attention on ways to conserve and recover
resources which are often thrown away.
Due to the success of the first Rally, a Second Annual Rally, April 19-25,
1982 is planned. Unfortunately, elimination of State litter grant funds
will negatively impact local agencies' ability to participate in this annual
event in the future.
IX-7
SUMMARY
W
In San Diego County there are some estimated 33.5 million pieces of litter on
land under jurisdiction of general purpose government. Updated laws carrying
meaningful penalties and vigorous enforcement can go a long way toward -
F eliminating litter, but they are clearly not a shortcut to a litter -free
[ environment.
r
Effective litter control is only possible when a community such as San Diego
really wants to improve conditions, and the majority of its citizens are
committed to the preservation of a clean, attractive environment. It is to
this end that not only local governments, but citizen groups, youth
organizations, industry, labor, and individual responsibility have brought
about the development and implementation of effective anti -litter activities.
0
IX-8
r--
I
C-H-A-P-T-E-R T-E-N
FINANCING AND ORGANIZATIONAL DEVELOPMENT
CHAPTER X
FINANCING AND ORGANIZATIONAL DEVELOPMENT
This Chapter summarizes the existing solid waste responsibilities and _
financing practices within the San Diego region. It also describes alterna-
tive organizational and financing mechanisms which could be used to meet the
region's solid waste needs should a change in the existing practices be
desirable.
OVERVIEW
The County of San Diego is a one -county planning and management region.
Within the County there are sixteen incorporated cities, of which the City of
San Diego is the largest with a current population of approximately 900,000.
The County of San Diego and the City of San Diego are the only two local
agencies currently providing solid waste disposal services. The sixteen
r" cities, and the County of San Diego for the unincorporated area, provide a
a t variety of types of collection services. There have been few problems
experienced within the County in managing and planning for solid waste
services.
EXISTING ORGANIZATIONAL AND FINANCING MECHANISMS
This section identifi-es the specific organizations and their financing
methods for providing solid waste services.
The County of San Diego
M
The County of San Diego is the regio,i's designated solid waste planning and
i
management agency. It was the lead agency for the development of the
original Solid Waste Plan and for this revision. Should any amendment of
this Plan become necessary, the County of San Diego has lead responsibility.
These activities are the responsibility of the County's Department of Public
Works.
X-1
This Plan includes a hazardous waste element. However, specific
responsibility for hazardous waste is assigned to the County's Department of
Health Services. This is similar to the arrangement at the State level.
The Board of Supervisors has also formed a Hazardous Waste Management Task
Force to develop a "cradle -to -grave" program for the County's hazardous
wastes.
The County's Department of Public Works is responsible for the operation of
six sanitary landfills, one solid waste transfer station, one hazardous waste
transfer station and ten rural container stations.
The County also has lead responsibility for resource recovery projects. This
is accomplished in a cooperative effort between the Department of Public
Works' Solid Waste Division and the Chief Administrative Officer's Special
Projects Division, where the SANDER project, discussed at length in Chapter
V, is organizationally assigned.
The Department of Public Works is also responsible for road sweeping and
roadside litter removal along County -maintained roads in the unincorproatd
area.
The County of San Diego does not provide collection service in the unincorpo-
rated area. Rather, under the current Solid Waste Ordinance, included in the
Appendix (A-E), the unincorporated area is divided into 27 permit areas.
These boundaries coincide with the sub -regional census tract areas for the
County. Private collectors are issued permits within each designated area.
As part of that process, the County performs certain collection regulation
enforcement activities.
In addition, the County issues transporter permits to private sector haulers
using County facilities. The County, in effect, performs vehicle inspection
services for the incorporated cities within the County, with the exception of
the City of San Diego.
X-2
There are several other County agencies involved in solid waste services.
The County's Department of Health Services is the designated enforcement
agency for health -related matters for all but one of the cities within the
County. The County's Department of General Services also provides for the _
removal of dead animals along County -maintained roads.
When requested, the County of San Diego works with cities within the County
to develop recycling and resource recovery projects.
The Department of Public Works provides public information and education
services itself and through contracts currently held by the San Diego Ecology
Centre, Inc. and the War Against Litter Committee. The SANDER project, the
Department of Health Services, and the County's Office of Intergovernmental
and Public Affairs, also provide public information on solid waste activities
within their purview.
Since 1967 the County has charged solid waste tipping tees at all County
disposal sites. In FY 1976-77 fees supported approximately 19% of all County
solid waste expenditures. Beginning in 1979, the Board of Supervisors began
to apply their policy requiring full cost recovery.
Full cost recovery through solid waste tipping fees will be accomplished by
FY 1982-83. The only exception to full cost recovery through the tipping
fees will be approximately 20% of the cost of providing service in the inter-
ior region. By policy direction from the Board of Supervisors, it was deter-
mined that this was a General Fund expense due to the high tourist use of
facilities in this area.
Fiscal year 81-82 Solid Waste Program was budgeted at $9.1 million.
SANDER Project
The San Diego Energy Recovery (SANDER) Project is a proposed large-scale
energy recovery facility. It will be both managed and financed by an
arrangement unique in San Diego County.
X-3
�1
The City of San Diego and the County of San Diego have entered into a Joint
Powers Agreement for the development of this facility.
Management
A San Diego Energy Recovery (SANDER) project Task Force was formed in
March, 1977. The County of San Diego and the Cities of San Diego and
National City each had a voting member on the Task Force. In September,
1979, National City withdrew its support of the project as well as its
membership on the Task Force.
In November, 1979, the Task Force was expanded to include two elected
members of the San Diego laity Council, two elected members of the County
Board of Supervisors and a State Assemblyman. The County has served as
lead agency for the project and provides County staff and funding for
i
the project.
i
In September/October 1981, •the City and County executed a joint powers
agreement creating the San Diego Energy Recovery Authority. (See Figure
X-1) The Authority is a separate legal entity empowered to finance,
construct and operate a resource recovery facility. Its Board of Direc-
tors will consist of two members of the Board of Supervisors and two
members of the San Diego City Council. If bonds for construction are
not issued by 1986, the joint powers agreement creating the Authority
will terminate.
Financing
The Project economics were based on public ownership. The SANDER Joint
Powers Authority Board of Directors is planning to include the option
for private ownership in the requests for proposals.
Under public ownership the SANDER Authority could issue revenue bonds to
finance the project. Under private ownership one financing mechanism
X-4
r�
FIGURE X-1
IMPLEMENTATION OF JOINT POWERS
PW rows AGMXWNM
I l !!
�ar
AdmWnzadw Fomh
1JmhMla apace at Commission (Choose ale) hhas commme
laid of Dlreetan Aactslm-Maldeg Body body of
riahs coatractor
Chow anal i
fb"r*fas bards ad seek party
Mayon of seek party
City twagors of ach party Memb"19 of An tsstslaad
APiolned xops. of sseh pasty Dectsiaddakiag Jody
Iwo" reps. of each party I
c hm" one: I
board
smanus commkea Adrlsory Board
Choose see: I
Cotmisslaa smptoyoes
Commut Witt odwc sv=7 On patty
sane ter all parties Functional Group Dept. of ome party
Drpt. of @ me or all parties Frlrate comeulow
_. htnm commulum
1
• faoose ose•
Comm tlsdsa employee Manager of operation of party
Depa"mat bads) Marrpr Deparmoeat bead
Coareleut Cowimu
CamtiNom smployoe Treasurer/ Trasuror of prime costrecmr
Trosssrer of ace pax ty comptroll" Treasurer of other put,
1 Choose am or mom.
i. —.. Flaaatag It cootdtudon
Deelp 4 comstmettaa
operation at outnseamrs
Acaatto/arm property at leaseholds Lewis of Seats
Comaaet
Budget
chodam, or MOM"
tediv" pasty pro ram costrlbutires
loade Issued as bnkalf of alt partite
' by oee parry Ftauelag Methods
1941 Act meue buds
X-5
which could be used by a system contractor would be the California Pollu-
tion Control Financing Authority.
Cities
Incorporated cities within the County retain responsibility for solid waste
storage, collection, litter programs, street sweeping, certain public infor-
mation and education programs, and nuisance abatement, including vacant lot
clean-ups, abandoned vehicle abatement and illegal dumping.
The majority of cities within the County accomplish solid waste collection
through franchise or license arrangement with the private sector. Residents
of these cities contract directly with the franchise holder or licensed col-
lector. Exceptions to this include the Cities of San Diego, Imperial Beach,
and Coronado. (See Table X-1)
Under provisions of the Peoples Ordinance, enacted in 1919, the City of San
Diego provides collection and disposal of most wastes generated without a fee
to City residents. Residential collection service within the City of San
Diego is provided by municipal employees. The City of San Diego also
licenses private haulers for commercial, industrial and residential collec-
tion service within its boundaries.
In 1968 the City of San Diego began charging for industrial waste disposal.
They also instituted fees for certain classes of material requiring special
handling and for all refuse generated outside City limits.
In November, 1981 the citizens of San Diego approved an amendment to the 1919
Peoples' Ordinance. The amendment authorizes establishment of disposal fees
for commercial, industrial and non-residential trash regardless of origin.
The City of Coronado provides solid waste collection as part of its General
Fund obligation. The City contracts with a private collector for this
service.
X-6
40
[1
.=a
Fl� TABLE X-1
EXISTING MUNICIPAL SOLID WASTE MANAGEMENT RESPONSIBILITIES
Ilttust
NUISANCE AtANOON[D
VCHICLlS
STA!!T
Ste[tING
AlfuS!
dIStOSJ1L
CITY
COLLECTION
AGAT[NlNT
CITY utilities
!Sett-'r test«•
Proemial -city
utilities city riPolitoPolitoNsistemoaeo
OiMwt
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a►llity • city say
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city vast. Ols"Ost Cala«ri I- city van Dl$"-I Ancharisod y City
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Oeeema1" Otomoal Oivisian
Coatroctors
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Nt
Ild fun ura
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waders
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t of city Solid wet•
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city SO1Id Waste
City Solid casts
Ssrid Trwtortsdon •
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Code See. 066.11
Division • city
troasutar (llensnl
Cade Sea 1".0104. Mesta 0irisiam
at. fa.
Sam Diego
wmicital Code
S6.01. 53.1. 66.03-
Statism e66.OtO7.
pits 0overtwst..
!Wait wank oats-
Ott.
valldiat g city }unapt',
Depart webs
DetarLmelnt
Collector MAP"*city
sibllity
►r%wAL3e
plammw DoKrtwt Office
Son lutes
Solid Mssto
SeMce, Int.
of San
Coll«ter IOap«-
Uses County permit County of Sew city ►ity00: 1 ODiego
CaO�nnity pewlo►-
sibiliri
Santa•
Holds"
0lefs
neat
pupa!! verbs
collector rooton-
froachlss city toning Laos• City wnpr/Agree-
aunt vith County popaTtaenc 1
sibitlty
Ytfu Ssaiuciom
!went Ofticet
-ivision !rattle ComtraeTls!
At City wws+r's
Vista
esat•my
Dsheriff
Office
X-7
The City of Imperial Beach provides municipal solid waste collection. How-
ever, there is a charge to residents for this service.
ORGANIZATIONAL ALTERNATIVES
As discussed earlier, the County of San Diego enjoys the distinction of being
a one -county planning and management region. With only sixteen incorporated
cities, and only two agencies involved in disposal activities, there has been
little need to establish an alternative structure for the management and
planning of solid waste services.
The obvious exception to this has been the SANDER Project. Due to its large
scale, the costs of financing such a project, and the limitations placed on
general fund revenue sources since the passage of Proposition 13 in 1978, the
City and County of San Diego entered into a Joint Powers Agreement to provide
i the necessary organizational and financing support for this Project. This
funding agreement is discussed in detail elsewhere in this Chapter.
~actors to be considered in designing an alternative program for solid waste
management include, but are not limited to:
° the functions to be undertaken by the alternative organizational
structure
° existing State and local laws and regulations
° the projected division of responsibilities among the parties involved
° necessary financing capabilities.
Any alternative organizational structure must be capable of accepting con-
tinuing responsibility and direction for implementation of the various ele-
ments of the Solid Waste Management Plan, and the power to enter into any
necessary arrangements and agreements for operation, maintenance and capital
costs.
Public agencies having both the legal authority and the financing capability
to address solid waste problems include counties, cities, certain special
districts, joint power authorities, and public non-profit corporations.
X-8
K
Table X-2 summarizes the authority of counties, cities, and special districts
to perform solid waste functions. Most of the agencies listed have broad
powers to conduct solid waste collection and disposal operations. An
exception is the legal prohibition against waste collection by county sanita-
tion districts, which may, nevertheless, contract for collection services.
Of the agencies listed, only counties and cities have any legal mandate to
plan for regional facilities. County governments are specifically delegated
responsibility by the Solid Waste Management and Resource Recovery Act of
1972 (G66700ff).
TABLE X-2
PUBLIC AGENCY MANAGEMENT FUNCTIONS
�.oumre
yen
Yee
YetGeneral
LAW Cities
Yes
Yes
#YelYes
es
YesCharter
CMOs
Yes
Yes
es
Yes
District Commanity Selvicee
No
Yes
Yes
Yes
Yes
County senhalon
District
No
Ny
Yes
,
Yes
Yes
county Sai'tas Area
Yes
Yes
Yes
Yea
Yes
Urbsp Disposal
District
No
Yet
Yee
Yes
Yea
k7 District
No
Yes
yes
Yet
Yea
X-9
r1/w
■tnttl
Yes
Yes
Yes
Yes
Yes
Yee
Yes
Yes
setztct may prorlie a
road range of services.
ocstlon of reuse dlspoea
r transfer subject to eleC
Do if90%ofdlat.unincorp,
to perform any service
county Can.
Table X-3 summarizes the formation and area characteristics of various
special districts having power to perform some solid waste functions.
TABLE X-3
SPECIAL DISTRICT FORMATION AND AREA
Aare
toeioM
Aaranw
w.e.u.r..o
*1010010071wrNt. aetewe
1rwYwa w bead of aearlrma
Ird�eo a
Yee
rAW13
wwra
UI
alraeir
aealndea aeiaw
G!��oa N
a.rwea y 6reN et sormrl�q
U2 a I
-wawa
eraore awoout
nmdm
�
Yee
aKarw at,� 0y0 a
Covey anrwe Ana
(ctms aJ
a.�.iww y heal ac eyenlaara
ut 41
Resslades
waw !
u wa
—mew x1ph
y t rowre my faro ► .
"w" •waw. Ineluatoa of city
w
requires council approval.
Coves whim amrwt
)reaiaais Mind et at
ireawa a
(MlotoON
30�rttarreama
Ulat
Hleawa
Ye
oetagr Olgrw aaewt
QNb70 N
aeNtwa y bare w er,eevlarea
n a I
a
Eleetloo
�" -P tfgafreo tle7 arraell
Yea
apprevaL°t
WA - Lj=000ApOr3wa area (Caaa6K La JWft 'n1Ore tbaa One county).
U2 - UdiworPOrwW (wore than One county allowed).
I - l000aporaad.
SPECIAL DISTRICT GOVERNING BOARDS
Nt�e
aeYear
Term
Mlaalwea«u
CewwaaY aortae Otwaaw
IDape A
lame/ K Ownrrs
I ee a
me" by eiwals wren
a Yens
C'WW eaoattYa M.1'AW
OM7M to
awe of Oltoeatro
At west J
� �/ Il
�wMaar•
Yr:wramleaDo
see our.Marb t to more tba
ode erraq, held oaaatwe
are remsem&
Cw4 aw.). Ara
(=a t0
Caq aw et ay..wrae
WA)
pv/A)
(NIA)
caws wow O4ui*
(wsoN r
awe et ok%n a
S
Mesas! by dwt"a reaan
i Yeats
Olraga =mold aeteMa
MAIN N
.Gwef load et apagwre
WA)
(M/A)
(N/A)
aarYry aettwt
MMNN
fumert=taro
s
Z"d1Wywwre
iYew
X-10
4
s
Table X-4 summarizes the ability of each of the public agencies listed in the
section to perform solid waste functions. As indicated, the powers of the
counties, cities, joint power authorities, or public non-profit corporations
are more comprehensive than are the powers of special districts.
TABLE X-4
CANDIDATE ORGANIZATIONS TO PERFORM SOLID WASTE MANAGEMENT FUNCTIONS
County
Cities
joint powers authority
paHc nogworA corporation
Community services district
Goodly sanitation district
Coony service area
Garbage disposal district
Sanitary district,
Private enterprise
Is
r gp
s
��
w�
8
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X`
X
X
X
X
X
X
X
X
X•
X
X
X
X
•Implicit in pones to operate a disposal "system".
FINANCING ALTERNATIVES
Revenue sources most commonly used in the County to support solid waste
activities are service fees and general funds. However, other revenue
sources are available to public agencies for this purpsoe. They are
discussed below.
Service Charges
Service charges have several advantages. They establish a relationship
between cost and use. They decrease the need to use property taxes. Prop-
erly applied, service charges can promote efficient use and planning of solid
waste facilities and can enable these facilities to be run as enterprise -type
operations.
X-11
All local agencies have the power to levy service charges. However, in
recent years this power has been limited by State and local initiatives.
Land Use Fee
Some local agencies may also levy indirect use charges for solid waste
services, in addition to - or in lieu of - direct service charges. These are
indirect service charges levied against a property tax owner, collected
through the property tax bill. It is a fiat fee based on a land use category
and is proportioned to the amount of waste generated by that type of land
use.
Specifically, counties and county service areas are empowered to levy:
"Fees to be used for the acquisition, operation, and maintenance of County
f waste disposal sites and for financing waste collection, processing,
reclamation, and disposal services where such services are provided. In
establishing the schedule of fees, the Board of Supervisors shall
classify land within the unincorporated area based upon various uses to
which the land is put, the volume of waste occurring from different land
uses, and other factors..."
Development Fees
Under the Subdivision Map Act, cities and counties have the right to require
that subdividers pay reasonable fees and/or dedicate improvements to the city
or county prior to subdividing land. Originally, these fee and dedication
requirements were restricted to streets, sidewalks and other improvements.
This has been amended to allow cities and counties to pass local ordinances
!
to charge for all improvements which are "necessary or convenient to insure
conformity to or implementation of applicable general or specific plans of a
city or county."
Subdividers could, therefore, be charged fees for the disposal site capacity
i
which is necessary for use by future occupants of the subdivision. These
fees then could be used to finance disposal site expansion and improvement.
X-12
FINANCING CAPITAL EXPENDITURES
Leasing
Leasing's major advantage to public agencies is the avoidance of debt elec-
tion and, less importantly, debt restrictions. Since lease payments are
financed out of current revenues, a local agency can avoid the expense and
delay of bond elections as long as current revenue sources are adequate to
s
meet the lease payments. Local agencies may lease facilities from either
public or private sources.
In California, local agencies have used two basic lease forms: lease pur-
chase and true lease agreements. A lease purchase is a renewable contract
enabling a local agency to assume title to the lease property at completion
of the lease.
A true lease, on the other hand, has no title transfer provisions. Lease
_.i payments do not build equity. Title transfers to the local agency only upon
subsequent purchase of the property.
Private Enterprise Financing
The public sector has ultimate responsibility for insuring that solid waste
services are provided. This does not, however, preclude solid waste facility
ownership and operation by private enterprise. Private enterprise involve-
ment may, in fact, be advantageous to public agencies.
Under existing Federal tax laws, private business receives a variety of tax
advantages which are not available to public entities. This could result in
a lower service cost to the user of the service.
Leverage Leasing
Private solid waste operators may find leverage leasing deirable for financ-
ing large-scale projects, since this financing method enables high tax
X-13
FIGURE X-2
LEASE -PURCHASE AND TRUE LEASE CASH FLOW
LENDER PROVIDES LENDER PROVIDES
100% OF 100% OF
FINANCING FINANCING
Project Cost Project Cost
Tax Ex mpt Tax Benefit
Inter st Debt Service
yments
LEASING AGENT LEASING AGENT
PROVIDES EQUIPMENT PROVIDES EQUIPMENT
Lease IPayments Lease Payments
LOCAL AGENCY LOCAL AGENCY
LEASE -PURCHASE TRUE LEASE
i
bracket equity owners to lease equipment and gain tax benefits accruing from
the investment tax credit and depreciation. Leverage may provide a private
I
financing mechanism which is competitive with public tax exempt financing.
Table X-5 reviews agencies and financing methods available to them.
a
Table X-6 provides an evaluation of these sources.
' X-14
I
i
TABLE X-5
SOURCES OF FINANCING SOLID WASTE MANAGEMENT FUNCTIONS
Costaty
Cbarosr cities
Geoaratl law cities
join powers Awwrity,
Pabilc moopr'ott corpor*tioa
Comuamsity services district
Commy eeakWon dlseriet
comity service area
Garbse dtspooal district
Sanitary diarict
PrMts operations
Present Sources
Alternative Sauces
Y
_
C
C
C
Y
Y�
Fi
V
C
.3
X
X
X X
X
X X__
X
X
X
X
X
X
X X
X X
X
X X
X
X
X
X
x
x x
x x
x
x x
x
x
x
x
X
x
x
x
x
x
x
x
X
x
X
X
X
X
X
x
x
x
x
--
TABLE X-6
` EVALUATION OF REVENUE SOURCES FOR SOLID WASTE MANAGEMENT
camp"" etfn other
SUN of
AdatlrYtratba
R.
ApplicaMlity to
cwvntbml t.,driu
or er'asshr araetose
AWIcability to
reroute
M/ieeellaaseua
hapetty tar/
Yee. became of
Eufen of all
Ib"um
General hod support
peewee resonce
Vacat lad also
Casual AW
tam revs limus.
soureee.
of convwtww bell-
recavar•fs risky.
M1s•
Was (RT 2201 fl).
M" umseft ezr,ce-
lard fted ap-
came of low risk.
port msy be do-
strable.
Service cbuvw
W
Can be converted
Good
Very goad wM man-
Very NOW with
Service chars"
to liess wltk ae-
dam collection.
maadstory collec-
eux. y flum"
tin by chi' or
comity.
lion.
mast colleRtiam.
Gee bea h
W
Requires a pa
Cool
Very good. life-
blest be patted
DDlAow sacc
keeper.
cam" are large
with costiot of
web to lush a
vases.
pee keeper. May
eaeoarage li -ft.
Prancid" fee
hb
It"atree audk
Good
Wbae we of tacit-
Only whare we is
Pramm" has of
of private weer-
ltles cas be aseigaad
eaeluslvely by
coueetoss can be
Pry
esclmlvely to private
pri— in*—T.
used as in Use at
idaKrY•
Paymete to pay
for dtspasd.
Lad use too
11D
Ater foetal
Moderate carp
Very good where used
Wry good *bat used
'
amprlsatlos.
more ape
to pay br *that s) osly
to pay ter either a)
alleetbs is
is aegotted.
dispaat or h) a week-
ody resource ro-
eyy
tort' coilsctloa eyaam.
co►Ky Lod dbpnd
or b) a numbeerr
atllactioa system.
Sale of materials
tie
Mbdsrete
poor
(PIA)
Yes
$ds of material
cam redsee gin
tees.
X-15
Future Financing
In these days of limited local government general funds, solid waste projects
must compete with a growing number of public services and projects.
These projects include equipment acquisition, future landfill acquisition,
site closure and completed landfill maintenance and betterment costs.
Recent years have seen an increasing inability of government to budget for
future needs. Solid waste activities are very capital intensive. Equipment,
future facility acquisition, completed fill maintenance, resource recovery
facilities are all major acquisitions.
As a rule of thumb it has been estimated that one resident generates one ton
t
of trash per year. With a projected 30% increase in population for San Diego
County, . to will experience our own garbage crisis as early as the end of this
t
decade in North County.
The SANDER Project, other recycling and resource recovery projects, compac-
tion at the existing sites, new state regulations waiving daily cover re-
quirement will assist in delaying this crisis by expanding utilization of
existing sites. (These future disposal options are discussed in Chapter
We must however recognize and begin implementing a financing method to bank
R these future costs of doing business. Waste Age, a solid waste professional
publication, estimates the following relative expenditures for a total pic-
ture of landfill costs:
TABLE X-7
LANDFILL DEVELOPMENT, OPERATION, AND LONG-TERM CARE
Percent of
Cost/Ton Total
Predevelopment and Site Preparation Cost $ 4.01 31
Site Operation & Maintenance Cost (10 years) 4.59 35
Site Closure Cost .59 5
Long -Term Maintenance Costs (20 years) 3.68 29
Total Cost $=. Im
WASTE AGE/OCTOBER 1981
X-16
N
One accounting method available is imposition of an Enterprise Fund for Solid
Waste Activities. The Solid Waste Program became enterprise funded in FY
1981-82. This establishes a mechanism for "banking" current revenues for
future capital needs, as well as providing a daily operation accounting
mechanism.
SUMMARY
Fiscal constraints facing public agencies have curtailed agressive capital
projects.
1. A mechanism to capture funds today, for tomorrow's disposal needs must be
implemented.
2. The County of San Diego will continue to serve as the management and
planning agency for the San Diego region.
w. 3. The City of San Diego and the County of San Diego, and other agencies as
appropriate, will continue to pursue the implementation of the SANDER
project.
4. The County of San Diego, in cooperation with the private sector, will
pursue other large-scale resource recovery projects as appropriate.
5. The County of San Diego will establish and maintain a fee schedule
designed to recover the costs of the Solid Waste Program as defined by
the Board of Supervisors.
5. The County of San Diego will institute land use or other appropriate fees
to recover the costs of solid waste activities provided in the interior
region of the County. 20% of the costs of the service, however, will be
recognized as a General Fund expense.
X-17
C-H-A-P-T-E-R E-L-E-V-E-N
CONTINGENCY PLANNING
CHAPTER XI
CONTINGENCY PLANNI_NG
To protect the public's health, safety and welfare, it is essential that
solid waste services continue in emergency situations. If collection is not
performed on a regular basis wastes accumulate, exceed storage capacity and
i create both a nuisance and a health hazard. Spoilage of putrescibles in
uncollected waste can attract vectors and rodents which further endangers
i
public health.
Interruptions of regular service may result from extensive plant or equipment
breakdowns, fuel shortages, labor disputes, natural disasters or civil dis-
turbances. Since manly of these occurrences are unpredictable or unprevent-
1 able, all responsible agencies, both public and private, must develop compre-
hensive contingency plans which provide for safe waste removal and disposal
in the event that regular service patterns are disrupted.
This chapter examines the viability of existing contingency plans to ensure
the continuity of critical solid waste collection and disposal services.
Collection
A recent survey of governments and local collection industry representatives
indicates that current levels of solid waste contingency planning in San
Diego County appear adequate to ensure uninterrupted collection service in
most emergency situations.
Labor Disputes
With the exception of Imperial Beach and San Diego, waste collection services
are provided by contract with private industry. A great percentage of these
contracts contain "strike clauses" which provide some relief in the event of
a work stoppage. Some cities have indicated that their contracts provide for
i
the city's right to take over and operate the hauler's collectim, equipment
in the event of a work stoppage and that they would exercise this right in
XI -1
such an event. They would then store the refuse on tennis courts, in parks
or wherever space could be made available. If necessary, they would d±;;
landfill space in city parks for the duration of the emergency.
The City of San Diego's plan provides, if partial staff were availabl,1,all
routes would be collected, but at a reduced frequency. If staff is not
available, private companies would be contracted with for refuse collection.
Fuel Shortages
Under the Federal Emergency Fuel Allocation Program, refuse collection i
operations are considered emergency services. They are entitled to rece
100 percent of their needs from available supplies. During the 1973 she
age, however, there was not enough fuel available to provide full alloca
in all instances.
At that time the San Diego County Disposal Association developed a mutua
assistance program which achieved measurable success in aeeting the shor
The Association, assisted by several local governments, urged regulatory
agencies to increase allocations. It worked to achieve maximum fuel con
vation within its members' individual collection routes and consolidated
several routes, even servicing each others' clients in some cases to red
overlap in areas serviced by several haulers.
None of the non-member private collectors or cities providing their own
cipal collections have adopted detailed fuel allocation plans or made in
city fuel distribution arrangements to ensure the availability of fuel f
collection vehicles in the event of a shortage. Development of compatib
plans for these purposes will facilitate the acquisition and distributio
fuel and ensure continued collection during shortages.
i
During the most recent fuel shortage, however, the City'of San Diego gua
teed its Solid Waste Division fuel allocations.
XI-2
Equipment Breakdown
Most collection organizations, both public and private, maintain swing
vehicles for this purpose. The City of San Diego maintains at least one
swing vehicle for every five regular collection trucks.
Both the City and County of San Diego require all private collection
operators to have lega'1 access to at least two collection vehicles as a
prerequisite to licensing. This insures that collection service can be
maintained through overtime work using the spare truck if one vehicle is out
of service. Since each vehicle must also meet certain performance and safety
standards prior to licensing, the potential for breakdown and service.
disruption is reduced.
Disasters
Major disasters such as earthquakes, floods, fires and even possible n'.11i-
tary attacks could cause large-scale disruption of collection services. In
the event of major disasters, most cities have indicated that top priority
would be given to preserving life and property. Handling solid waste would
take a lower priority.
Disposal
A dependable disposal operation is a critical segment in the total solid
waste operation.
While the most likely large-scale interruption'. in disposal service would
arise from labor disputes, reduced operability of landfill sites could also
result from fuel shortages, equipment breakdowns and natural disasters.
The City of San Diego General Services Department Emergency Procedures Manual
contains general procedures for providing waste disposal services in
emergencies. These include (a) insuring fuel supplies, (b) insuring parts
maintenance and sources, (c) training equipment operators, and (d) obtaining
trained equipment operators from other agencies.
e*- ,
In the event of a work stoppage, the existing disposal contingency plan for
the County of San Diego requires the contractor to provide substitute
personnel to operate landfill equipment at two regional sites, one in the
north and one in the south County.
Contingency plans outlined in existing procedures manuals for individual
County operated disposal sites provide instructions to be followed in many
emergency situations. These include operation in bad weather, fire and "hot
load" procedures, steps to be taken in the event of accident and injury,
handling of hazardous wastes, and fuel shortage procedures.
Processing Facilities
Contingency planning for resource recovery or conversion facilities should
provide for such emergency situations as labor disputes, equipment breakdowns
and fuel shortages. Detailed provisions need to be made for such unpredic-
table events as boiler and processing equipment explosions, gas and oil fires
and/or chemical spills. Plans should provide for personnel care on site and
during evacuation as well as rehabilitation efforts following the emergency.
Industrial Wastes
Most industrial wastes could, if absolutely necessary, be stored at the
points of generation for short periods without seriously threatening the
health and safety of the public. Special storage provisions may be needed
for certain hazardous and extremely hazardous industrial wastes.
Spills
Contingency planning for the management and removal of spilled oils, and
hazardous, potentially hazardous and other materials is the responsibility
of the individual jurisdiction in which the spillage occurs. Local police
are responsible for providing traffic control. Commercial establishments are
available to provide cleanup service.
XI.4
Local and regional planning for such contingency activities are also coordi-
nated with:
° the State Oil Spill Contingency Plan (SOSCP)
° neighboring jurisdictions
° the County Department of Agriculture which has prepared emergency
procedures.for agricultural chemical spillages
° the State Office of Emergency Services which coordinates the development
of a State-wide contingency plan for hazardous material spills
° the County Office of Disaster Preparedness and Fire Services
° the City of San Diego Disaster Preparedness Liaison
° City Managers, Police and Fire Departments.
Spoiled Foods
If an area -wide emergency were coupled with a prolonged power outage, special
solid waste services would be required to handle and dispose of large quanti-
ties of spoiled food. Without sustained refrigeration, food would deterior-
ate rapidly and would require immediate burial in order to avert a serious
health threat.
Medical ,Wastes
Because of the characteristics of medical wastes the retention period should
be as short as possible. In case of an immobilizing work stoppage, contin-
gency planning should give high priority to the handling of medical wastes to
prevent the outbreak of contagious or infectious diseases.
x
Medical institutions which have been issued permits by the Air Pollution
Control Board could operate their on -site incinerators to the fullest extent
possible during emergencies. A list of medical institutions presently
holding valid burning permits is shown in the Appendix (A-XI-1). A 24-hour
emergency incinerator operation could handle all medical wastes requiring
immediate disposal or treatment.
Emergency Demolition V.-tes
In the event of a large-scale disaster, there may be extensive damage to
buildings and roadways with large quantities of rubble blocking roads and
XI -5
impeding emergency operations. As clearing of such debris is accomplished by
local agencies, private industry and householders, landfills would receive
large volumes of these wastes.
The City of San Diego has designated the Miramar and Montgomery Landfills for
this purpose. County landfills open during any emergency situation can
accommodate demolition wastes.
Major Marine Oil Spills
The San Diego area is particularly vulnerable to a major marine oil spill
because of heavy ship traffic and extensive shoreline exposure.
The United States Coast Guard is responsible for clean-up of any oil spillage
f on navigable water. Its specialized equipment and trained personnel are on
{
call and available to cope with such an emergency. The United States Navy
also has equipment and personnel on a standby basis at all times for cleaning
up oil spills from Naval activities.
Although major emphasis has been placed on rec.very of the spilled oil, a
certain amount of non -reclaimable oil, residues and absorbent materials used
in the clean-up will require disposal. Refuse of this kind can be deposited
only in a Class I or Class II-1 landfill.
SUMMARY
Any prolonged interruption in solid waste services can have detrimental
effects on the public health and welfare and the quality of the environment.
Since all of the cities in the region either provide or contract for waste
collection within their jurisdictions, they are responsible for insuring the
maintenance of such service. They are in the best position to determine
local emergency collection needs and to develop appropriate contingency
measures. Where collection is contracted for, such plans will neccssar;ly
require the cooperation of the waste hauler and in some cases its parent
company.
XI-6
Making similar arrangements for the unincorporated areas is currently the
responsibility of the County of San Diego. Collection disruptions may affect
several jurisdictions and require coordination among multiple local
collection authorities.
The County Department of Public Works has final responsibility for waste
disposal in emergency situations in the unincorporated areas once a "state of
emergency" has been declared by the Board of Supervisors.
On the basis of the findings and considerations presented in this chapter it
is concluded that the program set forth below should be implemented.
1. Each city is responsible for the maintenance of a contingency plan to
maintain collection services in the event of an emergency. The Appendix
contains a list of elements to be included in such a plan (A-XI-2).
2. Those cities which contract for collection service should coordinate
contingency planning with the hauler.
} 3. The County Department of Public Works shall maintain its contingency
-� program for the unincorporated areas of the County.
4. The County Department of Public Works shall work with the cities in
developing collection contingency plans which are compatible with the
plans of neighboring jurisdictions.
1
5. The Department of Public Works will assist in coordinating emergency
collections and for communicating with the public during any area -wide
solid waste crisis.
6. The County Department of Public Works shall work closely with
`
apprbpriate agencies to develop emergency plans for handling potentially
dangerous materials. The plan should include at least the following
elements: (a) emergency authority to incinerate or burn wastes, (b)
f
prolonged storage policies, (c) on -site burial or burning if prolonged
storage would endanger the public health.
k
7. During the design phase of each new disposal or waste processing
`
F
facility, an appropriate contingency plan shall be developed.
XI-7
CHAPTER XII
LOCAL ENFORCEMENT AGENCIES
The purpose of this chapter is to discuss Local Enforcement Agency (LEA)
Plans.
The Z'berg-Kapiloff Solid Waste Control Act of 1976 (AB 2439) required that
each municipality designate an enforcement agency to carry out the provisions
of the Act and to enforce the State's minimum standards for solid waste hand-
ling and disposal. The Act also requires that the designated -Local Enforce-
ment Agencies (LEAs) prepare plans which identify their responsibilities and
duties. These LEA Plans become the Enforcement Element of each County Solid
Waste Management Plan by direction of the State Solid Waste Mangement Board.
The Solid Waste Enforcement Programs for the sixteen incorporated cities
and the unincorporated areas of the County operate by authority of Title
7.3, Government Code, Title 14, California Administrative Code, and the U.S.
Resource Conservation and Recovery Act of 1976, as amended.
Components of a LEA Plan were outlined in a document prepared by the State t
Solid Waste Management Board entitled "The Guidance Manual for the Prepara-
tion of Local Enforcement Program Plans". An LEA Plan should include the
fol l awi ng information:
COMPONENTS OF A SOLID WASTE LOCAL ENFORCEMENT PROGRAM
I. STATE AND LOCAL REGULATIONS
An LEA plan must contain provisions for the enforcement of solid waste
storage and collection standards. The authority and procedures for
enforcement of these activities of solid waste management activities
shall be included.
II. PROGRAM GOALS AND OBJECTIVES
III. SOLID WASTE FACILITY PERMITTING PROCEDURES
Identify the procedures of the enforcement agency for obtaining a solid
waste facility permit.
XI I -1
IV. INSPECTION COMPLIANCE PROCEDURES
V. STAFF TRAINING
The staff training conducted by the LEA for the general enforcement
procedures and specific enforcement techniques for the solid waste
management program.
VI. TIME TASK ANALYSIS
Personnel required to conduct an acceptable solid waste enforcement
program.
VII. TABLE OF ORGANIZATION
Number, names and classification of personnel assigned in the solid
waste enforcement agency (program).
VIII. BUDGET
Table XII -1 lists the designated health and non -related LEA designations for
the San Diego Region.
i
TAB LE XI I -1
Designated Local Enforcement Agencies (LEAs) for the San Diego Region
Jurisdiction
Non -Health Related
Health -Related
County of San Diego
Dept. of Public
Works
County
Dept.
of
Health
Services
(Unincorporated)
Carlsbad
City Manager
County
Dept.
of
Health
Services
Chula Vista
City Manager
County
Dept.
of
Health
Services
Coronado
Dept. of Public
Works
County
Dept.
of
Health
Services
Del Mar
City Manager
County
Dept.
of
Health
Services
El Cajon
Dept. of Public
Works
County
Dept.
of
Health
Services
Escondido
Dept. of Public
Works
County
Dept.
of
Health
Services
Imperial Beach
City Manager
County
Dept.
of
Health
Services
La Mesa
Dept. of Public
Works
County
Dept.
of
Health
Services
Lemon Grove
City Council
County
Dept.
of
Health
Services
National City
Dept. of Public
Works
County
Dept.
of
Health
Services
Oceanside
Public Service Dept.
County
Dept.
of
Health
Services
Poway
Dept. of Public
Works
County
Dept.
of
Health
Services
San Diego
State Solid Waste
State Dept.
of Health Services
San Marcos
Management Board
City Manager
County
Dept.
of
Health
Services
Santee
Dept. of Public
Works
County
Dept.
of
Health
Services
Vista
Dept. of Public
Works
County
Dept.
of
Health
Services
XII-2
r
COUNTY OF SAN DIEGO
i
In the County's implementation of its LEA plan a memorandum of understanding
was reached between the Department of Public Works and the Department of
j Health Services. The Department of Health Services, on February 22, 1978
delegated responsibility for inspection of all County solid waste disposal
facilities to the Compliance Section of the Department of Public Works, Solid
! Waste Division. The facilities are inspected on a monthly hzsis. A copy of
i
the inspection report is sent to the Department of Health Services. A joint
inspection of facilities is done quarterly by both departments.
The County's LEA plan also details solid waste facility permitting proce-
dures. This is a responsibility of the Department of Health Services.
All solid waste collection and/or transportation vehicles servicing the
unincorporated areas of the County or utilizing County disposal facilities
are inspected annually by the Department of Public Works. All collection
and/or transportation vehicles are routinely spot checked.
} Cities �-
z
Three cities, Coronado, Imperial Beach, and San Diego are directly involved
in solid waste activities. All three of these Cities provide collection
service. San Diego also operates two landfills.
i,
The remaining cities' major involvement is in regulating storage and collec-
tion standards within their jurisdictions.
i
A review of LEA plans prepared by cities indicates that storage standards are
generally enforced by building inspection, zoning enforcement and fire
department personnel. Public nuisances are handled by police and fire
personnel.
a Copies of Local Enforcement Agency Plans are on file with each city, the
f County Department of Public Works and the State Solid Waste Management Board.
1
XI I -3
F
oik
r
C-H-A-P-T-E-R T-W-E-L-V-E
LAW ENFORCEMENT AGENCIES
TABLE OF CONTENTS
APPENDIX
Page
APPENDIX A - SOLID WASTE MANAGEMENT PLAN
REVISION COMMITTEE STRUCTURE------------------------------ A -Ai
APPENDIX B - INTRODUCTION FROM ORIGINAL PLAN -------------------------- A-Bi
APPENDIX C - IDENTIFICATION OF GOALS AND OBJECTIVES ------------------- A-Ci
From the Original Plan
APPENDIX D - BOARD POLICY I-76 - SOLID WASTE DISPOSAL ----------------- A -Di
APPENDIX E - COUNTY OF SAN DIEGO
SOLID WASTE COLLECTION ORDINANCE No. 5726---------------- A-Ei
(New Series)
APPENDIX I-1 - SAN DIEGO COUNTY GEOLOGIC }
A.`1D HYOROGRAPHIC DESCRIPTION -------------------------- A-I-g
APPENDIX
I-2 - AIR QUALITY -------------------------------------------
A-I-2i
APPENDIX
I-3 - GROWTH TRENDS --=--------------------------------------
A-I-3i
APPENDIX
A -II - MODEL COLLECTION ORDINANCE ---------------------------
A-II-1
APPENDIX
A -III - SOLID WASTE ALLOCATION MATRIX I ---------------------
A-III-i
APPENDIX
A-V-1 - RESOURCE RECOVERY -
STATE OF THE ART ------------------------------------
A-V-1i
APPENDIX
A-V-2 -'EL CAJON RESOURCE RECOVERY
DEMONSTRATION FACILITY ------------------------------
A-V.21
APPENDIX
A-V-3, - SAN DIEGO ENERGY RECOVERY (SANDER) PROJECT ----------
A-V-31
APPENDIX
A-VIII-1 - STATE AGENCIES INVOLVED IN
HAZARDOUS WASTE MANAGEMENT ----------------------
A-VIII-1i
APPENDIX
A-VIII-2 - HAZARDOUS WASTE GENERATION
AND DISPOSAL IN CALIFORNIA----------------------
A-VIII-2i
APPENDIX
A-VIII-3 - TEL.'40LOGIES FOR TREATMENT
OF HAZARDOUS WASTES -----------------------------
A-VIII-3i
APPENDIX A-VIII-4 - HAZARDOUS WASTES MANIFEST CATEGORIES ------------ A-VIII-4i
APPENDIX A-VIII-5 - COUNTY OF SAN DIEGO HAZARDOUS
MATERIALS EMERGENCY RESPONSE PLAN --------------- A-VIII-5i
oft
TABLE OF CONTENTS
APPENDIX
(Continued)
Page
APPENDIX
A-IX-1
- LITTER SURVEYS -------------------------------------
A-IX-li
-APPENDIX
A-IX-1
- WAR AGAINST LITTER
COMMITTEE (WALCO) PROGRAMS -------------------------
A-IX-2i
APPENDIX
A-IX-3
- SB 650 LITTER GRANT PROGRAMS -----------------------
A-IX-3i
APPENDIX
A-XI-1
- MEDICAL WASTE INCINERATORS --------------
----------- A-XI-1
APPENDIX
A-XI-2
- CONTINGENCY PLAN ELEMENTS --------------------------
A-XI-2
ii
Ak SAN DIEGO REGION SOLID WASTE MANRo"EMENT PLAN
1976-2000
TRIENNIAL REVISION COMMITTEE STRUCTURE
EXECUTIVE COMMITTEE
Clifford W. Graves
Chief .Administrative Officer
County of San Diego
Ray Blair
City Manager
City of San Diego
Rudy J. Massman
Director of Department of Public Works
County of San Diego
Terry Flynn
Director of beneral Services
City of San Diego
'SOLID WASTE PLAN REVISION COMMITTEE
Jim Bartell
Robb Thurner - Representing San Diego County Board of Supervisors
Barbara Weamer
Councilwoman Killea - Representing San Diego City Council
Terri Flynn
Bill Baldwin - Representing North County Cities
Councilman Jack L. Hanson - Representing East County Cities
Mayor Pat Callahan - Representing South County Cities
Mayor Kile Morgan
Ann Payne - Representing League of Women Voters
Steve Buckley - Representing Sierra Club
Joe Dietz
Lee Simon - Representing Construction Industry Federation
Clarence Boyd, Jr.
Donald Flint Representing Public Works Advisory Board
Lawrence Towle
Chris Walker - Representing CALPIRG
A.W. Anderson, Jr.
A -Ai
-2-
TECHNICAL ADVISORY COMMITTEE
John S. Burke, Deputy County Engineer
County of San Diego, Department of Public Works
Jim Gutzmer, Deputy Director
City of San Diego, General Services/Solid Waste Division
Jerry Schlesinger - Representing San Diego Association
of Governments (SANDAG),
Dave Winter - Representing San Diego Disposal Association
Representatives from 16 Cities:
Bill Baldwin - City of Carlsbad
Lane Cole - City of Chula Vista
Floyd R. Moore City of -Coronado
K. wt Nelson - City of Del Mar
John Pizzato - City of El Cajon
A. E. Vickery - City of Escondido
Sherman Stenberg , City of Imperial Beach
Denise .Lavelle - City of La Mesa
' Jack D. Shel ver CJty of .Lemon Grove
! Curt Williams —City of National City
James M.-Reid _ City of Oceanside
James L. Bowersox - City of Poway
Terry Carroll - City of San Diego
Mick Gammon
Carol Fox - City of San Marcos
Jeff Ritchie
Stephen Thatcher - City of Santee
Chuck Hale - City of Vista
Nikki Clay - Representing San Diego Energy Recovery Project (SANDER)
David Barker - Representing Regional.Water Quality Control Board (RWQCB)
Joe Kaminski - Representing the lath Naval District
Herb Sher - Representing the County of San Diego,
Department of Health Services
A-P-P-E-N-D=I=X B
INTRODUCTION FROM ORIGINAL, PLAN
P
INTRODUCTION FROM THE ORIGINAL PLAN
Traditionally/; the storage, collection and disposal of solid waste have held
a position of low priority in the minds of the American public and many of
its officials. The average citizen's concern usually ended when garbage and
trash cans were placed -at the street curb and emptied by the refuse collec-
tion truck. The waste was out of sight and therefore out of mind.
This nation has only recently awakened to the fact that existing refuse dis-
posal capacity is rapidly diminishing due to a constantly increasing volume
of waste and to difficulties in finding suitable new disposal sites. In the
past 50 years the national solid waste volume has doubled. In the nation's
cities an,almost twofold .increase has occurred in the last 20 years. All of
the existing. disposal capacity of half of the nation's cities wi l l be
exhausted by 1980. San Diego County will close more than half of its current
landfill sites by that time. There is urgent need not only to obtain
replacement disposal sites but to also find better alternatives to conven-
tional refuse disposal practices. Improved techniques, procedures and
' systems - must be -developed to divert many discarded materials from the waste
stream through recycling and resource recovery.
The American people's newly aroused interest in solid waste problems has come
none to soon. The nation is now generating 3.5 billion tons of solid waste
a year -and spending $4.5 billion to dispose of it. Nationwide, solid waste
collection and disposal comprise the third largest local expenditure funded
by Tical revenue. San Diego County generated approximately 1.7 million tons
of solid waste in 1974 and spent an estimated $26.5 million for collection,
hauling and landfill disposal.
Only seven percent of the world's population resides in the United States,
yet nearly half of the world's raw materials are consumed here as fuel or
as components of fabricated products. Many of these find their wady into
the nation's trash piles in such forms as disposable bottles, cans, pack-
aging, and yesterday's newspapers. Inappropriate refuse disposal methods
such as -open dumping, ocean dumping and open burning have contributed to
A-Bi
environmental degradation. Many local governmental agencies and departments r'14)
which are responsible for waste disposal in their own jurisdictions
frequently act independently of, and are not coordinated with, neighboring
iocal,entities. In such situations inadequate attention to mounting problems
and lack of coordinated effort -have often resulted in inefficient and costly
solid -waste management practices.
RECENT SOLID,WASTE LEGISLATION
The growing concern of the American people about air and water pollution and
solid waste management problems has found expression in public participation
programs, activities of businesses and industries and comprehensive legis-
lation at Federal, State and local levels. A series of landmark legislative
measures has,mandated cleaner and more healthful surroundings and has made a
commitment to the conservation of resources for ourselves and future gener-
ations. Stiffer air pollution laws have eliminated most open burning of
refuse -and have spurred communities to develop such alternative disposal
methods as sanitary landfi:lling and carefully controlled thermal reduction
and to consider alternative organizations for the implementation of improved
procedures.
As early as 1956 the Federal Government focused attention on environmental
pollution with the passing of the Federal Water Pollution Control Act.
However, legislation dealing specifically with solid waste management was not
forthcoming until 1965'when the Solid Waste Disposal Act was passed. This
Act,provided for research and development in the area of collection, handling
and disposal of solid wastes. The 1970 amendment of this law, entitled "The
Resource Recovery Act", stressed the need for recycling discarded materials.
Both the original Act and the amendment encouraged the development of local
planning programs in the field of solid waste management.
The national concern with solid waste problems has been shared by
Californians, their local officials, and their State Legislature. A large
number of research and development projects in the field have been undertaken
A-Bi i
in this State in recent years, some in joint sponsorship with the Federal
government and some at the initiative and with the financial support of the
State or local agencies.
In 1972, the State Legislature enacted the Solid Waste Management and
Resource Recovery Act in order to establish and maintain comprehensive State
solid waste management and resource recovery policies and programs. This
definitive Act sets forth that "the increasing volume and variety of solid
wastes being generated throughout the State, coupled with the often
inadequate methods of managing such wastes, are creating conditions which
threaten the public health, safety and well-being by creating nuisances,
causing environmental damages, such as air and water pollution, and the
wasting of natural resources.",
This law created a seven -member State Solid Waste Management Board within the
California Resources 'Agency and prescribed its membership and powers. The
Act recognizes, that the primary responsibility for adequate solid waste
management lies with local government and requires counties to prepare a com-
prehensive and•coordinated solid waste management plans. Each such plan must
be developed in accordance with State regulations and guidelines and must
receive the approval of a majority of cities within the County having a
majority of the population in the incorporated county areas before submittal
to the State Board by January 1, 1976. The Act also requires the inclusion
of an- analysis of the economic feasibility of the plan.
'The Board was required to adopt by January 1, 1975 a State Solid Waste
Resource Recovery Program to develop technologically and economically feas-
ible systems for the collection, reduction, separation, recovery, conversion
and recycling of all solid waste and the environmentally safe disposal of
nonusable residues. Among other powers and duties prescribed for the State
Board are the requirements that it conduct studies of new and improved
methods of solid waste handling, disposal and reclamation and that it coordi-
nate the studies of other state agencies. A program is to be implemented to
provide information to the public on maximum environmental protection and on
reuse of waste. The Board is required to render technical assistance to
�.�' A•-B i i i
local and state agencies and to local health officers. Alternative methods
of providing financial assistance to local agencies for the planning and pur-
chasing of solid waste facilities must be studied. The State law also man-
dates a litter stud to be conducted by the Board, a report of which was to
be presented to the Governor and the Legislature by January 1, 1975, covering
the nature, extent and methods of reducing and controlling the litter problem
on a statewide basis. Recommendations were to be made regarding improvements
of public "anti -litter" education, necessary additional legislation, and
improved methods of implementing existing litter laws.
The Solid Waste Management and Resource Recovery Act delegates to the State
Department of Health responsibilities for all aspects of solid waste manage-
ment and resource recovery that affect human health. The Department was re-
quired to submit by January 1, 1975 minimum solid waste handling and disposal
standards for the protection of public health to the Board for inclusion in
the State Policy for Solid Waste Management.
In creating:the Solid Waste Management Board the California Legislature k '
recognized the problems that have resulted from the increasing volume and
variety of wastes being generated within the State as well as from disposal
methods that are often inadequate and inefficient. Attention was focused on
these conditions because they "threaten the public health, safety and well-
being" by contributing to air, water, and land pollution and to depletion of
our natural resources. It was recognized that population increases, indus-
trial expansion, technological development and transportation improvements
place economic, planning and resource limitations on the availability of
landfill space. The legislature therefore emphasized source reduction,
resource recovery, energy conversion and recycling of solid wastes with the
long-range goals of preservation of the health and safety of the public,
economic productivity, environmental quality and conservation of natural
resources. The standards included in the State policy for Solid Waste
Management encompass the location, design, operation and maintenance of solid
waste facilities but do not affect those aspects of solid waste management
which are primarily of local concern.
A-Biv
04
A-P-P-•E-N-D-I-X
IDENTIFICATION•OF GOALS AND OBJECTIVES FROM THE ORIGINAL PLAN
IDENTIFICATIONS OF GOALS AND OBJECTIVES
From the Original Plan
In the formulation of major goals the Task Force focused its attention on the
solving of existing problems it the region and on ensuring continuing pro-
gress in maintaining public health and safety and conserving natural
resources. Goals were determined in the various areas of solid waste manage-
ment with the supporting objectives required to facilitate their achievement.
Objectives were divided into short term (1976-1980) and general medium and
long-term (1981-2000) time spans according to period during which the most
intense efforts toward objective achievement will occur, (i.e., program
development as contrasted to program maintenance). It is not intended to
imply that no efforts towards objective attainment; may occur either before or
after that time. Implementation of specific objectives is dealt with in
greater detail in the chapter in which they are discussed.
Overall Goal
To provide a system for managing the generation, storage, collection, trans-
portation, reuse and disposal of solid waste in an economical manner which
protects the public health and welfare, conserves natural resources and
energy, minimizes littering and illegal dumping and generally enhances the
environment.
Specific Goals
1. Financing and Organization Goal. Develop an organizational system for
solid waste management which is responsive to local and regional needs,
adaptable to changing conditions and technologies, and which has the
powers to enforce solid waste laws and regulations, manage the system for
optimum efficiency, equitably allocate costs of solid waste services, and
obtain the necessary financial resources to meet capital and operating
requirements.
4
7
A-Ci
e-.
Objectives
Short Term
a. Identify and implement an organizational structure with authority and
staffing to ensure overall management and coordination of solid waste
operations on a regional basis.
b. Provide for community input in the policy -making process.
c. Identify responsibility for enforcement of State and local regulations.
d. Monitor existing solid waste activities and evaluate developing
technologies and markets for reclaimed materials.
General Medium and Long Term
e. Develop an equitable long-range financing program for meeting capital and
operating requirements.
f. Coordinate solid waste management activities with Federal, State and
local agencies, including adjacent counties.
2. Generation Goal. Develop and implement a program aimed at the reduction
of solid waste volumes.
Short Term
a. Develop and implement a program to educate the public to reduce
unnecessary waste generation through discriminating purchasing
practices.
General Medium and Long Term
b. Seek State and Federal legislation aimed at the reduction of solid
waste volumes.
11-e
A-Cii
c. Encourage municipalities, residents, and industry to support
appropriate waste reduction legislation.
d. Encourage treatment and reclamation of industrial and institutional
hazardous wastes as technology permits.
3. Storage Goal. Ensure that solid wastes awaiting collection are stored in
such a manner as to protect the public health and welfare, minimize
nuisances, and enhance residential, commercial, industrial and
agricultural environments.
Objectives
Short Term.
a. Enforce State standards and adopt complementary local and regional
standards to protect the public health and enhance community
environmental values.
b. Ensure adequacy of storage facilities and accessibility to collection
operations.
General Medium and Long Term
c. Evaluate and encourage the implementation of innovative, practical
and attractive storage concepts.
4. Collection Goal. Ensure that solid wastes are collected from all areas
of the County requiring such service and assist local entities in
maintaining municipal solid waste collection systems, utilizing the
capabilities of private enterprise and public agencies, at a cost which
is reasonable and commensurate with the services provided and in a manner
which meets the service requirements of the public and the standards of
State and local authorities.
A-Cii i
Objectives
Short
d. Ensure the enforcement of State and complementary local and regional
standards for solid waste collection, including service levels and
frequencies, vehicle and personnel standards and public health
requirements.
b. Provide contingency planning which will ensure uninterrupted
collection -service.
c. Ensure that solid waste collection service is provided in all areas
requiring such service.
d. Determine the feasibility of mandatory collection service and
recommendAmplementation where appropriate.
e. Provide assistance to public and private collection operators in
developing safety and training programs.
General- Medium and Long Term
f. Furnish assistance to local entities in the formulation and
evaluation of collection fees and service levels where necessary.
5. Transportation Goal. Minimize transportation costs and energy
consumption, eliminate excessive collection and transfer vehicle traffic
,in all areas of the County, thereby reducing air polluting emissions and
other detrimental environmental effects of solid waste transportation.
Objectives
Short Term
molt
a. establish solid waste facilities with due regard for minimizing haul
distances, thereby reducing polluting vehicle emissions and the costs
of transportation.
A-Civ
b. Evaluate proposed waste facility designs to identify potential
traffic increases and recommend design, operational, or locational
changes which would minimize traffic impact on surrounding land
uses.
General Medium and Long Term
c. Promote improve,nents in design and operation of collection and
transfer vehicles, thereby decreasing vehicle trip mileage and
costs.
6. Processing and Reuse Goal. Develop and implement a program for recov-
ering valuable resources from solid waste which, wi l l result in a
reduction in the per capita amount of residential and commercial solid
wastes being disposed of in disposal facilities and identify reliable,
long-range markets for reclaimed materials.
Short Term:
a. Identify processes which will recover marketable materials and energy
from solid waste. Analyze alternative processes to determine those
most cost effective for the San Diego area.
b. Plan for the design, construction, operation and financing of a
municipal scale resource recovery facility to be operational in the
1980's.
c. Encourage citizen participation in recycling efforts including house-
hold separation where appropriate.
d. Develop citizen participation in reycling efforts including household
separation where appropriate.
General Medium and Long Term
+ e. Continuously analyze markets for recyclable materials and energy.
A-Cv
f. Provide an opportunity for private industry to participate in waste
processing and resource recovery programs.
g. Seek State and Federal legislation aimed at the elimination of dis-
criminatory policies towards recycled materials and the encouragement
of opportunities for resource recovery, including financial assis-
tance.
7. Disposal Goal. Provide a system of solid waste land disposal facilities
which Will :meet the disposal needs of the -people of San Diego County
until the year 2000.
Objectives
Short Term
a. Evaluate current and future waste generation in the region and
acquire and -operate disposal facilities which minimize adverse land
use impacts while adequately serving regional disposal needs,
including facilities for the disposal for residential, commercial,
and nonsewerable industrial wastes.
b. Ensure conformance with State and regional disposal site regulations.
c. Plan final uses for disposal sites which conform with community
needs.
8. Litter and Illegal Dumping Reduction Goal. Establish and maintain an
effective program for minimizing health hazards and nuisances due to
litter and illegal dumping.
Objectives
Short Term
a. Promote regional coordination of litter management activities and
designate a Regional Litter Coordinator.
A-Cvi '�"
b. Develop and enforce regional standards for the prevention and control
of litter and illegal dumping.
c. Encourage volunteer cleanup and educational efforts.
d. S(-ek Federal and State funding for litter management activities.
e. Develop and maintain an effective anti -litter education program.
`-) A-Cvi i
A-P=P-E-N-D-I-X
BOARD POLICY I-76, SOLID WASTE DISPOSAL
COUNTY OF SAN DIEGO, CALIFORNIA
BOARD OF SUPERVISORS POLICY
SUIT JECT POLICY ACE
NUNIER
SOLID WASTE DISPOSAL I-76 1 of 2
Purpose
To -establish the Board of. Supervisors' commitment to seek alternative
methods other than landfilling for the disposal of solid waste in San
Diego County.
BaSIUMound
Land disposal of one kind or another has been the primary methods of
dealing with our County's solid waste. We have moved from open pits,
to the burning wastes, to the operation of sanitary landfills.
Currently, we handle over a million tons of waste generated within
San Diego County annually. An additional one million tons of waste
annually is landfilled by the City of: San Diego.
Landfilling solid waste is not a final disposition. It is merely a
convenient and sanitary method of encapsulation, leaving potential
problems of leachate, gas formation, and settlement to be dealt with
by future generations.
In order to accomodate•this waste stream, the County operates several
disposal'sites. The+three major sites are located near the urban area,
the major source of waste generation. These three sites are: Sycamore,
a 500-acre site located in the East County with a 20 year projected
eite`life; Otay, a 500-acre site located in the South County with a
20 year projected site life; and San Marcos, a 200-acre site located
in the %. rth Coumty. with a 15 year projected site life.
The siting of landfills close to the source of waste generations has
become increasingly difficult. It is apparent that alternatives to
this traditional method of disposal must be sought.The San Diego
i
County Board of Supervisors has historically been n the forefront of
innovative solid waste management. In 1972, the County secured privat
and public funds for the development and construction of the E1 Cajon
Resource Recovery Demonstration Project; in 1977 an Economic Develop-
ment Administration grant was obtained for the construction of the
Palomar Transfer Station; and as the and of the decade approached, the
Board is pursuing the Southern California Urban Resources Recovery
(SCURR) project. Your Board has also supported other resource recovery
programs such as on -site separation, support legislation to reduce
the waste stream and increase markets for secondary materials, and
finally aggressive public information and education programs.
Resource recovery is still an emerging field in the United States.
Important experience was gained from the E1 Cajon Demonstration Project
A -Di
I COUNTY OF SAN DIEGO, CALIFORNIA I
BOARD OF SUPERVISORS POLICY
SUtJECT
SGLID WASTE DISPOSAL
H
and many others like it throughout the Country. While the cost of re-
source racovery appears mach more expensive:. per ton than current prac-
tical, it should be noted, however, that present costing practices do
not reflect a "total" -system cost in that full costs for maintaining
and monitoring closed sites, capital costs fax replacement sites and
program planning have not,been included. The benefits to all of the
citizens of San Diego, coupled with the realization that,trua costs of
landfilling have never been fully identified. -make it seem prudent to
now accept the initially higher cost of finally disposing of wastes
through resource recovery methods.
Therefore, it is the policy of the Board of Supervisors to:
1. Pursue and acquire sites for..transfar. stations and oth= solid
waste processing facilities, not new sites for landfilliug of
solid waste.
2. Continue to operate and maintain existing County landfills only
for the disposal of waste products and waste residuals which can-
not be accepted at transfer stations or other solid waste process
lug facilitiai.
3. Develop and continue to support legislative progiams'locally and
at the State and Federal level which encourage the reduction of t
waste stream and provide for the final disposal of all solid
and hazardous wastes.
4. Continue to support the construction of urban resource recove%
projects which result in the final disposal of municipal solid
wastes and other wastes. The production of energy-, animal food
sources or other useful products will be maximized as a isans of
offsetting the costs of disposal.
S. Prepare and maintain resource recovery elements in the solid
waste program to include:
A. Public information and education programs to encourage
reduction in per capita solid waste generation and
iuezesse.racycling and recovery.
B. Support of the efforts of other public and private groups
in establishing conservation programs, donation and buy-back
cant:r.
C, Encourage the siting of industries which are capable of
utilizing recovered products.
Reference
A-Dii `.)
A-P-P-E-N-D-I-X E
COUNTY OF SAN DIEGO SOLID WASTE COLLECTION ORDINANCE NO. 5726 (NEW SERIES)
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A-P-P-E-N-D-I-X A=I-1
S.M! DIEGO COUNTY GEOLOGIC AND HYDROGRAPHIC-DESCRIPTION
0
SAN DIEGO COUNTY
GEOLOGIC AND HYDROGRAPHIC DESCRIPTION
Geological conditions must be considered in planning land disposal of solid
waste. Classifications and quantities of soil types frequently restrict the
locations of acceptable landfill sites and may also determine the types of
wastes that can be deposited. For example, areas dominated by intrusive
rocks which resist weathering are generally too rocky to provide adequate
cover material for landfill operations.
Intrusive Rocks
Non-waterbearing rocks underlie and are exposed throughout much of the San
Diego region. 'They include basic intrusive rocks such as tonalites,
" granodiorites, gabbros, diorites and metamorphic rocks. The most widespread
s and prominent of these are tonalites, which occur in the mountainous areas in
wide, discontinuous bands, from the southeast portion of t,,2 San Diego region
to its northernmost limit. Granodiorites represent a major portion of the
Southern California batholith. These crystalline rocks, which are resistant
to weathering, form some of the most prominent hills and mountains of San
Diego County. The San Marcos and Cuyamaca gabbros, Vieja diorite, and other
intrusive rocks occur throughout much of the San Diego region. Outcrops are
usually massive and form some of the more rugged mountains, as in the San
Marcos and Pala areas.
Metamorphic Rocks
Local metamorphic rocks include mixed and undifferentiated rocks, Black
Mountain volcanics and the Julian schist. These rocks occur in two wide
irregular bands which roughly parallel the predominant northwesterly trend
of the Peninsular Range Province. The bands are largely separated by the
intrusive rocks of the Southern California batholith. Local metamorphic
rocks consist largely of injection gneisses, quartz -mica, quartzite and
associated rocks.
A-I-1i
Conglomerates
The Cretaceous Marine Rosario Formation, exposed in the Point Loma -La Jolla
area, is a reddish -brown conglomerate which is overlain by a series of inter-
bedded sandstone, siltstone, mudstone and conglomerate strata.
The Eocene La Jolla Formation; consisting of the Del Mar sand, Torrey sand
and Rose Canyon shale, occurs extensively in the coastal portion of the San
Diego region and attains a, maximum thickness of 1,556 feet. Overlying this
formation is the Eocene Poway conglomerate composed of pebbles and boulders
largely derived from volcanic sources. Mesa areas are capped by sandstone,
siltstone and conglomerate, along with some tuff beds. Very coarse -grained
sands and well -bedded cobbles and boulders are found at the bases of some
sections.
Pleistocene sediments consist of a variety of materials. These include older
alluvium in the coastal areas, continental semi -consolidated fanglomerates in
the Pala area, and consolidated marine and nonmarine deposits (silts, sand-
stones, and conglomerates) in the coastal areas. In general, alluvial
deposits exist,to a limited extent in the county. Alluvium of recent age
generally consists of unconsolidated deposits of gravel, sand, silt, and clay
eroded from the surrounding highlands.
Geologic Flaws
In addition to soil suitability, areas of geologic flaws or instability must
be considered when evaluating potential landfill sites. Two such flaws,
slope instability and earthquake faults, are sufficiently present in San
Diego County to require their mention in this Plan.
Montmorillonite, a type of clay very common in the coastal section of San
Diego County, has a definite impact on the area's slope stability. This clay
tends to absorb water, swell, and then disintegrate into a slurry. San
Diego's coastal geologic formation, basically of sandstone derivation, is
frequently unstable because of interlayering with montmorillonite-rich
7
bentonite. Figure A-I-1 shows the locations of known landslides due to slope
instability.
Despite the difficulties posed by the presence of bentonite in landfills
established on sloping terrain, it should be noted that subsurface bentonite
may be highly desirable for specialized landfills. It is particularly
suitable for the containment of Class I liquid wastes.
While. the County of San Diego has not experienced any major earthquakes in
the -past 200 years its coast remains an area of moderate seismic risk within
a region of high risk. A zone of faults extends from San Ysidro through San
Fuego Bay, Mission Bay and Rose Canyon. Fault lines present in the County of
San Diego are shown in Figure A-I-2.
FIGURE'A-I-1 FIGURE A-I-2
Landslide Locations in Fault Lines in
San Diego County San Diego County
Archaeologic Significance
A further restriction on disposal site selection in this region results from
the presence of a variety of archaeological sites representing three distinct
cultural patterns.
A-I-1ii i
Since many of the areas of San Diego County have not yet been examined fur i
archaeological significance, each proposed disposal site must be evaluated
during environmental impact studies to determine its potential for damaging
archaeologically valuable artifacts.
Siting solid waste landfills requires attention to the areas hydrology.
Water precipitating through solid waste cannot be allowed to come in contact
with groundwater. An awareness of rainfall patterns, tidelands and natural
water courses is important to solid waste managers and planners.
Marine Terraces
The coastal belt of San Diego County extends from the coast inland to the
foothills in a band about ten -miles in width. It is characterized by an
overall gentle rise in elevation from the coast toward the western slope of
the Peninsular Ranges. The surface area ranges from sea level to about 1,500
feet along the inland edge. This area is characterized by a series of
wave -cut benches covered by thin terrace deposits. This terraced surface has
been deeply dissected by streams and rounded by erosion. As shown in Figure
A-1-3, much of the area is marbled with wet land (marshes, lagoons, sloughs)
and estuaries. The total acre feet as well as the type of tideland for each
of these major wetlands are shown in Table A-1-1.
Precipitation
From 100 years of rainfall records, Figure A-I-4, indications are that after
experiencing 32 dry years, San Diego County is entering a period of
increasing rainfall. While the extent of this increase or the duration of
the trend cannot be predicted, it is evident that the probability exists and
should be reckoned with in any plans developed for the management of solid
waste.
A -I -1 i v
0
1.
2.
3.
s.
S.
6.
7.
8.
9.
10.
11.
12.
13.
14.
15.
16.
17.
1s.
FIGURE A-I-3
COASTAL WETLANDS OF SAN DIEGO COUNTY
LEGEND S. t"-, J
San Mateo Marsh
Los Flores Marsh 9.
Santa Margarita Marsh
San Luis Rey River 10.
Loa& Alta Marsh
11.
Buena Vista Lagoon
12.
Agua Hedionda Lagoon
Canyon de Las Encinas
Bataquitos Lagoon
San Elijo Lagoon
San Dieguito Slough 13.
Los Pensaquitos Lagoon 14
Mission Bay
San Diego River Flood Channel
Faaosa Street Slough
San Diego Bay, North
San Diego Bay, South
Tia Juana Estuary
V Y
1
is.
N T11
A -I -1 v
TABLE A-I-1
TIDELANDS OF SAN DIEGO COUNTY
Nye
ttdrologic Unit
Size
Acre Feet)
Salt
Tvoe of Tideland
i`res �! x rackish)
San Mateo
Marsh
Santa Margarita
18
X
C
Las Flores
Harsh
San Juan!Sta. Margarita
60
X
x
x
Sta. Margarita
River/Marsh
Santa Margarita
175
X
x
San Luis Rey
River
Santa Margarita
9
X
X
Loma Alta Harsh
Carisbsd
7
Y
Buena Vista
-Lagoon-
Carlsbad
68
X
X
Agua Hedionda
Lagoon,
Carlsbad
239
X
t
Batiquitos
Lagoon
Carlsbad
246
X
X
San Elijo
Lagoon
Sari Dieguito
1S4
X
x
X
'San Dieguito
Slough
San Dieguito
as
X
x
Les Penasquiios
Lagoon
San Dieguito
77
x
Mission Bay
San Diego
1,978
X
San Diego River'
1•lar3h
San Diego/Coronado
140
X
X
x
San Diego Bay
Coronado
II,SO4
x
Sweetwater River
Marsh
Sweetwater/Coronado
ISO
X
x
X
Tia Juana
Estuary
Otay
99S
X
x
x
A-I-1vi e„,,`
FIGURE A-I-4
RAINFALL RECORD AT SAN DIEGO, CALIFORNIA
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CLIMATOLOGICAL YEAR JULY 1 -JUKE 30
There are three consequences of the increasing precipitation pattern:
(1) Groundwater table levels are rising, bringing additional problems and
concern when considering the siting of new landfills.
(2) Ongoing landfill design, daily operations and drainage problems are
intensified. Increased moisture content of refuse collected also affects
landfill operations by increasing the probability of leachate and methane
gas production.
�'v' A-I-1vi i
(3) Increased moisture content of collected refuse affects the calorific
value or heat energy content (Btu/lb) of the refuse. This must be
considered in all economic feasibility studias or technical designs
concerning resource recovery and energy conversion from solid waste.
Water Quality
Most of San Diego County lies within the San Diego Water Basin. As explained
in detail in the Comprehensive Water Quality -Control Plan for the San Diego
Basin, regional water problems are both quantitative and qualitative in
nature. Lack of rainfall and growing demand for usable water require that
both surface and groundwaters be protected to prevent contamination.
Surface waters of the region are frequently influenced by eutrophication, the
transport of saline waters and thermal discharges. Few point source water
problems exist in the inland areas, however, since waste waters are generally
reclaimed or discharged into the ocean.
Contamination from non -point source waste -loads is more subtle than that of
point source discharge since it is greatly dependent on the percolation of
waters carrying dissolved minerals and nitrates to groundwater tables. Simi-
larly, surface runoff carrying extensive concentrations of nutrients can con-
tribute to,non-point source eutrophication. A map showing the major ground-
water basins in San Diego is presented in Figure A-I-5.
Pollution of coastal waters by solid waste disposal procedures also comes
under the jurisdiction of the Coastal Region Commission. This body has
minimized pollution from ocean dumping within three miles of the coast by
requiring permits to dump within that zone. At this time no such dumping is
occurring.
Waters outside the three-mile zone are regulated by the EPA. To date there
has been only one approved location off San Diego County for dredging and
dumping of toxic materials. This site is approximately five and one-half
miles off the coast of Point Loma. Activity at this site does not appear to
contribute measurably to the degradation of the area's waters.
A-I-1vi i i
F�
FIGURE A-I-5
GROUNDWATER BASINS OF SAN DIEGO COUNTY
iaano
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A—P—P—E—N—D=I—X A—I-2
AIR QUALITY
04
AIR QUALITY
The -Air Pollution Control District continues its responsibility to monitor
and enforce air quality standards estalished by the State of California and
the. Federal Environmental -Protection Agency (EPA). The Clean Air Act amend-
ments of 1977 required the EPA to establish monitoring criteria to be fol-
lowed uniformly across the nation. San Diego County is making the necessary
ciianges.to bring its equipment into conformity with the new nationwide
program.
Recent research by the Air Resources Board (ARB) and major air pollution
control districts indicates that San Diego County's nitrogen dioxide levels
may be'iower than had been previously reported. Five of the largest air
pollutin-rontrol agencies in California, including San Diego's, have been
using a State approved calibration method for nitrogen dioxide which yields
results about 15% higher than the EPA method.
After publication of the results of the ARB study, San Diego data will be
corrected to be consistent with the EPA method. Because of these new
requirements of the Clean Air Act amendments, San Diego may not have as far
to go to meet clean air goals for this pollutant as had been originally
expected. Table A-I-2 shows the Ambient Air Quality Standards applicable in
California.
A new item known as "Fine Particulate" has been added to air pollution con-
siderations which may have severe impact on any proposed solid waste proces-
sing project. Fine particulate is defined by the Air Pollution Control
District as those particle sizes smaller than 1.5 microns (1.5 millionths of
a meter) in diameter. Stack emissions sampling conducted using Source
Assessment Sampling System (SASS) equipment indicates that approximately
44.89% of all stack gas particulate falls within the APCD definition of fine
particulate. Vaporized heavy metals and bacteria tend to collect on fine
particulate because of the increased surface area compared to the larger
particles and proceed to the lower extremities of the respiratory track
A-I-2i
because of the lack of capability of the human body to filter particulates e6l�
below 2.0 micron size.
Recognizing the need for and in the interest of encouraging cogeneration
projects and resource recovery/energy conversion from solid waste, Assembly
Bill No. 524 (Calvo) was enacted in September 1979. This bill provides a
mechanism for issuance of permits to construct such projects and offers
cooperation in mitigating the impacts on air quality.
Technology for -the control of all pollutants is advancing rapidly. During
the effectivity of this revision, it is expected that many of the techniques
-developed will see actual operation in newly designed and manufactured
equipment.
A -I -21 i
Table A-I-2
AMBIENT AIR QUALITY STANDARDS
APPLICABLE IN CALIFORNIA
Cal orn a
Averaging Standards Federal Standards
Pollutant Tineconcentration -I ma econry
o ame as
1 Hour 0.10 ppm (0.12 ppm) Primary
le hours lu ppm
Same as
ours lu mg
(9 ppm) L Primary
ppm) Primary
QVITur uivnIac
nrtm.al Average
---
w ay/a ---
(0.3 m)
Hours
U.b ppm n cow.
40* ug m ---
w/.10 ppm Ox �or
(0.14 ppm)
100 u /m TSP
ours
---
--- u m
(0.5 )
—I Hour T' -
PPm
--- ---
(1310 u /m )
Suspended a cu-
Annual Geo-
ou ug m
to ug m ou ug m
�• ," late Matter
Metric Mean
,
zk Hours
luu U91M
zeu u m u m
ead (Particulate)
Ju UAY
1. 0 -ug m
1.7 ug m ---
a nours --- aou ug/m acme as
(6-9 a.m.) (0.24 ppm) Primary
Particles
*Photochemical oxidants measured a
ppm - 1Qcrts per million
ug/m - Micrograms per cubic met
A-P-P-E-N-D-I-X A-I-3
GROWTH TRENDS
MA
GROWTH TRENDS
Carlsbad and San Marcos are the fastest growing cities in the San Diego
region according to SANDAG's Final Series V population forecasts
(See Table A-I-3). With a present population of 35,490, Carlsbad is
projected to experience a boom of,over 137% by the year 1995; San Marcos will
grow by over 99% from its present population of 17,479.
Other North County cities that will experience a rapid growth rate through
1995 include: Escondido, up 30%; Oceanside, up 45%; and Vista, up 40%. Del
Mar is the only exception in North County. It is projected to increase by
only 83 people between now and 1995 because of the very limited availability
of new building• sites.
The cities surrounding San Diego Bay will experience varying degrees of
growth over the next 15 to-20 years. Chula Vista, which plans on annexing
and developing large areas on its eastern border, will grow by nearly 3501; by
,j 1995. Imperial Beach should grow by over 14%. National City, which is well
developed, should increase by only 1.8%. Coronado should increase in popu-
lation about 25p by 1995.
During the same period the City of San Diego's population will increase by
about 1 9% (1980 Final Census to 1995) with a good portion of that growth
occurring in the Otay Mesa border area of the City according to SANDAG.
In the East County, by 1995, E1 Cajon's population will be up 5%; La Mesa's
growth will increase nearly 12%; and Lemon Grove's population will be up
14%.
The total unncorporated area's population will increase by nearly 55% by
1995. This percentage will necessarily decrease as new cities are
incorporated.
A -I -31
Table A-I-3
POPULATION AND FORECASTS*
Final Census
1980
Carlsbad
35,490
Chula Vista
83,927
Coronado
18,806
Del Mar
5,017
E1 Cajon
73,892
Escondido
64,355
Imperial Beach
22,689
La Mesa
50,342
Lemon Grove
20,780
National City
48,772
Oceanside
76,698
Poway
33,615
San Diego
875,504
San Marcos
17.,479
Santee
40,037
Vi stc
3ff , 834
Total Cities 1,503,237
Unincorporated 358,609
Total County 1,861,846
Final Series V
Regional
Development
Forecasts
1985
1995
2000
51,835
84,160
93,918
98,282
113,403
118,572
21,766
23,805
23,487
5,115
5,100
5,046
75,000
77,628
78,01-7
73,661
83,552
84,507
23,471
26,012
28,203
53,637
56,526
56,797
22,671
23,619
24,097
49,172
49,640
51,166
87,245
111,066
144,385
38,080
57,425
60,500
938,966
1,043,464
1,077;862
25,061
34,845
35,158
45,663,
57,071
58,587
42,197
_ 50,220
51,441
1,643,822
1,897,536
1,991,743
424,409
�556,477
663,530
.
2,068,231
2,454,013
2,625,273
*Regional Development Forecasts - SANDAG
A -I -3i i
04
'8
S
FIGURE A-I-6
WASTE GENERATION/POPULATION
e2
m
A—P—P—E—N—D—I—X A —II
MODEL COLLECTION ORD.INP1dCE
i CONSIDERATIONS IN PREPARING A MODEL COLLECTION ORDINANCE
Jurisdictions have been encouraged to require that containers conform to the
following guidelines:
1. They shall have a capacity of no more than 40 gallons and no less than 20
gallons in volume.
2. Their weight shall not exceed 50 pounds when filled.
3. Reusable rigid containers or cans shall be constructed of non-combustible
or self -extinguishing, norabsorbent and corrosion resistant materials and
should be easily cleanable.
4. The diameter of, the can's opening shall be no less than the diameter be-
low the top and the can should preferably be tapered to facilitate dis-
charge of compacted waste when the container is inverted.
5. The -interior of the can shall be smooth, without projections which would
interfere with emptying the contents.
6. The can shall have no cracks, holes or jagged edges which could injure
cdll'ection personnel.
7. The can shall be fitted with handles located directly opposite one
another on the sides of the container for easy lifting:
8. Cans shall be equipped with covers or lids which are tight -fitting to re-
sist the intrusion of water and vectors.
9. They shall be designed'so that they cannot be tipped over easily.
10. Single -use plastic and -paper bags should be those manufactured expressly
for solid waste storage and shall meet the standards of the National'San-
itation Foundation as to thickness and bursting strength.
11. Containers of waste -which have been compressed into bales and set out for
collection shall meet the above criteria as appropriate.
A -I I -1
A-P-P-E-N-D-I-X A -III
SOLID WASTEALLOCATION MATRIX I
AM SOLID WASTE ALLOCATION MATRIX I
Efforts have been made to simulate the real -life distribution of trash from
its production sources (residential, commercial and industrial) to its final
destination, points (landfills or resource recovery plants).
This information is combined by computer with traffic route data, landfill
volume information, and hauling and .disposal cost rates in order to project:
1) where trash is likely to be disposed of; 2) how much trash will be
received at each landfill; 3) the useab.ie life of each landfill; and 4)
the expected total hauling and disposal costs to the public for each config-
uration of'open landfills, transfer stations, and resource recovery plants.
It was necessary to develop appropriate data for the computer analysis:
l:) on, projected population and employment growth and per. capita waste genera-
tion trends, for prediction of probable volumes of municipal refuse; and 2)
'on construction trends, for estimates of future quantities of demolition
wastes.
All of this information was collected for geographical zones small enough to
permit combs ni ng' acid assembling them -into the specific areas served by
existing and projected landfills and potential resource recovery plants.
This degree of analysis was possible because the SANDAL population data are
available for small component parts of census tracts called Traffic Assign-
ment .Zones (TAZ), which are further divided into 2,,000' x 2,000' areas called
grid cells.
SWAM I determines the travel time from each. grid cell to each disposal facil-
,ity; SWAM I then allocates the waste from each grid cell to the closest
disposal- facility to that grid cell. The use of grid cells permits analysis
of both waste generation and its distribution to the various waste handing
facilities of the coastal portion of the County.
The model will be updated to take into consideration the impact of varying
tipping fees at solid waste facilities.
kuli A-III-i
Basic Assumptions of the Solid Waste Allocation Matrix I Relative to the
Solid Waste Management Plan
1. "Least time" is the criterion that is used to determine which solid
waste facility receives the trash generated from a particular grid -cell.
The personal economic decision of choosing a landfill according to the
respective tipping fee, or proximity to the haulers headquarters, is not
currently taken into account by the SWA14 I program.
2. The same freeway and generalized street networks are used to calculate
the travel distances and times for each year of the model. No allowance
was made for future roads not currently under construction.
3. The population and employment data that drive the waste generation
program in SWAM I are the Series V Regional Growth Forecasts produced by
the San Diega Association of Governments (SANDAG), for the years 1978,
1985, 1995-and 2000. These population and employment totals were
allocated to •the gridcells of the model in the trash generation factors
in order to complete the annual trash generation from each gridcell.
The Regional Growth Forecasts are general information reports that serve
only as in -put data to the Solid Waste Allocation Model.
4. Population projections are compared to actual population figures and can
be adjusted upward or downward within the matrix through the changing of
certain multiplicative coefficients.
5. Per -Capita Trash Generation Assumptions
a. Residential - Waste generation was based on the assumption of 3.01
s. production per person per day in the urban and suburban areas,
and 4.9 lbs. production per person per day in the rural areas.
b. Demolition - The rate of demolition - waste generation was set at
0.2 lbs. per person per day.
c. Commercial and Industrial Waste - The following factors, in pounds
or trash per person per day, were used in the SWAM I computer
program for the purpose of modeling trash generation by business,
government, and general employment:
Trash Generation
Category (pounds of trasF per person per day)
Basic Employment 5.48
Retail Trade Employment 5.67
Retail Services Employment 5.67
Business Services Employment 5.60
Public Service Employment 5.67
Other Employment 5.49
6. The residential per -capita generation of waste is considered to be
constant with time.
A-III-ii
59
T. The ratio of commercially -hauled trash to privately -hauled trash is,
-approximately, 9:1.
-8. The in -place density of, trash at landfills is assumed to be 1,200
lbs/cubic/yard.
9. Remaining landfill volume capacities at the Otay and Sycamore Landfills
are based on the assumptions of no additional land -being made available
for landfilling purposes.
16. Projections involving the San Diego Energy Recovery (SANDER) plant, were
limited to the design capacity of 1,200 tons of trash per day.
11. Unlimited capacity was assumed for projections involving additional
resource -recovery stations.
-12. This .model deals only with the generation and disposal- of non -hazardous
waste.
t
'13. The annual number of truck trips is calculated by dividing each grid-
ceIT's annual, trash generation (front -side or rear -loader) by the
capacities of the trucks servicing each gridcell.
14. The furl -truck haul distances are calculated from the centers of each
gri•dcell to the closest (by time) waste facility sites. ,The'sums of the
products of the tonnage capacities at the trucks collecting,garbage from
commercial and residential sources, the respective haul distances and
the.haul cost rates represents the total haul cost from a particular
gri dcel.l to the waste faci.l i ty serving. the gri dcel l .
154 The distances of the collection routes are not taken into account in
haul -cost calculations. Therefore the calculated ton -miles and
associated costs of various facility configurations should only be
compared to each other, and should not be considered as the definitive
travel costs of solid waste disposal systems.
16. Haul cost functions were developed by the County of San Diego, Division
of Solid Waste in'1979 and are described in detail in the Solid Waste
Allocation Model Users' Documentation, available from the of Solid Waste
Division.
Side and rear -loading trucks were assumed to cost $55/hour and collect
at the rate of 2.62 tons/hour, while front -loading trucks cost $75/hour
and collect at the rate of 4.0 tons/hour. It is assumed that the front -
loading trucks remove trash from commercial and industrial establish-
ments as well as multi -family housing, while the side and rear -loading
trucks remove trash from single-family residences.
17. A single tipping fee of $8.00 per ton of trash was assigned to all solid
waste facilities.
18. All costs are based on constant 1981 dollars and are not adjusted in
_ later years for inflation. _
A -III -i i i
A-0-P-E-N=D-I-X A-V-1
RESOURCE RECOVERY'STATE & THE ART
ON
Through implementation of the various resource recovery options available,
materials and energy that are presently being thrown away will be recovered
from the wastestream and put into productive reuse. This chapter of the
Appendix discusses resource recovery processes and efforts and plans in the
San Diego region to maximize resource recovery.
RESOURCE RECOVERY - STATE OF THE ART
Reuse
Reusing such articles as containers, which are recovered in their original
form when emptied. This is a common practice in Europe and is practiced to
som6_extent in rural fond growing.districts in the United States for home
food preservation. Tearing wiping rags from garments worn to the end of
their useful life and returning soft drink bottles are other examples.
Reconstitution
Recovering substances from refuse in a reasonably pure form suitable for use
as raw material for products similar to those discarded: e.g., color sorted
glass, newsprint or lead automobile tire weights.
Alteration
Recovering materials which because of their previous application or contami-
nation,cannot be totally reclaimed, but which can be utilized in lower grade
applications in the same general product line. Examples of this are fibers
recovered from post consumer paper used for roofing felt or bottle glass
being crushed and used in "Glasphalt" highway paving material.
Adaptation
Adapting waste products to different applications, such as ground glass being
mixed with foaming agents and made into roofing tiles and other building
materials. Industries are developing in Japan and Europe which mix organic
A-V-li
fibers and plastic from solid waste with suitable binder material to produce, eo"`,
by molding or extruding, fence posts, piling, grape stakes, or ornamental
architectural materials.
Transformation/Conversion
Since the end result is a new type of product, Transformation/Conversion
requires more complex equipment and larger facilities than those required for
the simpler sorting processes described above. The techniques of transforma-
tion may be physical, chemical or bio-chemical.
Physical
Combustion --
Open or partially open combustion or burning of the organic fraction of
solid waste is the oldest form of volume reduction Its practice has
generally been outlawed in the State of California except in controlled
circumstances.
Incineration --
Controlled combustion incineration, with or without heat recovery, is
being increasingly used in smaller cities and communities, where the
pollution impact is less severe, to reduce the volume of waste to be
iandfilled and to reclaim an energy product.
Pyrolysi s --
Pyr,olysis is the physical and chemical decomposition of organic matter
brought about by the action of heat in a limited oxygen environment. This
process breaks down the complex organic substance molecules into simpler
compounds and elements and permits them to recombine for a variety of
possible products and/or uses.
Chemical
Hydrogenation --
Hydrogenation converts cellulose waste into fuel oil by heating the
material under pressure with water and carbon monoxide. One ton of refuse
yields up to two barrels (84 gal.) of low sulfur fuel oil.
A-V-1 i i
Wet Oxidation --
Wet oxidation converts cellulose waste into carbon monoxide, carbon
dioxide, a mixture of organic acids, and a solid fibrous sludge,by heating
the material under pressure with water and oxygen.
Hydrolysis, --
Hydrolysis is a relatively old process of converting wood to wood sugars
by the action of mineral acids. The sugar solution can be fermented to
produce ethyl alcohol. One ton of trash, which is 50% paper, can yield as
much as_'500 pounds of sugars.
Bio-chemical
-Aerobic Digestion --
Aerobic digestion (digestion in the presence of oxygen) or composting is a
controlled process where aerobic bacteria convert cellulose waste into a
relatively inert humus -'like material. Although widely and successfully
practiced 'in Europe, India, and other parts of the world, the use of
composted -material is only now being recognized in this country. It can
be.,practiced on either a large or small scale.
Maerobf d Digestion --
Anaerobic digestion .(digestion in the absence of oxygen) employs anaerobic
bacteria to�convert cellulose waste, at an elevated temperature and in an
.oxygen -free atmosphere, into methane, carbon dioxide, nydrogen sulfide,
and a,,solid residue. The methane -can be used as a fuel, while the solid
residue can serve as a soil conditioner.
Biological Fractionation --
Biological fractionation is a generic term for a number of biochemical
processes that employ microorganisms to convert cellulose waste into
glucose and other useful products, such as single cell protein.
In one process, yeast is grown on a substrate of glucose and, after
consumption of the sugar, the yeast (which contains as much as 50%
protein) is harvested. A two step method of hydrolysis/ yeast culture has
received the .most attention to date.
A-`!-1 i i i
Secondary Utilization
e--�
Secondary utilization involves the use of unaltered waste material in a new
role. One example is employing municipal refuse to alter topographic
features for recreational purposes, or incorporating glass cullet and fly ash
in construction materials. Also, old worn out tires when stacked, tied into
bundles, and dumped into shallow ocean waters provide a safe habitat for
hatching small fish.
HIGH TECHNOLOGY RESOURCE RECOVERY
STATE OF THE ART AND OPERATING EXPERIENCE
Central Processing Facilities
Transfer Stations are intermediate facilities where waste can be
transferred o larger vehicles for haul to a landfill or for shredding
of the waste before landfilling. Transfer stations allow for the
recovery of certain marketable resources from mixed municipal waste
prior to transfer of the remaining waste to a landfill.
Energy Conversion Plants use three basic technologies: Refuse Derived
)±"uel which reclaim, marketable components prior to conversion of
the organic fraction into energy; mass burning which is the direct
conversion to energy; and pyrolysis which converts waste to a liquid
energy source. Each of these processes result in a major reduction in
-the volume of waste requiring landfill or other disposal.
Effective large resource recovery or energy conversion systems must be based
on processes which can efficiently convert and reduce the organic fraction.
Among the low technology conversion processes are fiber recovery, composting,
anaerobic digestion and biological fractionation. Each have had varying
degrees of success but are not yet practical or cost effective on the scale
necessary for a large metropolitan county.
Refuse Derived Fuel (RDF)
RDF is a shredded mixture consisting primarily of yard trimmings, paper, and
plastics. Major processes utilized to produce RDF can be generalized as
those of size reduction (or shredding), air classification, screening and
A-V-1 i v
'4 magnetic separation of scrap iron froirt refuse. Some plants also attempt to
separate glass and aluminum from the refuse stream. Generally, however, the
process attempts to isolate the combustible portion of the waste with a mini-
mum�of processing. The resultant product is a reasonably homogenous fuel
having a relatively high energy content which can be co -fired with coal or
other solid fuel in existing utility boilers. This mixture may be stored for
extended periods without danger of fire, odor, or vectors.
Since RDF may be stored, this process has an advantage when it is not neces-
sary or desirable to produce heat (steam) or electricity on a continuous
basis. Where the RDF has a high moisture content, however, it tends to bind
together like paper mache under its own weight after a few days storage.
Naturally, this multiplies RDF handling problems.
RDF has an advantage in areas such as California where the ash is classified
as a hazardous waste. RDF produces less than one-third of the amount of ash
produced by mass burning process. It has been reported, however, that this
J procedure has increased the severity of ash handling and boiler slagging
problems.
Markets for recovered materials when they exist at all are subject to supply
and demand. Source separation projects can flood local markets, causing
anticipated revenues to evaporate. ROF requires large capital expenditures
in order to construct the front end separation and recovery. Limitations are
also associated with the efficiency of air classification and the noise and
occasional explosions associated with shredding. Another factor that
increases the cost associated with this process is the frequent maintenance
of shredders, air classifiers, and conveyors.
Operating Experience
Madison, Wisconsin
One of the more successful ROF facilities is located in Madison. It pro-
duces 250 tons per day of shredded, air classified fuel which is trans-
ported to Madison Gas & Electric. Scrap iron is also separated at the
plant.
A-V-Iv
New Orleans, Louisiana
The 'New Orleans plant is designed for and processes 650 tons per day of
refuse, however, the plant has no customers for the fuel and the product
continues to be landfilled. Scrap iron, aluminum, and glass are sepa-
rated, however, no market exists to date for the glass.
- Chicago, Illinois (Southwest)
This plant has been plagued with problems ever since it started opera-
tions in 1976. It was designed to handle 1000 tons per day of refuse.
Current estimates indicate '(hat ten million dollars may be required to
fully correct problems. The plant is not producing fuel at this time but
is being used as a transfer station.
Akron, Ohio
_ This plant began operations in late 1979 and on intermittent operation
has been averaging 600 to 700 tons per day. The plant was designed for
1000-tons per day. The multi -ram pit receiving station has created major
operational problems. Several .forms of remedial action are under consid-
eration.
PXrolysi s
Pyrolysis is the process whereby organic materials are heated in the absence
of oxygen to produce a gaseous or liquid product and a solid, carbon -rich
residue. Coal has been pyrolyzed for hundreds of years to produce coke.
Wood has beep pyrolyzed fpr thousands of years to prodv-e charcoal.
In any pyrolysis process, heat must be supplied to drive the pyrolytic reac-
tion. The objective of this whole process is to produce two products, one of
which is a gaseous or liquid product that is high in energy value, the other
product a char, which is carbon, mixed with ash and inert material.
While some pyrolytic processes currently under development began by attempt-
ing to pyrolyze unprocessed refuse as received, it is generally conceded that
significant process improvements can be attained by first shredding and air
classifying the waste, to produce as rich a cellulosic feedstock as possible.
A-V -1 vi
While the pyrolytic process may not necessarily degrade the metal and glass,
the overall energy balance is reduced somewhat since the energy used to heat
the inert portion of the waste does not contribute to the energy value of the
derived pyrolysis products.
Pyrolysis produces a fuel which may be stored indefinitely, not unlike ether
conventional fuels such as coal or oil. The fuel produced is also one that
can be utilized by a wider variety of energy consumer than 'RDF. The front-
end separation processes used in pyrolysis are similar to those for RDF and
so the advantages and disadvantages associated with materials separation and
recovery are also similar.
The limitations of the process should be clearly recognized. First, while
the•pyroly§is of cellulosic products is clearly technically feasible, no
application of this technology to the solid waste field has been adequately
deinonstrated on a full-scale basis as of this date; therefore the process
remains experimental at this point. The ash or char by-product is presently
classifed, in California, as a hazardous waste and must be disposed of in a
Class I landfill.
Another limitation which must be thoroughly understood is the potential
dangers inherent within the pyrolysis process. Pyrolitic gases, liquids and
'tars have been shown to be highly corrosive and carcinogenic.
Additionally, the pyrolysis plant, having an air classifier and shredder,
suffers the same front-end problems described above in the RDF system.
Finally, even using state-of-the-art design approximately 34% of the process-
ed material must be landfilled.
Operating Experience
The E1 Cajon Resource Recovery Demonstration Facility was a research/ pilot
pyrolysis plant which failed to sustain operation due to technical problems
(mainly the inability to cope with the actual behavior of solid waste
circulating in the pyrolysis complex). Production of pyrolytic fuel was
A-V-1 vi i
erratic. The experience at the El Cajon facility is discussed in detail
later in this chapter.
Mass Burning
This group of systems includes all process technology geared to burn the com-
bustible portion of solid waste to produce steam and electricity. All of
these processes and systems have one thing in common - the energy product
must be used instantly since there is no practical method today to store
steam or electrical energy.
In the typical mass burning operation ordinary refuse is fed into the furnace
in the same form as,it is collected and delivered to the plant. No sorting
or prekaration is required, and little manual labor is necessary. Oversize,
bulky pieces are removed only because of their physical dimensions. The sys-
tem does not depend -upon a shredder for operation. The waste is dumped into
a receiving pit upon arrival at the facility. Refuse is transferred to the
feed hopper by means of an overhead crane. A ram -type feeder then moves the
refuse onto a moving grate. Constant movement of the refuse by the grate
bars causes the drying, volitalization, ignition, and burnout phases of com-
'bustion to occur simultaneously, resulting in very thorough refuse burnout.
Integrated. with the grate, is. the boiler in which steam is generated. Gases
from the furnace are then sent to air ,pollution control equipment, before
being discharged to the atmosphere. Residue from the grates is quenched,
cooled and transported to the materials separation and recovery system. This,
residue typically consists of approximately 500/0' glass, 20 to 25% scrap
metals, 20 to 25% minerals, and approximately 5%-combustibles.
Depending upon the nature of the local energy consumers, the plant may be
designed to be:
1. A- steam generating plant selling high temperature steam for
industrial processes or hot eater for heating.
2. An electric power generating plant converting steam to electricity
for sale.
3. An air ond;tioning plant converting steam to dhilled water for sale
whicW C ou Id also sell steam or hot water.
4. A hybrid combination of the above.
A-V-1viii `-
Since the facility must be located in close proximity to the energy user, it
may sometimes be difficult to ensure that this site is also the optimum
location for a soli-d waste processing facility.
The advantages of a mass burning of system include: 1) Greater dem)nstrated
reliability than OF or pyrolysis system, 2) Reduced capital and 'operational
expense due to lack of front-end processing.
The concern with the environmental question of air quality must be addressed
for any direct combustion process whether mass burning or RDF. While many
techniques exist today for exhaust gas and particulate clean-up, and are used
:on .pl ants throughout the -World, ai r ,qual i ty sta ,dards in California are, more
stringent,than most regions. Since air quality, is.a question of primary con-
cern in -the California air basins, this question must be thoroughly explored.
It is possible that a satisfactory solution to the air quality question could-
increase the facility cost to such an extent that process economics would be
nullified.
Ope"rating Experience
- Saugus, Massachusetts
This facility represents one of the more successful large scale waste -to -
energy plants in the United States. It has been operating continuously
since 1976, processing approximately 1150 tons per day. All operational
problems have been corrected. Scrap iron is recovered from the ash resi-
due and steam is sold to an electric plant nearby.
- Chicago, ,Illinois (Northwest)
This- facility which was designed for 1600 tons per day has been operating
continuously since 1971 processing an average of 1200 tons per day. This
plant also removes scrap iron from the ash. Recently a steam customer
was found and certain modifications are being made to satisfy the quality
requirements.
A-V-1 i x
Europe and Japan
There are as many as 300 to 400 mass burningfacilities in °
these two areas. operation in
A particular tribute to the satisfactory performance
that has been delivered is the fact that a number of plants have been
rebuilt as the original facility reached physical obsolescence. The
major conclusion of this experience is that mass burning of unprepared
municipal solid waste is well established and can be technically
reliable, environmentally acceptable and an economic solution to the
municipal waste disposal problem. With each incremental jump in the
ti price of energy, these systems, where a steam or electrical power market
exists, become increasingly attractive.
A-V-1 x 40
' A-P-P-E=N-D-I-X A-V-2
t
EL CAJON RESOURCE RECOVERY DEMONSTRATION FACILITY
EL CAJON RESOURCE RECOVERY DEMONSTRATION FACILITY
Hi story
A 200 ton/day municipal solid waste NSW) resource recovery center was
designed and built at a cost of $14.5 million by Occidental Research Corpora-
tion (.OKC) for San Diego County, with the help of a grant from the
Environmental Protection Agency (EPA). Contributions were: ORC, $8.2
million; EPA, $4.3 million; San Diego County, $2.0 million.
The Demonstration Center at El Cajon was to test the production of liquid
fuel from the organic portion of solid waste by means of pyrolysis. The fuel
.produced was to,be purchased by the San Diego Gas & Electric Company. The
plant was also designed to recover glass, aluminum and ferrous metals from
the incoming solid waste. (The process had successfully worked on a 4 ton a
day level. It was projected for large scale, 1000 T/P/D use.)
-, Plant construction began in November 1975. In August 1977 the first process
- runs were made with shredded waste being fed into the pyrolysis subsystem.
Much-experiende was gained with front end processing (conversion of raw solid
waste to a fine feed suitable for pyrolysis).
Due to technical problems production of pyrolytic fuel was erratic. (An
estimated 6,600 gallons ::*re produced.) Before funds ran out and operations
were suspended in March 1978, the plant had operated its front end and the
aluminum recovery portion for 376 hours, the glass recovery subsystem for 50
'hours, and the pyrolysis subsystem for about 140 hours.
The chief problem in the pyrolysis area was the unexpectedly high loss of
solids. As a result it was necessary to continually add solids to sustain
the reaction. The frequent plugging of the cyclones remained an unsolved
problem for the plant. Some of the fine inorganic material also carried over
into the pyrolytic fuel. The more difficult problem seemed to be the unanti-
cipated degree of loss of solids, and the frequent plugging of cyclones. The
recycle oas compressors caused operating problems and increased maintenance
A-V-2i
costs because they had to be disassembled to remove coke deposits after every �}
12 to 15 hours on -stream.
Other operating problems with the pyrolysis complex icluded the flue gas
valve, which failed repeatedly; the rotary feed valve, which proved to be an
unsatisfactory sealing device between the reactor surge bin and the pyrolysis
reactor; and the surge bin itself., which was not a good metering device,
,given the low density of the shredded material, at that point. The reactor
feed system operated satisfactorily only at rates under 5,000 lb/hour; that
is, only at about half the design rate.
Termination of Operations
In early 1978, it was agreed that a sustained 72-hour run of the pyrolysis
complex would be a reasonable test of the advisability of attempting to con-
tinue the project. This objective was not met for reasons described above,
and the operation was closed down -in March 1978.
The E1 Cajon project was, by definition, a demonstration project, one step
removed from the controlled research environment. As such, the project iden-
tified operating ;problems and offered a setting for attempts to solve the
problems identified prior to preceeding with the full scale, 1,000 tons per
day facility.
A-V-2i i
Figure A-V-1
SUMMARY
OF PRODUCTION
Hours
Part of System
Operated
Input
Output
FRONT END
376
4754 tons raw MSW
FERROUS METALS
276
309 tons
(magnetic recovery)
ALUMINUM SUBSYSTEM
376
8.12 tons
GLASS SUBSYSTEM •
50
14.0 tons
PYROLYSIS SUBSYSTEM
Total operation
140
With measured
fuel production
78:42
103 tons shredded MSW
6656 gal
156 bbl
(wet basis)
FUEL YIELD
Process not at steady
state;
..�
therefore yield circulation
questionable.
A-V-2iii
Figure
A-Y-2
LOG OF PYROLYSIS
RUNS WITH MUNICIPAL SOLID WASTE
DATE
PYROLYSIS
FEED TIME
LIQUIU PRODUCT
PRODUCED
REASON FOR TERMINATING
(Hr:Min)
(Gal)
8/25/77
1:16
est. 122
Plug in cold ash standpipe and
extensive damage to afterburner
refractory.
9/15/77
0:07
--
Loss of circulation from hopper
caused by chunks of solids formed
by injecting quench water.
10/05/77
3:30
est. 360
Plugged product cyclones.
10/12/77
3:35
est. 344
Rubble in hopper plugging
entrance to hot standpipe.
10/19/77
3:10
est. 300
Plugged product cyclones.
11/17/77
8:00
est. 770
Low pressure recycle gas compres-
sor coked up and refractory
failure in the flue gas valve.
12/16/77
5:00
est. 480
Minimum circulating solids inven-
tory -- no makeup solids avail-
able.
12/21/17
8:00
est. 770
Low pressure recycle gas compres-
sors coked up.
12/28-29/77
13:10
250
Seal failures in both low pres-
sure recycle gas compressors.
01/10-13/78
28:40
est. 2,700
Plugged secondary burner cyclone,
burned hole in the side of the
afterburner.
03/06-14/78
28:18
2,700
Lost circulation from hopper;
standpipe screen broke loose and
rubble plugged the standpipe.
TOTAL
140 hr
12,401*
*Adjusted to 15% water from 50-60%
in the original product.
Note: 6,556 gal. measured, 5846
gal. est.
A=1-2iv
FIGURE A-V-1
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New
mumMOM ma
1 s��oa Mt17M11�1aw n
aww�
$"Na m
• ,is
ew
A-V-2v
,014
A-P-P-E-N-D-I-X A-V-3
SAN DIEGO ENERGY RECOVERY PROJECT
SAN DIEGO ENERGY RECOVERY PROJECT
Project Background
The State of California, seeking to assist local jurisdictions to achieve the
reduction in the amount of waste landfilled, initiated early planning.for
major waste -to -energy resource recovery projects in California. Local
governments and private entities were asked to submit prospective sites for
resource recovery facilities.
The City of San Diego nominated a piece of city -owned property south of 32nd
Street on Harbor Drive as a candidate site. The State Solid Waste Management
Board hired Stanton, Stockwell/Henningson Durham and Richardson (SS/HDR) to
conduct a detailed feasibility ,study, on all sites offered by, local jurisdic-
tions throughout California. The final result was that San Diego's Harbor
Drive, along with sites in San Francisco, Alameda, Humbolt, Los Angeles
County/Long Beach and Contra Costa, were given support.by the State Solid
Waste Management Board for planning resource recovery plants.
The Harbor Drive site is "surrounded by Naval Station property. The Navy
authorized SS/HDR to study two Navy -owned properties as alternatives to
Harbor Drive. .These properties, Navy Sites 1 & 2, are located on either side
of 8th Street at Harbor Drive in National City. The study, entitled "Phase
II -A, San Diego/Navy Energy and Materials Recovery" concluded that any of the
three sites under construction "could house a large resource recovery
facility".
With the completion of the feasibility study and the selection of San Diego
as a candidate site, the City and the County of San Diego formed a joint task
force in 1977 to pursue the San Diego Energy Recovery (SANDER) Project.
The current membership of the Board of Directors of the Task Force is two
members from the County Board of Supervisors, two members from the San Diego
City Council, and one member of the State Assembly. This Board meets monthly
to provide policy direction to staff and forwards recommendations to the
A-V-31
Board of Supervisors and City Council for final action on all issues 101�
regarding the SANDER Project.
The County of San Diego as the State's designated Regional Planning Authority
for solid -waste, is lead agency for SANDER. The County provides the staff
and a major portion of the funding for project development and planning. The
City of San Diego contributes funds annually.
In June 1979 the County of San Diego issued a Request for Information and
Qualifications (RFI&Q) to the resource recovery industry for design,
con-struction and operation of a 1200 ton per day municipal solid,waste-tow-energy
facility. Eighteen responses were received and a panel of nationally
recogniied solid waste management and financial experts reviewed and
evaluated the RFI&Q responses. The evaluation criteria were based on four
areas:
1. Technical reliabilty
2. Experience in design, construction and operation
of major waste -to- energy facilities
3. Financial strength of the responding firm to undertake
a nejor resource recovery project
4. Ability to meet environmental restrictions in San Diego
Project Planning Activities
After pre -qualifying of four firms, City & County staff began work leading to
the issuance of a request for proposal. In February 1980 the State Solid
Waste Management Board awarded the County a grant for $308,059 to develop the
project''s financial plan, environmental impact report and obtain a permit to
construct and operate from the local air pollution control district. The
County contracted with an environmental consulting firm and financial advisor
to provide those services. Public information specialists were hired to pro-
vide a coordinated program to inform San Diego residents about the project.
Through the Environmental Protection Agency's Technical Assistance Program, a
marketing,consultant updated the original feasibility study's marketing
data.
A-V-3ii
Bond counsel and a technical/management consultant were under contract by
the end of 1980 as the project moved closer to Phase III planning as defined
by the -Solid Waste Management Board.
Staff also called upon the experience and knowledge of the San Diego Ecology
Centre to provide information on the current and projected recycling in the
project's service area. The Ecology Centre was given a contract to do secon-
dary materials market development and an implementation plan to increase
recycling and source separation in the SANDER service area. The Technical
Management Consultant conducted a waste composition and characterization
study at the Miramar Landfill. Valuable information on the components in the
garbage will be ascertained from this study. This information will be used
to design the facility's boilers, to assist in determining expected air
emissions and to determine the amount of recyclables in the waste. A $32,000
grant from the SSWMB funds this study.
In the Spring of 1981, the State Solid Waste Management Board undertook a
study of resource recovery plant ash residue for the benefit of all State
projects. While EPA has classified the ash as nonhazardous, State regula-
tions classify this residue as hazardous, requiring disposal at a Class I
landfill. For most projects this is a problem because o tthe scarcity of
Class I sites in Cali-fornia. For all projects the cost of disposing of the
residue as hazardous waste appears to be prohibitive. The results of the
study are due in fiscal year 1982.
'in San Diego, a portion of the Otay Landfill, only 11 miles from the proposed
SANDER sites, is being set aside for residue disposal. The Otay Landfill has
ideal geological conditions for hazardous waste disposal.
Project Economics
Although sanitary landfilling is the method of disposal of solid waste cur-
rently used in San Diego, elected officials and people in solid waste manage-
ment have recognized for some time that it is no longer a long-term solution
to solid waste disposal in San Diego County. Costs for collecting and
A-V-31ii
disposing of wastes have steadily increased due to higher fuel costs, longer fwi
haul distances, and acquisition costs. Also, it has been estimated that
fully meeting new Federal regulations could add significantly to the cost of
landfill, disposal.
In analyzing the economic viability of the SANDER Project, a number of
-assumptions concerning costs, revenue and inflation were made (Table A-V-3).
SANDER's financial advisor and SANDER staff have conservatively structured
these assumptions: costs were slightly overestimated, while revenues -were
underestimated. Data from San Diego Gas` & Electric, the four pre -qualified
'firms, and the financial advisor were programmed into a resource recovery
-economic computer model.
Several' computer runs were made altering one or more variables. These coni-
pater, runs provided staff with the cost and revenue ranges used in the eco-
nomic analysis. Based upon these ,assumptions, the project would produce a
positive net revenue to the County and City over the 20-year financing
period.
SANDER can produce revenue; the addition of SANDER to the metropolitan land-
fill .system will lower costs. Figure A-V-2 shows how SANDER affects the cost
of the metropolitan system. The addition.of SANDER to the present system
produces. an estimated $7 million savings.in 1995 and $20 million savings in
2006 with a-10% inflation rate. With a more severe 15% annual inflation,
SANDER would save the metropolitan system an estimated $13 million in 1995
and $26 million in 2000.
The Project economics were based on public ownership. The SANDER Joint
Powers Authority Board of Directors is planning to include the option for
private ownership in the requests for proposals.
Under public ownership, the SANDER Authority could issue revenue bonds to
finance the project. Under private ownership one financing mechanism which
could be used by a system contractor would be the California Pollution
Financing Authority.
A-Y-3iv
TABLE A-V-3
ECONOMIC ANALYSIS
Assumptions -
March 17, 1981
,APITAL COSTS
A&E'
S 7,400,000
suldirvs (Site, General Purpose. Special Purpose)
$12,85O,0OO
Steam and EWCtrtcal Generating Equipment
$34.300.000 (S)
$ 6,300,000 W
AW,Polk:kn COW ent
$15,000,000
Rolling StcC
; 63O,000
cqft,, 30%
$24,326,000
other N� Pipe, Sleet. Req.)
$ 5,600,000
OPERAMNG AND MAWMANCE.COSTS
Labor dasts --as Job's (55Op., 4 Supv., S Adm.)
$ 1,430,000 + $572,000
EtJIQ(i1@11t,"Reo&, Ill ak tb m;*, Replacement
S 2.222,000 + $81O,0OO
Utwes
$ 1571Ooc
I(mranCe
$ 450,000
TOM
—
i
Matfsge(nent Fee
$ 1.000.000
- 30N0 ISSUE •
$ 671,000
w Interest Rate
Ras•
Term-
30 Years
PfinCi W and Interest Repayment Schedule
14vei D.S.
Inves"ent Rate
13.5% (Reserve Account 12.0%)
Remove
One Year D.S.
IsauanCe Costs
4s
Crapital•IZed Interest
3 Years
�qr�q A.apit�lA3)+¢ Start uP Casts
$ 7,400,000
lnfttlonT7�1Rgatess ^�T//��
Capital-
10%
Opem*V &- Maintenance
lot
Energy Costs & Revenues
(-86-'95 OW96--05 11.S%; •06-•15 V
Energy Revenues (Elect)
6.764; KWH
Product Yield
Steam from Solid Waste
265,000 1b./hr.
Electricity from Steam
18.6 Mgt
IME SCHEDULE
,onstruction Period '
Start 1/83 (3 Years)
Start Up
1/86
IEFUSE TONNAGE
438,000 TPY (1,200 TPO)
• Based on System Contractors and Mitre Corp.
A-V-3v
H
a
a.
w
O
Z
O
�J
a
■
FIGURE �-V-2
METROPOLITAN -DISI?OSAL SYSTPM COST COMPARISON
*
YEAR
System without SANDER
. ... System virith SANDER
* Inflation rate
la
A-V-3vi `"'
Merrill Lynch is recommending that the RFP require all four firms to submit
bids based upon public ownership (the SANDER Joint Powers Authority) and
private operation of the SANDER facility. However, it is also proposed that
the RFP permit the firms the option of submitting an additional bid based
upon complete private ownership and/or the partial contribution of private
capital to -the,Project. The reason for this dual approach is that public
ownership/private operation has been evaluated as the most reliable,
economically viable option of several possible options; however, private
contribution of capital may be especially beneficial in lowering tipping fees
at the facility, especially in the early years of the Project. The SANDER
Task,Force-Board of Directors has concurred in this approach.
Public Information
The.SANDER'Project is actively involved in a public information program, with
the -assistance-of a public information consultant. The primary effort is to
' -make presentations to different organizations including elected officials,
civic organizations, community -oriented citizen groups, labor organizations,
and students to'tell' them about the project. The SANDER staff also assists
the media to understand the complexities involved in planning a -waste -to --
energy resource recovery project.
A Community Advisory Commission, made up of prominent members of the com-
munity, -will assist staff and the Task Force Board of Directors in various
public information activities including environmental issues, secondary
materials and markets development, financial evaluation and public
presentations.
SUMMARY
f
In order to achieve a reduction in the amount of solid waste requiring land -
filling and to provide ecologically sound alternative methods of solid waste
disposal, the County of San Diego and City of San Diego are planning a major
waste -to -energy facility. With the decreasing availability of urban landfill
space and rising costs associated with landfilling and transfer stations,
A-V-3vii
waste processing plants with heat recovery are becoming an economical
solution to metropolitan solid waste management.
"Planning will -proceed rapidly on the SANDER Project in order to reach full
operation in 1987. In addition, recycling will be encouraged in the SANDER
se
wasteshed and newcondary materials markets developed in conjunction with
project activities.
SANDER staff will assess the economic_ viability, waste generation figures,
potential sites and energy customers in other areas of the County for future
waste=to-energy facilities.
A-V-3viii
r�rn�
A-P-P-E-N-D-I-X A-VIII-1
STATE AGENCIES INVOLVED IN HAZARDOUS WASTE MANAGEMENT
06 STATE AGENCIES INVOLVED IN HAZARDOUS WASTE MANAGEMENT
Regional Water Quality Control Board
The protection of underground water quality is'a major consideration in the
disposal of hazardous wastes. The State Regional Water Quality Control Board
regulates the selection of sites for disposal of Class I wastes and monitors
surrounding groundwater for possible contamination.
State Department of Health Services
The State Health and Safety Code, Chapter 6.5 assigns to the California State
Department of Health Services (SDOHS) responsibility for developing the
State's.hazardous waste management program. SDOHS is required to adopt regu-
lations for the handling, processing and disposal of both hazardous and
extremely hazardous wastes so as to protect against hazards to the public
health, to domestic livestock and to wildlife. In addition, the Department
is required to evaluate and coordinate research and development of methods of
-" hazardous waste -handling and disposal. The Department also reod�' rs technical
assistance to State and •local agencies in the planning and operation of
hazardous waste management programs and provides surveillance of hazardous
waste processing and disposal practices in the State.
Enforcement of the minimum standards and regulations can be performed by
SDOHS on the recommendation of San Diego County Department of Health
Services. Guidelines for the management of hazardous waste in California
were promulgated by SDOHS in February, 1975.
Title 22 of the Administration Code identifies those substances considered
hazardous and extremely hazardous and regulates their handling and disposal.
One requirement is the use of the California Registered Waste Hauler Record
or "manifest". This provides a permanent record of the waste hauled, the
name of the generator, the transporter and the disposal site. Such records
will aid in the development of an information bank on generation and disposal
of hazardous wastes and permit more effective control. SDOHS plans to have
d
A-VIII-li
this information on a computer program in 1582. A copy of the manifest form �=
is included in the Appendix (A-VIiI-4).
SDOHS, through its Hazardous Materials Management Section (HMMS), is respon-
sible for implementing and enforcing provisions of the State's Hazardous
Waste Control Act and pursuant regulations. This authority is found in Divi-
sion 6.5, Sections 25100 et seq., Health and Safety Code (H&SC),
and Title 22, Division 4, Chapter 30, Sections 66016 et seq., California
Administrative Code (CAC).
In fulfilling its mandate, SDOHS works closely with a number of other govern-
mental agencies, including the State Water Resources Control Board, the
Regional Water Quality Control Boards, the State Solid Waste Management
Board, the Department of Industrial Relations, the Office of Appropriate
Technology, regional councils of governments, county health departments, and
both State and local law enforcement agencies.
The primary goal of the California hazardous waste management program is to
protect public health and the environment by ensuring, through regulatory and
enforcement actions, proper and safe handling, storage, transport, and dis-
posal of hazardous waste materials. The program also is committed to the
conservation of land, material, and energy resources through the promotion
and support of waste reduction, waste treatment, and resource recovery activ-
ities.
This program can be divided into ten major areas of activity:
1) Establishment of criteria, lists, and testing protocols for the
identification of hazardous wastes.
2) Development of an information base on hazardous waste generation in
the State.
3) Regulation of hazardous waste transportation.
4) Regulation of hazardous waste treatment, storage, and disposal prac-
tices; control of design and operation of treatment, storage, and
disposal practices; and control of use of land on or adjacent to
properties having received hazardous waste.
A-VIII-1ii
5) inspection, surveillance, and enforcement actions to ensure compli-
ance of hazardous waste generators, transporters, facility operators
and other persons engaged in hazardous waste activites with applica-
ble State laws and regulations.
6) Siting of new hazardous waste facilities.
7) Promotion of waste reduction, waste treatment, and resource recovery
activities.
8) Identification and assessment of abandoned hazardous waste disposal
sites.
9) Public education, and public participation in facility permitting,
facility siting, and other program activities.
10) Program planning and administration.
DEPARTMENT OF HEALTH SERVICES
POLICY OF HAZARDOUS WASTE MANAGEMENT
In order to reduce the State's dependence on chemical landfills and to reduce
the potential threats to public health resulting from the land disposal of
untreated toxic wastes, the Hazardous Waste Management Program of the State
-` will shift emphasis towards minimizing the need for new Class I sites.
All new treatment and disposal regulations developed will reflect the
following principles:
1. Landfill disposal of certain high priority hazardous wastes will be
prohibited. (In part this has been accomplished by the signing of an
Executive Order by the Governor on October 13, 1981,)
2. All hazardous waste disposal facilities will be required to incorpor-
ate the best practicable treatment technology to remove or minimize
the toxic hazards of waste prior to disposal.
3. Producers of hazardous waste will be encouraged to reduce the volume
of hazardous waste at the point of generation; and by employing
volume reduction techniques.
4. Industry will be encouraged to add onsite treatment of hazardous
waste to existing industrial processes and to undertake continuous
efforts to alter industrial processes to reduce the amount of hazard-
ous waste produced.
S. Industry will be encouraged to separate specified recyclable
materials from hazardous wastes at the point of waste generation.
A-VIII-liii
Class I landfills will continue to be necessary even after the action items Pam;
listed above are,fuily implemented. This is because their remains a
hazardous residue generated in various treatment processes and for wastes
with low concentrations of hazardous constituents. To ensure adequate
capacity in, and an adequate number of, Class I landfills DOHS working with
local agencies will:
1. Exercise leadership in assuring the availability of adequate, safe,
and reliable hazardous waste disposal facilities. DOHS will also
render assistance to local agencies and others in identifying and
evaluating potential disposal facilities.
2: Prepare statewide procedures to be followed for the siting of new
hazardous waste facilities.
3. Conduct a regional siting study in Southern California.
A-VIII-1iv
A-P-0-E-N-D-I-X A-VIII-2
�1
�- HAZARDOUS WASTE GENERATION AND DISPOSAL IN CALIFORNIA
The following material has been excerpted from ALTERNATIVES TO THE LAND
DISPOSAL OF HAZARDOUS WASTES - AN ASSESSMENT FOR CALIFORNIA by The Toxic
Waste Assessment Group, Office of Aporopriate Technology.
HAZARDOUS WASTE GENERATION AND DISPOSAL IN CALIFORNIA
According to EPA, California is the fourth largest generator of hazardous
wastes in the nation. The CaliforM a Department of Health Services estimates
that about 5 r'iH ion tons per year of hazardous wastes are generated by
California 'industries. Very little comprehensive data -has been available on
the chemical- composition, source, and disposal methods for the State's
hazardous wastes.
-The•Office of Appropriate Technology (OAT) was awarded a contract to perform
a detailed waste characterization study and is responsible for promoting
technologies that are less harmful to people and the environment than the
technologies of the past. The Office assists and advises the Governor, State
government, and the public on cost-effective, energy -efficient, and environ-
mentally benign technologies. OAT promotes energy and resource conservation,
energy education, affordable housing,, waste recycling and conversion, toxic
waste management, and technical innovation in cogeneration, agriculture, wind
energy, and small-scale hydropower. OAT works closely with other State agen-
cies in carrying out cooperative projects and in distributing information to
the public.
The Office of Appropriate Technology was awarded a contract to perform a
detailed Waste Characterization Study. Since very little information was
available concerning on -site disposal of hazardous wastes, the initial study
focused only on hazardous wastes transported off -site to the State's licensed
hazardous waste disposal facilities. Information will soon be available from
the EPA concerning on -site disposal of hazardous wastes in the State, and
will be used to perform the second phase of the Waste Characterization
Study.
A -VI I I -2i
Of the estimated 5 mill -ion tons generated, approximately 1.3 titi l l i on- tons per
year of hazardous, wastes are handled in off -site hazardous waste disposal
facilities in California. The five largest categories of hazardous wastes
are:
Drilling muds from oil and gas production (10% of total)
Aqueous solutions, with organics (8% total)
=Flue -gas scrubber l i nui d.16% of total }
.Aci di c Sol utf ohs -wi th- heavy 'metal's 15. 5% of total-)
Pestic-ides and wastes (5% of total)
Other waste.categories, comprising significant portions of the waste stream
are'heavy-metal-sludges, tank.bottom sediments, -aqueous solutions with reac-
ti.ve anions, and mixtures of oil, sediment, and water..
The: major industries which, generate hazardous wastes that are transported to
Class I. sites in the `State are -petroleum refining, oil and gas extraction,
and,chemical's.and allied products. Within the chemical industry, agricuT<
. tural' •chemi cal ss accodnt for the largest. share of hazardous, wastes. Figure
A-VIII.=1 s:iows the percentage of the waste street produced. by. the major p
s i
generators of hazardous wastes in California.
j The- -Office of 'Aopropri ate Technology' di,vi ded the 'State into 16. waste gen-
drating regions. They are identified in Figure A-4III-2.
Region 16 includes a portion of the County of San,Diego. During 0AV-s recent
representative sampling of hazardous waste generation, OAT estimated that-2%
-of the State''s volume came from the San Diego corridor identified, in Figure
A-VIII-3.
A -VI I I -2i i to
r
FIGURE A -VI I I -1
MAJOR GENERATORS OF HAZARDOUS WASTES BY INDUSTRY GROUP
*max*
*max*
*�rx*
****
Oil' &
'Gas.
:Petroleum Chemicals
FAbri=
Electric,
Electric Transpor-
,Ex-
Refining & Allied'
cated
Gas. &
& E-1 ec-
tati'on
traction
Products
Metal
Sanitary
tropics
Equipment
Products
Services
Equip-
inent
A-VIII-2iii
**IC*
**kit
7ti�Ck*
7�C�*
*'k'kit
All
Others
r�
FIGURE A-VIII-2
LOCATION OF WASTE GENERATING REGIONS
KEY
� = f
I - UPPER CENTRAL VALLEY
t• r• """'`""" 2-SACRAMENTO AREA
3-EAST BAY
4 - SONOMA AREA
�� „•;, .,....--r+»-; 5 - PENINSULA
6 - SOUTH' BAY - SAN JOSE
'�.
•»•� •�t, 7 - STOCTON AREA
:.•...»..•. 8 - FRESNO AREA
9 - COASTAL SAN LUIS OBISPO
10 - COASTAL VENTURA
11 -BAKERSFIELD AREA
-12 - GREATER LOS ANGELES AREA
;o
• �• ,✓' 13 -LONG ••BEACH'
:" "• ;�: 14 - GREATER ORANGE COUNTY AREA
' 15 - SAN. BERNARDINO [RIVERSIDE
_
�'? •• j. 16 -GREATER SAN DIEGO
{
.. •...r. ,. .r.................
'4
0
p_ .'..
13 �� _.,.r...... .__.._
Cvia
A-VIII-2iv
04
FIGURE A-VIII-3
GREATER SAN BERNARDINO/RIVERSIDE AND SAN DIEGO AREAS
HAZARDOUS WASTE GENERATION
j San Bernadino
Los Angeles an Be• ,a�iro ' SAN I3ERNADINO-
RIVERSIDE
Riv°er ide
Lcn� Beach
Riverside
Orange
` r
San Diego I
i
• �'
ESCOrCiC i
•� GREATER i
SAN DIEGO
San Oicgo
Mexico
GREATER SAN DIEGO
Generates 25,630 tons/year Acidic solutions with 11,150 43.5
1..9% -of state total heavy metals
Alkaline oily sludge 2,170 8.5
Other alkaline solutions 1,720 6.7
_J A-VIII-2v
TABLE A-VIII-1
CLASS I SITES
as of June 181
(See Figure A-VIII-4)
MATERIALS ACCEPTED
San Francisco -Bay Area:
1. Benicia (I.T. Corp) Liquids, sludges, acids, bases,
pigments, oil & water and heavy metals.
2. Martinez (I.T. Corp) Limited liquids & sludges, acids,
bases, solvents, cyanides & phenols.
No pesticides or herbicides.
3. West Contra Costa (Richmond) 'Bulk liquids & sludges; and
contaminated soils. No barrelled
wastes.
Fresno, County:
4. Big Plue Hills Only agricultural pesticides and their
f
containers. Open only last 2 weeks in
April and last 2 weeks in October.
Kin§s County:
5. Kettleman Hills All except radioactive and water -
reactive wastes.
Los Angeles County:
6. West Covina (BKK Corp) All except explosives and radioactive.
Santa 1arbara County: ,
7. Casmalia Liquids, sludges, pesticide containers,
and PCB's. No radioactive or
explosives.
A-VIII-2vi
ON
FIGURE A-VIII-4
LOCATION OF CALIFORNI S CLASS I HAZARDOUS WASTE
DISPOSAL FACILITIES
1 - Big Blue Hills (open 0 weewyeu)
2 - BKK Landfill, West Covina
3 - Casmalla Dbposal Compiny, Casmalla
4 - IT Environmental, .Martinez
3 - IT Environmental, Benicia
6 - Liquid Waste Disposal, Kettleman Hills
7 • WCCC Sanitary Landfill, Richmond
,N.
.N -NNW
N.!IN.•
. ANN
• t t 1 1
A-VIII-2vii
TABLE A-VIII-2
CLASS II-1 SITES
as of June '81
MATERIALS ACCEPTED
Alameda County:
Altamont Sanitary
Industrial process; waste water
treatment sludge.
Amador County:
Buena Vista Landfill
Sludge/septage; infectious pesticide
containers; pesticide rinse water.
Coiusa County:
Evan's Road Solid Waste
Septic tank pumpings; oil drilling
muds; triple -rinse pesticide containers.
Contra Costa County:
Acme Fill
Sludge/septage; infectious; hazardous
waste -alum fl ock; asbestos; ASP filter
cake; oil wastes; centrifuge solids;
hydrocarbons; medical wastes; pollution
equipment waste; tanning wastes;
wastewater sludge.
Fresno -County:
Chemical Waste Management
Tank bottom sediment; scrubber sludge;
oily waste; drilling muds.
Chevron U.S.A. Inc.
Tank bottom sediment; oil slump sludge;
drilling mud; formation water -brine.
Imperial County:
I.T. Imperial Valley
Geothermal brines; pesticide containers;
neutralized aqueous acids and bases;
geothermal drilling muds; rinse waters;
petroleum sludge.
Kern County
Chevron U.S.A. --- X
Petroleum brine; drilling mud; tank
bottom sediment; oil sump sludge.
Chevron U.S.A. --5K
Petroleum brines; drilling mud; tank
bottom sediment; oil sump sludge.
A-VIII-2viii
W
►�J
TABLE A-VIII-2 (cont'd)
CLASS II-1 SITES
as of June '81
Korn County (cont'd)
Environmental Protection
Kinds County:
Chevron U.S.A. -- 350
Lake County:
Eastlake Sanitary Landfill
Geothermal Incorporated
I.T. Corp. -- Benson Ridge
Los Angeles County:
Puente Hills
Operating Industries Inc.
Monterey 'County:
Aurignac Industrial
Waste Plant
Placer County:
Western Regional Sanitary
San Benito County:
John Smith Solid Waste
Disposal Site
MATERIALS ACCEPTED
Oil sump sludge; oil field brine; rotary
mud; tank bottom sediment; scrubber
wastes.
Oil sump; sludge; tank bottom sediment;
oil field brine; drilling mud.
Pesticide, herbicides, fungicide and
miticide containers.
Drilling muds; water cake sulfur; H2S
abatement sludge; strettford solution.
Geothermal drilling mud; brines;
scrubber sludge.
Sludge/septage; latex waste; tank bottom
sediment; paint sludge; drilling mud.
Drilling muds; paint sludge; tank bottom
sediment; mud and water (laundry); latex
waste.
Drilling muds and brines.
Drilling muds/fluids; limited hazardous
waste; wastewater sludge; septic tank
sludge.
Pesticides in liquid form.
A-VIII-2ix
TABLE A-VIII-2 (cont'd)
CLASS II-1 SITES
as of June '81
San Joaquin County:
Forward Incorporated
Santa Cruz County:
Santa Cruz City Disposal
Site
Shasta.County:
Anderson Solid Waste, Inc.
Siskiyou County:
Sleepy Ridge Slid ,,waste
Disposal Site
Solano County:
Flannery Road Disposal Site
I.T. Corp., Montezuma Hills
Ventura County:
J.N.J. Disposal Site
Yolo County:
Yolo County Central Landfill
MATERIALS ACCEPTED
Heavy metals; sludge/septage; drilling
muds/fluids.
Sludge/septage; tannery waste.
Emergency petroleum spills.
Pesticide containers.
Drilling muds
Drilling muds; geothermal brines;
neutralized aqueous acids and bases;
wastewater treatment solids.
Drilling muds and brines.
Triple -rinsed pesticide containers;
drilling muds.
A-VIII-2x
e4*)
WASTES CURRENTLY DISPOSED?*
Generators of hazardous and extremely hazardous wastes must dispose of them
in -licensed facilities approved by the State Department of Health Services
and the State Water Resources Control Botird. The Water Board classifies
hazardous waste land disposal sites and the wastes they may accept according
to potential impacts er ground water quality. Class I sites may overlie
usable ground water only under "extreme cases" and may receive all waste
groups (except PCBs and radioactive wastes, which can only be disposed of in
sites approved by the EPA). Class II-1 sites may overlie or be adjacent to
usable ground water but must protect ground water by natural site character-
istics or site modifications. These sites may accept certain Group 1
(hazardous') wastes and all Group 2 and 3 wastes.
California has seven Class I disposal sites (Table A-VIII-1) and at least 17
Class II-1 sites currently accepting hazardous wastes. 65 Class II-1 sites
exist in the State, although not all of them are currently rf:ceiving haz-
ardous wastes (Table A-VIII-2).
The Department of Health Services is computerizing their data mangement sys-
tem so that up-to-date waste generation and disposal summaries can be
obtained at any time. In addition, the Department is in the process of
writing permits for the State's on -site waste disposers based on information
the EPA obtained from consolidated permit applications recently submitted
pursuant to RCRA. (OAT)
As of June 1979, there were 11 Class I disposal sites in operation in
California. The status of these sites as of November, 1980; is shown in
Table A-VIII-3. It is evident from this table that if disposal at the BKK
and Casmalia sites is restricted, wastes from Southern California will have
to be transported to the Kettleman Hills site in Kings County (a 650-mile
* This material has been excerpted from the OAT document previously refer-
enced and a SOOHS document entitled "A Summary of the California Waste
Management Program and State Plan."
A-VIII-2xi
Status
Permanently Closed
TABLE A-VIII-3
SUMMARY STATUS OF CALIFORNIA
CLASS I HAZARDOUS WASTE DISPOSAL SITES
IN NOVEMBER 1980
Number
Of Sites Site Name
2 Otay
Temporarily closed for
geological investigations
Open but accepting only
pesticide residues and con-
tainprs only 4 weeks/year
Open '(after being closed for
several months beginning
2/80), but with potential
for restrictions on opera-
tion during wet weather
Open and unrestricted, but
subject to considerable -
local pressure for closure
Open -and unrestricted, but
subject to some local
pressure for closure
2
3
2
1
Palos Verdes
Calabasas
Simi Valley
Big Blue Hills
Disposal Site
Location
(County)
San Diego
Los Angeles
Los Angeles
Ventura
Fresno
IT Environmental
Contra Costa
Corporation
(Martinez)
West Contra Costa
Contra Costa
Sanitary Landfill
(Richmond)
IT Environmental
Solano
Corporation
(Benicia)
Casmalia Disposal
Santa Barbara
Site
BKK Landfill
Los Angele,.
Kettleman Hills
Kings County
Disposal Site
A-VIII-2xi i
round trip from San Diego). It is assumed that on -site storage or illegal
disposal of hazardous wastes will increase if firms are unable or unwilling
to pay increased charges to transport their wastes to licensed disposal
sites.
Of the estimated five million tons/year of hazardous wastes generated,
approximately 20% is disposed of in regional hazardous wastes disposal sites.
The remainder is either recycled, stored or disposed of in industry premises
or disposed of -illegally in sewer systems, municipal landfills, vacant lands,
-surfacewaters, and groundwaters.
There is animmediate need to assure sufficient, safe disposal sites for
California's hazardous wastes. If sufficient hazardous waste treatment and
disposal sites are not provided, there would be major public health and
economic impacts on California. Industries which generate hazardous wastes,
including the petrochemical, aircraft manufacturing, electronics, and metals
processing industries, would have to cease production or the wastes would
have to be shipped to other states (if they would accept them) for ultimate
disposal at great cost in dollars and energy. Illegal disposal to sewer
systems, municipal landfills, vacant land, surface waters and groundwaters
would be encouraged by the lack of both adequate facilities and adequate
enforcement. This could have an adverse impact on public health and the
State's natural land and water resources. In addition, without new secure
disposal facilities, cleanup of known abandoned sites will be extremely
costly and perhaps impossible.
Several new hazardous waste facilities have been proposed for development by
waste disposal companies. These proposals have been defeated by strong
public opposition, based to a large extent on the lack of confidence in
industry's ability to manage wastes safely, a belief that other locations
would be safer and an unwillingness to have a hazardous waste dump in or near
the community. Opposition to the development of hazardous waste facilities
could be ameliorated to a large extent by the direct involvelment of the
public in the developemnt of site and facility criteria and in the site
selection process.
x''�'r A -VI I I -2xi i i
'A=P-P-E-N-D-I-X A-VIII-3
TECHNOLOGIES FOR TREATMENT OF HAZARDOUS WASTES
7-1
TECHNOLOGIES FOR TREATMENT OF HAZARDOUS WASTES
•EPA's "Hazardous Waste Generation and Commercial Hazardous Waste Management
Capacity -- An Assessment, December 1980" is the verbatim source of this
section as follows:
this chapter will briefly discuss 13 of the more promising technologies now
emerging as a result of recent research and development efforts. The tech-
nologies are listed alphabetically,beiow:
° -Cement -ki 1 ns
Chlorinolysis
° •Co-mi nglJ ng
Flui.dited-bed incineration
° Incineration -at -sea
° Land,treatment
° Microwave plasma destruction
° Molten salt combustion
° Molten sodium decomposition
Ozonation
° Sol,idification
° UV Radiation
° Wet air oxidation
The purpose of the chapter is to give some sense of technology trends and how
they might affect the future mix of treatment and disposal methods.
Timing -- The difficulties in moving a technology forward from a bench -scale
operation to full commercialization are many, and in some instances have
proven insurmountable. if a municipal solid waste resource recovery
technology is any indicator, many of the emerging technologies could take 10
to 20 years before full-scale operation is prcven•feasible.
In summary, there is a moderately promising future for emerging technologies.
With the enactment and more recently the implementation of RCRA, proper dis-
posal techniques will be in demand ever more frequently. Yet because most of
the emerging technologies are at very early stages of development, it appears
that the more innovative technologies will not penetrate the market to a
significant degree in the next five years.
A-VIII-3i
(1) Cement Kilns t
The Canadian government has demonstrated that chlorinated hydrocarbons can be
used as a boiler fuel in the manufacture of cement. In 1974, waste lubri-
cating oils were successfully burned in a cement kiln. In 1976, PCBs and
other chlorinated organic wastes were destroyed. Similar tests in Sweden
have demonstrated a PCB destruction efficiency of 99.99998 percent. As a
result, cement kilns have received considerable attention recently as a reli-
able method which can handle a variety of wastes. However, because of
liability issues there is hesitancy on the part of the cement industry to use
the wastes. Moreover, local opposition is typically a problem and it is not
yet clear which classes of waste are compatible with the cement -making
process. '
(2) C�,*.drip_ olysis
Herbicide orange, still bottoms from organic manufacturing processes, and
pesticides can be converted by chlorinolysis to carbon tetrachloride. The
technology involves adding chlorine to the waste in a special nickle-stain-
less steel reactor under certain temperatures and pressures. The severe oxi-
dizing and corrosive environment requires these special reactor materials,
increasing the cost of this method substantially. In addition, impurities in
the waste stream, particularly sulfur at extremely low concentrations, can
cause either unwanted by-products or system poisoning. Further studies are
underway to determine the ultimate feasibility of this technology.
(3) Co -mingling
The practice of co -mingling hazardous waste with nonhazardous wastes in land
burial sites has been widespread for years. If done improperly or arbitrar-
ily severe problems can result. However, in California the practice has been
refined such that only compatible wastes are disposed of together and that in
all other cases extreme steps are taken to assure isolation. The results on
this method are not yet conclusive. California officials have expressed some
concern because the process kinetics of the mingling and the ultimate dis-
position of the hazardous wastes are not known for sure.
A -VI I I -31 i 1400
(4) Fluidized -bed Incineration
Fluidized -beds have been used in petroleum refining since the 1920s, but it
is only -recently that hazardous wastes have been combusted i'n them. The
Process has been used to destroy oil refinery wastes, carbon black, spent
Pulping liquor, chlorinated hydrocarbons, and phenol. This process involves
forcing the waste fluid or gas upward through a bed of solid particles at a
rate such that the solids -remain in suspension. The resultant complete mix-
ing enhances oxidation with a minimum of excess oxygen and temperature. The
most serious disadvantage of this technology is the potential for salt fusion
and subsequent defluidization of the bed. This is due to the formation of
Tow -melting point mixtures resulting from the incineration of diverse materi-
als. As with other incineration options, high construction costs are also a
problem.
(5) Incineration -at -Sea
There are now two functioning incinerator ships; the Valcanus and the
Matthias II. The Vulcanus has successfully destroyed chlorinated hydrocar-
bons and dioxins. EPA monitored the tests and found destruction essentially
-complete with no hazardous by-products. Since dioxin is among the most dif-
ficult wastes to dispose of completely, and since air pollution control mea-
sures are not required on these vessels, the success of the first tests would
seem to'indicate a bright future. However, potential regulatory problems
with discharges to the ocean (e.g., Clean Water Act Section 403(c) criteria)
and the fact that sizeable port storage facilities are probably required,
make the promise of this technology questionable.
(6) Land Treatment
Landfarming of oily refinery sludges has been practiced in this country for
over 25 years. Other materials that have been successfully landfarmed in-
clude sludges from paper mills and fruit canneries, pharmaceutical wastes,
and some organic chemical wastes. The practice involves the spreading of
organic wastes onto land and subsequently mixing the waste with surface soil
to aerate the mass and expose the waste to soil microorganisms which will
decompose the waste. The technical requirements of RCRA will probably con-
strict the use of landfarming to suitable hydrogeological areas. Also, land-
A-VIII-3iii
farming ooes require large areas of land and the technology is not appropri-
ate for wastes containing significant quantities of heavy metals or other
contaminants that are not biodegradable.
(7)' Microwave .Plasma Destruction
Microwave plasma has been evaluated in the laboratory as a means of destroy-
ing pesticides and other highly toxic materials. Destruction rates range
from,99 percent to 99.9999 percent. In this technology electrons are accel-
erated in a cavity such' that the average electron has sufficient energy to
dissociate a molecule or fragment on collision. The problems with this'tech -
nology are that it is only in its early development and thus far, only very
small cavities can be constructed.
(8) Molten Salt Combustion
In this process,,waste and air are continually introduced under the surface
of molten sodium carbonate which is kept at a temperature of 8000C to
1,000°'C. the•tntimate contact of,the air and waste with the hot salt pro-
duces im►Mediate and complete combustion. The process has been tested with a
variety of ,organic wastes and some low-level radioactive wastes. 'Destruction
rates greater than 99.99 percent have been observed. Unfortunately, the
-technology is only in the experimental stage and the costs could be prohib=
iti ve'.
(9) Molten Sodium Decomposition
Scientists at the Franklin Research Center have found that molten sodium
metal, in the appropriate solvent medium, can function as a broad -based chem-
ical reactant. In tests to date the technology has demonstrated complete
combustion of PCBs and experiments are underway to study kepone destruction.
This technology is also in its infancy.
(10) Ozonation
For years ozone (03) has been used as an oxidizing/disinfection agent in
wastewater treatment, particularly municipal systems in Europe. A procedure
for evaluating chemical compounds susceptible to oxone oxidation has
been developed by Fochtman and Dobbs. The applicability of this technology
to hazardous waste is still being studied.
A-VIII-31v
Zak (11) Solidification
A great amount of private research and development has gone into the chemical
solidification of wastes -- the development of techniques to bind the wastes
into a coherent mass before burial so that leaching of toxic materials into
the groundwater is minimized. This method is particularly appropriate for
"dirty" inorganic wastes such as industrial sludges. Four techniques are
available: cement -based techniques, lime -based techniques, thermoplastic
binders, and organic binders. Solidification is used very little in this
country but has experienced greater utilization in Europe. Unfortunately,
long-term monitoring of this method is needed to determine the ultimate
disposition of the solid material. In addition, organic contaminants can
weaken significantly the cement or other solid material.
(12) UV Radiation
UV radiation has been used in conjunction with other treatment technologies
to destroy hazardous wastes. The Atlantic Research Corporation has developed
a process for breaking and reducing carbon -halogen bonds in wastes. The
compounds are dissolved in methanol and treated with UV radiation and hydro-
gen. A high percentage of destruction was reported for kepone and PCBs.
Waste have also been degraded successfully using ozone and UV radiation
together. Thus, UV radiation shows considerable promise as a supplementary
technology.
(13) Wet Air Oxidation
Wet air oxidation has been used largely as a method of conditioning waste-
water treatment sludges, and to a limited extent for the treatment of waste-
water as well. It does, however, have the potential to be used as an alter-
native to incineration for certain,types of wastes. Wet air oxidation is
accomplished by adding air to an aqueous mixture of organics under pressure
and elevated temperature. This technology is generally suitable for streams
containing about 1 - 30 percent organics by weight. Laboratory demonstra-
tions thus far show good destruction by cyanides and chlorinated organics.
The following material is excerpted from ALTERNATIVES TO THE LAND DISPOSAL OF
HAZARDOUS WASTES, AN ASSESSMENT FOR CALIFORNIA, by The Toxic Waste Assessment
Group, Office of Appropriate Technology.
A-VIII-3v
ALTERNATIVE TECHNOLOGY
In January of 1980, a major new program to reduce the dangers presented by
increasing volumes of toxic substances was announced. In support of the
Governor's program, the department of Health Services awarded a contract to
the Office of Appropriate Technology to investigate the technical and
economic feasibility of using alternative technologies to safely reduce,
recover, treat, and destroy California's hazardous wastes (radioactive wastes
were excluded from scope of the OAT investigation). The study was intended
to document the availability of alternative waste management technologies,
and to help redirect the State's hazardous waste management program toward
the development and use of these technologies.
Overview of Alternative Technologies
Since discoveries at Love Canal in 1978, there has been growing interest
throughout the country in the development and use of alternative technologies
that -can safely reduce, recycle, treat, or destroy hazardous wastes.
Although the selection of the best hazardous waste management is often a
complicated- decision for engineers familiar with the production process and
waste stream constituents, the following hierarchy is now widely accepted as
the optimal management strategy for hazardous wastes:
° Waste Reduction: At the source by changing the industrial process-
es so that hazardous by-products are not produced.
Recycling: (Reusing waste materials) and Resource Recovery (ex-
tracting valuable materials from a waste stream) offer opportun-
ities for reducing dependence on landfill disposal.
° Physical, Chemical, and Biological Treatment (includes dewater-
ing).
° Incineration: Organic materials which cannot be effectively recy-
cled or treated.
° Solidification/Stabilization of Residuals Before Landfilling: The
use of encapsulation techniques to "solidify" wastes and make them
less permeable.
A-VIII-3vi
04 During the last several years, a great deal of new technical literature has
been developed on recycing, treatment, incineration, and solidific
ation
technologies for hazardous waste management. In recent regulations for
hazardous waste permits, the Environmental Protection Agency identified over
70 different potential alternatives to land disposal.
A variety of both physical and chemical technologies are now used to recycle
or recover valuable resources from hazardous wastes. The selection of the
most effective technology depends upon the wastes being treated.
A common method of categorizing alternative waste treatment technologies is
as follows:
Physical Treatment
Chemical Treatment
° Biological Treatment
° Incineration
° Stabilization/Solidification Treatment
P�ysical Treatment Technologies
}
These processes are very useful for:
° Separating hazardous materials from an otherwise non -hazardous
waste stream so they may be treated in a more concentrated form;
° Separating various hazardous components for different treatment
Processes; and
° Preparing a wasto stream for ultimate destruction in a biological
or thermal treatment process.
Physical processes commonly used in waste treatment operations are:
° Screening
° Sedimentation
° Flotation
° Filtration
° Centrifugation
Dialysis
° Electrodialysis
° Reverse Osmosis
Ultrafiltration
Distillation
° Solvent Extraction
° Evaporation
° Adsorption
° Solar Evaporation
A-VIII-3vii
Chemical Treatment Technologies
Chemical treatment technologies treat waste by altering the chemical
structure of the constituents to produce either an innocuous or a less
hazardous material.
Chemical treatment operations commonly used in treating wastes:
° Neutralization
Precipitation
_Ion Exchange
Chemical Dechlorination
° Chemical Oxidation
Biological Treatment Technologies
Biological waste treatment is a generic term applied when living micro-
organisms are used to decompose organic wastes into either water, carbon
dioxide, and simple inorganics, or into simpler organics such as aldehydes
and acids.
The five principal types of conventional biological treatment are:
° Activated Sludge
° Ar"rated lagoon
° Trickling Filters
° Waste Stabilization Ponds
° Anaerobic Digestion
There are also innovative approaches under development that use biological
processes for treating wastes. The processes are: biological seeding,
fluidized -bed reactor, deep -shaft aeration, and pure oxygen systems.
Incineration and Pyrolysis Technologies
Incineration reduces the volume or toxicity of organic wastes by exposing
them to high temperatures. If the wastes are heated with oxygen present,
combustion occurs and the process is called incineration.
If the wastes are exposed to high temperatures in an oxygen -starved envi-
ronment, the process is called pyrolysis.
A-VIII-3viii 0
A
H!-wdous waste incineration and pyrolysis systems include:
° Single Chamber Liquid Systems
° Rotary Kiln
° Fluidized -Bed Incineration
° Multiple Hearth
• Molten Salt Combustion
° At -Sea Incineration
° Cement Kilns
° Coincineration
° Pyrolysis
° Plasma Arc Torch
° High -Temperature Fluid Wall
Solidification/Stabilization Technologies
"Solidification" and "stabilization" are treatment systems designed to accom-
plish one or more of the f.-Alowing: 1) improve handling and tr`,e physical,
characteristic of the waste, 2) decreaf.a the surface area across which
transfer or loss of contained pollutants .can occur, and 3) limit the solubil-
ity of, or detoxify, any hazardous constituents contained in the wastes.
Solidification implies that these results are obtained primarily, but not
exclusively, via the production of a monolithic Onck of treated waste with
high structural- integrity. Stabilization techniques limit the solubility or
detoxify waste contaminants,, even though the physical characteristics of the
waste may. not be changed. Stabilization usually involves the,addition of
materials that ensure the hazardous constituents are maintained in'their
least soluble and/or toxic form.
Summag of Alternate Technologies
Most of the technologies described in this chapter have been used in indus-
trial processes for marry years. During the last few years, their application
has been extended to the management of hazardous wastes. The most widely
used technologies for hazardous waste management now include:
Physical Treatment:
Sedimentation
° Filtration
° Solar Evaporation
Distillation
° Flotation
Adsorption
Biological Treatment:
J A-VIII-3ix
° Waste -Stabilization Ponds
Activated Sludge
W1
Chemical Treatment: Incineration:
Neutralization Liquid Injection Systems
° Precipitation ° Rotary Kilns
° Stabi 1 i iatt6n /Solidification
In. addition to conventional treatment and destruction processes, many new and
advanced technological approaches for managing hazardous wastes are in var-
ious stages of development. These treatment and incineration technologies
either lessen the cost of waste reduction or reduce environmental pollution -
related to waste destruction. In order to further the development and use of
these innovative -hazardous waste management technologies, the Office of
Appropriate Technology is,carrying out a project with,the Environmental
Protection Agency to document emerging technologies, evaluate what is known
aboLt these, technologies, and supplement this information with actual
operating data where needed. -- (This concludes excerpted materials)
The technologies presented in this section are not meant to be a comprehen-
sive compilation of all emerging technologies or systems of technologies.
.Activated carbon, ion exchange, and ultrafiltration are three examples of
other innovative technologies perhaps suitable for hazardous waste. In addi-
tion, industrial waste exchanges have shown some promise as a means to recy-
cle or recover useful components in waste. All of these technologies
together will form the future system of alternatives. The question remains,
however, as to the extent to which each technology will penetrate the mar-
ket.
0
A-VIII-3x
A-P=P;E=N-D-I=X A-VIII-4
HAZARDOUS WASTESMANIFEST CATEGORIES
j
HAZARDOUS WASTES MANIFEST CATEGORIES
Industrial Waste Generation in the,Re ion
The principal sources of industrial wastes in San Diego County are located in
the greater metropolitan area, but new industrial parks are being developed
throughout the County. A substantial number of industries in the region are
permitted to discharge certain industrial wastes directly into local sewerage
systems under specific circumstances and -with the surveillance of the
Industrial Waste Surveillance Program.
4t, is difficult to obtain complete and accurate data on the total quantity of
hazardous industrial, wastes being generated in the region despite the
required -California Hazardous Waste Manifest. Table A-VIII-4 reports
-hazardous wastes manifested and, generated in San Diego County for 1980 and
disposed of off -site at Class- I locations. (This figure differs from that
reported' in the State. 'study. the 48,177 represents reported volumes of all
f of San Diego County not just the San Diego to Escondido corridor used ill the
State study. and shown In Figure A:-VIII-3. )
Additional information on generation of hazardous wastes is needed. Some of
the generated hazardous wastes are pre-treated either on -site or by firms
providing treatment. This reduces the quantity of hazardous waste which
needs to be disposed. Conceivably, generators could be using unapproved
disposal methods without detection.
Starting with-1981, the categories or types of hazardous wastes shown-on•the
manifest have been increased to a total of 75 from the 16 original,categories
as shown on Table A-VIII-4. Thus, the categories shown in that Table will in
the future be increased to the following information:
A-VIII-4i
I. Acid 1,udge
2. Acid solution
3. Adhesive
-4. Alkaline sludge
5. Alkaline solution
6. Alkali, solids
7. Alum sludge
& API' separator sludge
9.. Asbestos -sol ids
10. -Asbestos sludge
-11. Ashes
12. ASD filter,cake
.13. 'Baghouse waste
14. Bilge water
15. Blasting sand
`16.- Capacitors",. PCB
-17, Catalyst
18.:Chemical.s, unused
19: Containers, -empty
20. Contami'nated equipment
'21. Contaminated soil.
22. Cyanides
23. Detergent
24. -Ditti 1 l ati on bottoms
'25. Dri'l l i ng mud
26. Drugs
V. FCC waste
2& Filter cake
29. Filters, spent
30. Flux
31. Fly ash
32'. Gasoline and water
33. Glaze sludge
U. 'GI ue
35. Hair - Pulp
36. Heavy metal solution
37. Heavy metal sludge
38. ink and solvent
39. Ink sludge
40. Ink waste water
41. Laboratory chemicals
42. Lime sludge
43. Machine tool coolant
44. Machining waste
45. Metal dust
46. Oil
47. Oil sludge
48. Oil and water
49. Paint sludge
50. Pesticides-
51. Pesticide containers
52. Pesticide rinse water
'53. Phenolic waste
54. Photoprocessing waste
55. Plating sludge
56. Plating solution, acid
57. Plating solution, alkaline
58. Polychlorinated biphenyls
59. Resin waste
60. Scrubber sludge
61. Scrubber solution
62. Soap
63. Solvent, chlorinated
64. Solvent, hydrocarbon
65. Solvent, oxygenated
66. Solvent, mixed
.67. Spill cleanup residue
68. Stretford solution
69. Sulfide sludge
76. Sump or lagoon sediment
71. Tank bottom sediment
72. Tanning sludge
73. Tetraethyl lead sludge
74. Transformers, PCB
75. Waste water treatment sludge
If a waste is not listed above, the maAlfest requires the generator to
indicate the process, activity, or operation which generated the waste
(Examples: aircraft cleaning, insulation, stripping, reactor cleaning, DDT
production, alkylation, printed circuit board etching). The Contractor must
also identify major hazardous constituents in the waste along with probable
upper and -lower concentrations, and the approximate concentration of
nonhazardous material. A copy of the manifest form is included here.
A-VIII-411
!2
TABLE YIII-4
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A-P-P-E-N-D-I-X A-VII.I-5
'COUNTY OF'SAN DIEGO HAZARDOUS MATERIALS EMERGENCY RESPONSE PLAN
04 COUNTY SAN DIEGO
HAZARDOUS MATERIALS EMERGENCY RESPONSE PLAN
Purpose
The purpose of this plan is to establish responsibilities and actions
required to meet the County's and cities' obligations of protecting
the: (a) lives and health of the populace; ('o) publir and private prop-
erty; and (c) the li,ring and natural resources from. accidents involving
hazardous materials incidents, spills, fires and releases.
Objectives
1. To describe the pre -emergency preparations, concept of operations,
organizations and supporting systems required to implement the
s
plan.
2. To define responsibilities and tasks of each participating agency;
and
3. To establish lines of authority and coordination.
_. Scope -
Local government involvement is focused on discovery, evaluation,
notification, and initiation of immediate remedial actions. This plan
addresses the local responsibilities and actions necessary to meet
these obligations.
This plan covers incidents of spillage and/or release into the atmos-
phere of hazardous materials (oil, toxic chemicals, pesticides, herbi-
cides, biohazardous wastes, and radioactive materials) on land, water
and in the air.
First Responder
The public safety agency that arrives on the scene first, shall call
or request communications to call the County Office of Disaster Pre-
paredness who will notify the State Office of Emergency Services.
A-VIII-5i
Office of Disaster Preparedness
The Manager of the Office of Disaster Preparedness is responsible for
assuring that all appropriate agencies have been notified.
Local Emergency Organizations
All or some of the emergency organizations may have to be activated to
assume their roles in carrying out their responsibilities in connec-
tion with the following:
1. Flammable liquid spills and fires
2. Toxic chemical spills and releases
3. Radioactive materials spills
4. Biohazardous wastes
The extent of activation will be determined by the director of the
agency having on -site authority/jurisdiction.
,Organizations and Key Personnel
The basic organizations fnr, handl i ng hazardous materials emergencies
for the County of San Diego and cities within the County, shall con-
sist of representatives from the following agencies:
A. County Chief Administrative Officer
B: City Managers
C. Chairperson of the Boar6 of Supervisors
0. Mayors
E. County
F. Sheriff's Department and city police departments
G. Area Fire Coordinator and fire departments
H. Departments -of Public Works of the County and cities
I. County Air Pollution Control District
J. County Department of Health Services, Division of Environmental
Health, and Emergency Medical Services
K. County Agricultural Commissioner's Office
L. Private industry representatives, especially hazardous materials
transportation carriers
M. Local hospitals, ambulances, and medical facilities
N. California Highway Patrol ((,HP? and other state agencies
0. State Department of Fish and Game
P. U.S. Coast Guard
Q. Regional 'dater Quality Control Board
A -VI I I -51 i 11..•
04 Concept of Operations
A. Notifications
1- The first public employee becoming aware of an actual or poten-
tial hazardous materials spill or release shall notify appropri-
ate local government communications departments.
2. The public safety agency that is first on the scene will imme-
diately obtain additional significant information and request
communications to call the County Office of Disaster Prepared-
ness, who will notify the State Office of Emergency Services
and report all relevant information. The central office of any
trucking firm or rail carrier that is involved will also be
immediately notified by communications.
3. The public safety agency that is responsible for immediate direct
act4 on,,will then call on other appropriate agencies to take
immediate action to contain and reduce the spread of the material
and its hazardous effects.
4. If a significant number of casualties, potential casualties or
contaminated casualties are involved, immediately notify Coun-
ty Communications to alert the Emergency Medical Services and
the Department of Health Services.
5. Emergency Medical Services is responsible for coordinating treat-
ment of injuries, resulting from any hazardous materials incident
within the County.
B. Stage, R q irements - California Highway Patrol (CHP)
In accordance with Section 2453 of the California Vehicle Code, the
CHP shall establish a single notification mechanism to serve as a
central focal point for a hazardous substance spill response system.
Immediately upon notification, the State of California shall dispatch
an on -site "State Agency Coordinator" (SAC) in accordance with the
A-VIII-5iii
State Hazardous Incidents Plan. The Local agency on -site response
Personnel shall cooperate with the SAC, who may be either a CHP or
CALTRANS.representative.
Immediate ,On -Scene Actions of Emergency Response Agencies
The following actions should be taken by emergency personnel at the
scene:
1. Isolate and contain the area. 'Determine the type of spill and
material(s) involved.
2. Take those steps necessary to protect or save human life and save
property.
3. Restrict traffic in and about the scene to official use only.
4. Take all necessary actions to contain and/or prevent the spread
of the material.
5. If the incident involves fire or materials subject to blowing in
the wind, conduct operations from an upwind position.
6. Isolate and hold all contaminated persons for further examinations
by medical specialists.
7. If there are casualties requiring medical attention, take only
life-saving actions prior to the arrival of an ambulance, quali-
tied hazardous materials specialist and/or physician.
Insure that all medical care personnel and facilities are aware
of possible contamination and of casualty information.
C. On -Site Authority
The on -site authority shall be determined according to the following
circumstances. (The authority, except in radiological incidents,
shall -not be changed or be transferred to another jurisdictian even
though the developing hazardous effects in a disaster spread to sur-
rounding and/or distant areas.)
1. On Highway, Hazardous/Toxic Spills and Releases
Section 2454 of the Vehicle Code and 8574.8 of the Government
Code state that the authority for the management of the scene
A-VIII-5iv I%-.
of an oh -highway, hazardous substance spill and/or toxic sub-
stance spill shall be vested in the appropriate law enforcement
agency having primary traffic investigating authority on the
highway where the spill occurs. (See also Penal Codes 402 and
409.5).
2. All Other Hazardous Toxic Spills and Releases
a. Within -City Limits. If.an incident occurs within the limits
of a city, the Incident Commander, who has over-all opera-
tional control, shall be designated by the city. Each city
shall notify all jurisdictions involved in this plan of its
designated Incident Commander as an attachment to this plan.
b. Unincorporated Areas If an incident occurs within the unin-
corporated areas of San Diego County, whether or not multiple
agencies are involved, the Incident Commander, shall be the
Sheriff, or his designated representative.
D. Evacuation
If evacuation should -become necessary in the judgment of the on -site
Incident Commander, -it shall be the responsibility of the: (a)
Sheriff's Department, assisted by other appropriate agencies, to
conduct an orderly evacuation within the unincorporated areas and/or
(b) the city police chiefs to conduct an orderly evacuation within
the city limits.
E. Recovery and Clean Up Costs
The State Agency Coordinator (SAC) is responsible for coordinating
cleanup and disposal Of spilled hazardous materials occurring on
State and Federal highways. The SAC will assist local government
in 'initiating action to recover clean-up costs on local roads.
Responsibility for clean-up costs on local roads shall be that of
the carrier.
A-VIII-5v
Where the carrier is unknown, clean-up costs only are the responsi-
bility of the affected city and/or County. In the case of private
industry that has a spill or release, clean-up costs shall be the
responsibility of that industry. In the case of private residences
And farms who have spills or releases, clean-up costs shall be the
responsibility of their owner(s).
A-VIII-5vi
to
0
A-P-P-E-N-D-I-X A-IX-1
LITTER SURVEYS
04 In order to determine the nature and extent of the litter problem in San
Diego County, a survey of some 377 litter sites was conducted during the
summer of 1974. Since little discernible change has been noted County -wide,
survey results are presumed to remain valid.
Litter sites were selected by a random sampling procedure which was scientif-
ically weighted to ensure that they were representative of the entire
County.
The composition of'litter in San Diego County was found to be similar for all
,areas and land categories of the County.
TABLE A=IX-1
San Diego County Litter Study
Composition by Typ
B ottl'es
Returnable and Non -Returnable
Metal
Can Tab Tops
Steel Cans
Aluminum Cans
Other Metal
Wood
Plastics
Packaging
Miscellaneous
Cigarette Butts
Paper
Newsprint & Magazines
Packaging
Miscellaneous
Miscellaneous Litter
A-IX-1i
.4%
2.0%
2.4N
1.8%
7.7%
2.2%
4.8%
5.1%
42.8%
.9%
14.7%
13.8%
1.7%
TABLE A-IX-2
WHERE RESPONDENTS THOUGHT 00
THE WORST LITTER PROBLEM EXISTS
PERCENT
LOCATION RESPONDING
Beaches
29
Streets
18
Canyons
15
Alleys
15
Highways/Freeways
4
Parks
3
Other Urban Areas
3
Other Rural AReas
1
Low. Incom6 Areas
1
No Response
1-1
A-IX-1i i
t
A—P—P—E—N—D—I—X A—IX-2
s
WAR AGAINST LITTER COMMITTEE (WALCO) PROGRAMS
4
War Against Litter Committee (WALCO)
Perhaps the most active among the private groups in San Diego County is the
War Against Litter Committee (WALCO), which is supported financially by the
City and County of San Diego. Its objective is "to provide a continuous pro-
gram of publicity, education, cleanup, and improvement in enforcement of laws
with the ultimate goal of a better informed community and a cleaner County."
This program consists of six subcommittees of volunteers that represent a
cross section of interests: Community Committee, Education Committee,
Business and Industry Committee, Media Committee, Construction Committee, and
Municipal Organizations Committee. Through these committees, workshops are
.presented that assign responsibility for proper containerization of all
refuse and identify better waste handling technologies. For the inevitable
few who just don't get the message, the program includes a sensible approach
to enforcement, emphasizing that the old ways of handling waste are no longer
acceptable.
WALCO provides speakers, anti -litter films and literature to schools and to
service and civic organizations. Litter bags, posters, buttons and other
publicity materials are furnished for cleanup campaigns and for general
distribution.
Through WALCO, the,City of San Diego participates in the Clean Community
System program of Keep America Beautiful (KAB), Inc. KAB is a national
public service organization formed in 1953 to combat litter. Supported by
interested companies, trade associations and labor unions, it is active in
media campaigns intended to reduce littering.
Other industry -developed programs are the United States Brewers'
Association's "Pitch -In" campaign and many recycling industries, all of which
are designed principally to reduce the indiscriminate discarding of metal
beverage containers. Many youth organizations, service clubs and other
volunteer groups are active in the litter cleanup programs.
`" ) A -I X-21
The San Diego City and County War Against Litter Committee, Inc.'s goal is to
Ismake the public more aware of the need for their cooperation regarding
litter, conservation, and recycling. The local umbrella program is known as
the "I Love a Clean San Diego" campaign.
CALTRANS - SIGNJESTING
CALTRANS and the "I Love A Clean San Diego" program entered into a study to
determine the effects on littering habits of positive/negative signing on
freeway ramps.
Twelve ramp sites were selected. The testing included semi-monthly cleanup
by CALTRANS. These bags were then collected and, weighed. The testing
included 2-1/2 months of pre -signing and 4 months of post -signing.
Prior to signing the ramps crews picked up litter bags on five occasions, on
two -week intervals and the average weight per bag was 26.55 lbs. After the
signs were posted on the ramps, the average weight per bag was 16.40 lbs.
Thus it, was concluded that on two -week intervals, after the positive signs
TIT
were installed, the litter was reduced by 10.15 lbs. every two weeks.,
UNDERWATER LITTER
The San Diego area scuba divers actively support the Stop Littering Our
Beaches and Bays (SLOBB) program. This is a project of the San Diego War
Against Litter Committee, Inc.
SLOBB, is a cleanup program limited to the beaches and bays. In exchange for
a minimum of 4 hours cleanup the participants receive a SLOBB patch.
The Scuba Divers take part in this for a dual purpose. The Sea and Rescue
Divers use this as a training and refresher course in rescue work. By
displaying the retrieved trash on the beach or docks they are able to stress
the ugliness of, and danger from, this litter.
A-IX-2i1 0
40 Observers realize that throwing trash in the water, over the side of their
boats, or leaving trash to wash out at high tide does not really dispose of
it.
Supported by the San Diego Council of Divers, this effort will continue on a
semi. -annual basis.
' A-IX-2iii
0
A-P-P-E-N-D-I-X A-IX-3
SB650 UTTER GRANT PROGRAMS
The following table provides a summary by jurisdiction of the activities
funded by the State Litter
Grant Program between 1977 and 1981.
Table A-IX-3
USE OF STATE
LITTER GRANT FUNDS IN SAN DIEGO COUNTY
Carlsbad ($9,837)
Support for monthly right-of-way pick-ups
through contracts with local service clubs and
various volunteer pick-up campaigns including
an annual "Spring Cleanup".
Chula Vista ($22,905)
Purchase of equipment for use at local parks
and public buildings; purchase of litter
recyclables; support for Great California
Resource Rally events; personnel for part-time
ballfield and median strip pick-up.
Coronado ($5,320)
Purchase of litter receptacles for public use
areas.
Del Mar ($1,945)
Purchase of litter receptacles and support of
beach clean-up activities.
El Cajon ($13,205)
Purchase of litter clean-up equipment; support
for annual clean-up campaigns and purchase of
litter receptacles.
Escondido ($19,533)
Purchase of litter control equipment.
Imperial Beach ($6,363)
Litter control equipment purchase.
La Mesa ($12,869)
Litter control equipment purchase.
Lemon Grove ($6,492)
Equipment purchase, litter receptacles; sup-
port for the Great California Resource Rally.
National City ($12,247)
Equipment purchase and personnel for litter
pick-up at parks and public facilities.
Oceanside ($20,011)
Litter control equipment purchase.
Poway (In County Total)
Incorporated in 1980, this city is included in
the County program.
San Marcos ($6,845)
Support for volunteer pick-up program, augmen-
ted through contracts with local service
clubs.
Santee (In County Total)
Incorporated in 1980, this city is included in
the County program.
A-IX-3i
Table A-IX-3 (continued)
USE OF LITTER GRANT FUNDS IN SAN DIEGO COUNTY
Vista ($11,591)
City of San Diego ($250,515)
Expand s�reet sweeping operations; support of
"Keep Vista Beautiful Week".
Purchase of a truck and trailer to haul litter
control equipment, and two medium tractors
with front load buckets, support the Equipment
Operators, pay the salaries of a Sanf-tation
Inspector and utility workers, support ser-
vices for the Great California Resource
Rally.
County of San Diego ($161,020) Purchase of 4 crew -cab pick-ups, three self-
propelled vacuum sweepers, 1/2 the cost of a
5-passenger sedan. Expansion of three
separate litter control programs, the first
utilizing honor camp inmates, the second util-
izing "workfare" recipients, and the third a
Parks and Recreation Department program.
Grant funds also supported supervisory person-
nel for the above programs.
A-IX-3ii
L
A-P-P-E-N-D-I-X A-XI-1
MEDICAL WASTE INCINERATORS
�.1
Table A-XI-1
APPROVED INSTITUTIONAL INCINERATORS IN,SAN DIEGO COUNTY
Institution Capacity Institution Capacity
Lbs/Hour Lbs/Hour
Arroyo Vista Convalescent Center 100
Hilltop Convalencent Hospital 100
Euclid Convalescent Center 50
Frost St— Convalescent Hospital 50
Kearny Mesa Conv. & Nursing Home 50
Meadowlark Convalescent Hospital 100
Mesa Vista Hospital 100
S., 0. State -University 75
Spring Valley Sanitarium Inc. 40
,UCSD Campus 150
Wilson Manor 50
Mission Bay Memorial Hospital 50
Paradise Hills Conv. Hospital 100
Bio-Med Com. Dialysis Unit/SoBay 100
Security Environmental Syst. Inc. 675
Beverly Manor Conv. Hosp. 100
Del Capri Terr. Conv. Hosp. 100
Friendship Convalescent Center 50
Grossmont Hospital District 50
Knollwood West Conv. Hospital 100
Mercy Hospital & Med. Center 60
Salk Institute 100
Zoological Soc. of San Diego 175
T.L.C. Convalescent Hospital 100
Villa View Community Hospital 100
Community Conv. Hosp. La Mesa 50
Alvarado Community Hospital 60
Centre City Hospital 50
E1 Cajon Valley Conv. Center 100
U.S. Navy Reg. Med. Ctr. (Pend) 100
Total 3085 Lbs/Hour
A -XI -1
A-P-P-E=N-D-I-X A-XI-2
CONTINGENCY PLAN ELEMENTS
CONTINGENCY PLAN ELEMENTS
a-
Designate the chief and alternate authority to be resonsible for evalu-
ating the nature and requirements of the crisis and to organize and direct
personnel in emergency solid waste collection activities.
b.
Designate alternate communication systems.
c.
Designate alternate equipment storage and servicing facilities.
d.
Arrange for alternate equipment parts, repair services and fuel sources.
e.
Establish equipment maintenance priorities.
f-
Develop public information dissemination methods including public informa-
tion telephone lines and news media outlets for progress reports and
schedules to assist citizens.
g.
Maintain lists of potent;al alternative collection equipment and assis-
Cane from outside the organization, including parent companies, industry
organizatians, municipal staffs, military services and volunteers.
h.
Determine collection service priorites, such as hospitals and other insti-
tutions; if full service in all areas is not feasible.
i.
Develop alternatives to regular collection such as temporary onsite stor-
age of putresibies in sealed bags, or centrally located collection•areas
equipped with roll -offs or similar arrangements.
J.
Designate standby personnel.
k.
Activate training programs for existing personnel to perform collection
•di!tfes. �.
1.
Delineate who will be responsible and what actions wfll be taken to col-
lect, remove and dispose of spilled hazardous materials and oils resulting
from accidents, fires, natural disasters, etc.
N.
Provide for coordination with the County where the emergency extends
beyond local boundaries.
n.
Provide for the periodic review and updating of all phases of the plan.
A-XI-2