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HomeMy WebLinkAboutAgenda - SWAB 020805ORANGE COUNTY BOARD OF COMMISSIONERS MEETING AGENDA Joint Work Session with Solid Waste Advisory Board (SWAB) 5:30 — 7:30 p.m. February 8, 2005 Southern Human Services Center Chapel Hill, NC 5:30 — 6:00 1. Dinner 6:00 — 6:20 2. Board of Commissioner Comments /Questions 6:20 — 6:50 3. BOCC Requested Updates a. Eubanks Road Master Plan (including new solid waste operations center, C &D resale facility, Greene Tract conservation easements, new C &D landfill) b. 3R Fee c. Three Year Solid Waste Management Plan Update; (including steps to address Town of Chapel Hill program /service interests) d. Regulated Recyclable Materials Ordinance (RRMO) e. Landclearing Debris Recycling f. Equipment Replacement Schedule g. Landfill Capacity 6:50 — 7:10 4. SWAB Presentation on Major Issues 7:10 — 7:20 5. Staff Updates 7:20 - 7:30 6. Wrap Up 7:30 7. Adjourn to Regular BOCC Work Session ORANGE COUNTY BOARD OF COMMISSIONERS ACTION AGENDA ITEM ABSTRACT Meeting Date: February 8, 2005 Action Agenda Item No. SUBJECT: Solid Waste Matters DEPARTMENT: Solid Waste Management/ PUBLIC HEARING: (YIN) No County Manager ATTACHMENT(S): As noted in "Background" section INFORMATION CONTACT: Gayle Wilson, 968 -2885 Rod Visser, 245 -2308 TELEPHONE NUMBERS: Hillsborough 732 -8181 Chapel Hill 968 -4501 Durham 688 -7331 Mebane 336- 227 -2031 PURPOSE: To conduct a joint work session with members of the Solid Waste Advisory Board (SWAB). BACKGROUND: Board of Commissioners Comments /Questions: The first section of the meeting agenda is slated for individual Commissioner comments and questions for the Solid Waste Advisory Board and staff, particularly with regard to any items that may not be listed for discussion elsewhere on this work session agenda. No Attachments BOCC Requested Updates: Staff will provide verbal updates and /or review attached background materials regarding several solid waste topics of current interest to the Board of Commissioners. Eubanks Road Master Plan: Staff will briefly review the major facilities and operations, existing and planned, as laid out in the Eubanks Road Solid Waste Facilities Master Plan approved by the BOCC in October 2001. Elements of the plan to be covered include as a minimum: • design and construction of the new Solid Waste Operations Center that will need to take place later this year (the current solid waste offices must be vacated by the end of 2006, when the Town of Chapel Hill's lease for the property on which those offices are situated expires); • interest in developing some type of retail recycling facility at or in the vicinity of Eubanks Road; 2 • an update on development of the new construction and demolition (C &D) landfill that is virtually complete. Attachment 3a -1: 10/01/01 BOCC Resolution Endorsing Implementation Of The Solid Waste Facilities Master Plan Attachment 3a -2: Map Solid Waste Facility Master Plan Attachment 3a -3: Landfill Neighborhood Map Attachment 3a -4: 6126102 Greene Tract Work Group Resolution 3R Fee: Staff will report on what has been a very smooth overall implementation of the Waste Reduction, Reuse, and Recycling (3R) fee that became effective for FY 2004 -05, and provide some data regarding collections to this point. Attachment 3b: 2101105 Staff Memo re: 3R Fee Update Three Year Solid Waste Management Plan Update: As a starting point for discussion, staff . have prepared a draft of a process whereby the staff, BOCC, SWAB, and municipal partners would re- examine the resources, programs, and facilities needed to achieve the County's 61 percent solid waste reduction goal. This would provide an opportunity to address issues that have been raised by the Town of Chapel Hill regarding how additional solid waste system capabilities could be developed to facilitate the possible implementation of a pay -as- you -throw system for waste disposal. Attachment 3c: 2101105 Staff Memo re: Orange County Solid Waste Management Plan Reconsideration /Review Process Regulated Recyclable Materials Ordinance: Staff will report on results obtained since the implementation of the RRMO in October 2002. Attachment 3d: 2101105 Staff Memo re: Regulated Recyclable Materials Ordinance Update Landclearing Debris Recycling: Staff will report verbally on discussions related to the possible creation of one or more County facilities that would provide a convenient, low -cost alternative to Orange County residents who need to dispose of landclearing debris. Such facilities would also provide the County with a reliable means of managing, storing, and processing large amounts of vegetative debris, in the event of major storms. No Attachments Equipment Replacement Schedule: Staff have prepared an updated version of the vehicle and major equipment replacement schedule that was factored into the most recent three year update to the ten year solid waste management plan submitted to the State last year. Attachment 3f.- Solid Waste Equipment Reserve /Replacement Schedule Landfill Capacity: Staff will report on remaining capacity at the County's existing mixed solid waste (MSW) and C &D landfills. Attachment 3g: 1131105 Staff Memo re: Landfill Capacity SWAB Presentation on Major Issues: The Chair of the Solid Waste Advisory Board will report on SWAB activities, accomplishments, plans, and perspectives on key solid waste issues. Attachment 4: SWAB Report to Board of Orange County Commissioners and Orange County Elected Officials Staff Updates: As time permits, staff will provide verbal updates regarding the planned Hampton Pointe recycling center, Southern Village recycling center, landfill gas -to- energy work group initiative, and any other topics the Board or SWAB may request. No Attachments FINANCIAL IMPACT: There is no direct financial impact associated with the discussion at this work session, although various background materials provide cost and revenue estimates associated with certain programs, equipment, and facilities. RECOMMENDATION(S): The Manager recommends that the Board discuss agenda topics with the Solid Waste Advisory Board, and provide appropriate direction to staff. At6�-, f c APPROVED 10 /01 /01 ORANGE COUNTY BOARD OF COMMISSIONERS A RESOLUTION ENDORSING IMPLEMENTATION OF THE SOLID WASTE FACILITIES MASTER PLAN AS A FRAMEWORK FOR THE DEVELOPMENT OF FUTURE SOLID WASTE FACILITIES AT THE COUNTY'S EUBANKS ROAD LOCATION AND OTHER LOCATIONS WITHIN THE COUNTY, AS IDENTIFIED BY THE BOARD OF COUNTY COMMISSIONERS Whereas, Orange County is expected to maintain local waste management responsibilities into the foreseeable future; and Whereas, existing facilities on Eubanks Road are expected to be inadequate for anticipated future waste management operations which may include recyclables processing, waste transfer, construction & demolition debris disposal/recycling, household hazardous waste collections, solid waste administrative facilities, electronics and battery recycling, white goods management, scrap tire management, equipment maintenance /parking, earth products management (mulch/compost), maintenance of closed disposal facilities, environmental education and other solid waste activities the Board may authorize in the future; and Whereas, the Board has previously indicated that the Eubanks Road property will be utilized for solid waste management functions into the future and that additional property may be acquired as necessary; and Whereas, the Board wishes to limit, to the extent practicable, the amount of additional county property to be acquired for solid waste management purposes, while acknowledging that additional property may be necessary to achieve waste management goals or objectives; and Whereas, the Board has requested that a Facilities Master Plan be developed that represents a formal County policy for expansion of solid waste facilities, that provides for protection.of streams in the area, and that will be consistent with the extension of the County trail system; and Whereas, the Board has instructed staff that neighbors of the Eubanks Road facilities be made aware of future plans and be given the opportunity to provide input toward all phases of the plan; and Whereas, the Board will ensure that all waste facilities will be designed to be efficient, aesthetically agreeable, safe, and operationally functional; and Whereas, the Board declares that it has no intention to locate solid waste management facilities on the Greene Tract. NOW, THEREFORE, BE IT RESOLVED: That the Orange County. Board of Commissioners endorses for implementation by staff the Orange County Solid Waste Facilities Master Plan, described in the September 5, 2001 staff memo, and the recommendations therein (and restated below) as developed by the County Solid Waste Management Department staff and presented to the Solid Waste Advisory Board in May and June of 2001 APPROVED 10/01/01 1. Acquire the four parcels (Tax Map References: 7.18..27, 7.18..27C, 7.18.. 27E, and 7.18..27F) totaling approximately 18.34 acres adjacent to the west side of the existing landfill property on Eubanks Road. 2. Adopt the Master Plan for Phase I; and a) authorize the Manager to submit an application to the Town of Chapel Hill for a Special Use Permit Modification for the C &D recycling facilities as necessary b) authorize the Manager to include, with the application, a request for expedited review and to limit development fees to the extent possible c) direct the Manager to implement the Board of Commissioners endorsed landscape buffer plan for newly acquired properties. 3. Adopt the master Plan for Phase II; and a) authorize the Manager to proceed with the necessary permitting and design of the Solid Waste Administration building relocation/refurbishment b) authorize the Manager to negotiate with parties interested in the establishment of a C &D material resale store on or near landfill property. 4. Authorize staff to organize a Eubanks Road/Rogers Road neighborhood meeting to explain/discuss the approved Facilities Master Plan and elicit input from the community regarding specific plan phases, which staff will incorporate into the detailed facilities design and operations plan to the extent possible; and BE IT FURTHER RESOLVED that Board of County Commissioner approval will be required for any significant modifications to the adopted plan and that the Manager is authorized to approve minor modifications necessary to carry out Board approved programs and services. This, the 1 st day of October, 2001. SOL-ID WASTE FACILITY MASTER PLAN EARTH PRODUCTS MANAGEMENT AREA CARDBOARD ACCESS ROAD TO C &D` MAINTENANCE BUILDING TEMPORARY RECYCLING PAD DUKE FOREST C&D `E dYCL11NGf `4 LANDFILL AREA :, � HOUSEHOLD A 11 1� y3: O 3c: cl) G O. GRAPHIC SCALE � lm o 3� wo 1� O (FEET) lhl TEMPORARY OFFICE AND EQUIPMENT STORAGE COUNTY CONVENIENCE CENTER i I 1 / LEACHATE POND ui / �f,. HAZARDOUS <. o i`a FUTURE C &D RESALE FACILITY "14 ; f wasTEd `- , 10 (SCALE HOUSE) £ I / / t / / LANDFILL - ` ►" / BATTERY AND � � 1 U E i ELECTRONICS f / RECYCLING SOLI, WASTE ADMINISTRATION i. -,. C- NEVILLE TRACT i AWWM WN ENGINEERING, INC. �'Mj 'it ' LANDFILL -7 - DIRT /GRAVEL ROAD LANDFILL BUFFER STREAM AND BUFFER op SEDIMENT BASIN - - PROPERTY LINE STRUCTURE --� - -- - ••e POWERLINE EASEMENT C&D `E dYCL11NGf `4 LANDFILL AREA :, � HOUSEHOLD A 11 1� y3: O 3c: cl) G O. GRAPHIC SCALE � lm o 3� wo 1� O (FEET) lhl TEMPORARY OFFICE AND EQUIPMENT STORAGE COUNTY CONVENIENCE CENTER i I 1 / LEACHATE POND ui / �f,. HAZARDOUS <. o i`a FUTURE C &D RESALE FACILITY "14 ; f wasTEd `- , 10 (SCALE HOUSE) £ I / / t / / LANDFILL - ` ►" / BATTERY AND � � 1 U E i ELECTRONICS f / RECYCLING SOLI, WASTE ADMINISTRATION i. -,. C- NEVILLE TRACT i AWWM WN ENGINEERING, INC. LEGEND PAVED ROAD - DIRT /GRAVEL ROAD LANDFILL BUFFER STREAM AND BUFFER op SEDIMENT BASIN - - PROPERTY LINE STRUCTURE --� - -- - POWERLINES POWERLINE EASEMENT APPROVED GREENE TRACT WORK GROUP A RESOLUTION REPORTING THE RECOMMENDED CONCEPT PLAN FOR THE PORTION OF THE GREENE TRACT THAT REMAINS IN JOINT OWNERSHIP WHEREAS, Grange County and the Towns of Carrboro and Chapel Hill acquired the property known as the Greene Tract in 1984 as an asset of the joint solid waste management system; and WHEREAS, title to 60 acres of this property was deeded exclusively to Orange County in 2000 under provisions of the 1999 interlocal "Agreement for Solid Waste Management"; and WHEREAS, under the same interlocal agreement the County and Towns agreed to bargain in good faith during the two year period following the effective date of the agreement to determine the ultimate use or disposition of the balance of the acreage on the Greene Tract; and WHEREAS, the end date of the "bargaining period" as defined in the agreement was April 17, 2002, the second anniversary of the date upon which the County assumed overall responsibility for solid waste management in Orange County; and WHEREAS, the Greene Tract Work Group considered direction from the respective governing boards, comments from interested citizens and organizations, and information developed by staff in response to Work Group inquiries in developing a recommended concept plan for the balance of the Greene Tract; and WHEREAS, the Work Group reported to all three governing boards in a resolution dated March 21, 2002 that it had reached substantial agreement on a concept plan providing for approximately 78 acres to be earmarked for open space protected by conservation easements and approximately 15 acres to be earmarked for affordable housing but had not yet reached agreement regarding what designation should be placed on the remaining 11 acres; and WHEREAS, the Work Group had recommended in that March 21, 2002 resolution that the following additional steps be taken: • The area shown on the concept plan as open space should be protected by executing a conservation easement between appropriate parties o The Board of County Commissioners should consider protecting its 60 acre portion of the Greene Tract by executing a conservation easement with an appropriate party The Chapel Hill Town Council should consider initiating a small area planning process to examine desirable land uses for the Purefoy Road area • The property should be renamed in a manner that recognizes the significance of this area as the headwaters for three important streams (Bolin Creek, Old Field Creek, and Booker Creek) • The governing boards should take note of the public investment already made in the general vicinity of the Greene Tract, as cataloged in an accompanying table; and WHEREAS, the governing boards of all three jurisdictions approved resolutions extending the bargaining period beyond April 17, 2002 in order to allow the Greene Tract Work Group additional time to try to reach consensus on the basic uses to be established for the approximately 11 acres at that time unresolved; and APPROVED WHEREAS, the Work Group received a technical report from the County Engineer outlining the basic alternatives available and approximate costs for providing sewer service to a portion of the Greene Tract, which service would be necessary for the economical and practical provision of affordable housing; and WHEREAS, the Work Group concluded by consensus that "the carrying capacity of the land" should be the determining factor in establishing how much of the unresolved 11 acres should be earmarked for specific purposes, and that the ridge line reflected on the accompanying concept map determines the portion (approximately one - third) of the 11 acres that can practically be used for affordable housing served by a sewer line that would access the Greene Tract via Purefoy Road: NOW, THEREFORE, BE IT RESOLVED THAT the Greene Tract Work Group does hereby recommend that the Carrboro Board of Aldermen, the Chapel Hill Town Council, and the Orange County Board of Commissioners accept the accompanying map as the Work Group's consensus recommendation for a concept plan for that portion of the Greene Tract not deeded exclusively to Orange County, with the acreage to be set aside for open space protected by conservation easements approximating 855.90 acres and the acreage for affordable housing approximating 18.10 acres; BE IT FURTHER RESOLVED THAT the Greene Tract Work Group does hereby recommend to the three governing boards that the acreage for affordable housing be placed in the Land Trust; BE IT FURTHER RESOLVED THAT the Greene Tract Work Group does hereby recommend to the three governing boards that the Managers investigate options for reimbursement of the Solid Waste /Landfill Enterprise Fund for the portions of the site designated for affordable housing and open space; and BE IT FURTHER RESOLVED THAT the Greene Tract Work Group does hereby recommend to the three governing boards that the triggering mechanism for reimbursement to the Solid Waste /Landfill Enterprise Fund should be formal action taken by all three boards to approve conservation easements protecting the designated open space, with such approvals taking effect no sooner than July 1, 2003, and no later than July 1, 2005. This, the 26th day of June, 2002. Moses Carey, Jr. Chair Greene Tract Work Group Memorandum To: John Link, County Manager From: Gayle Wilson, Solid Waste Director Subject: Waste Reduction, Reuse, & Recycling (3 -R) Fee Update Date: February 1, 2005 The following is a summary of the 2004 3 -R Fee: Amount budgeted = $2,569,390 Revenue to Date (Jan. 31) = $2,368,080 Difference = $201,310 Collection Rate = 93.98% Number of Appeals Received = 93 Number of Appeals Granted = 76 Number of Appeals Denied = 11 Number of Appeals in Progress = 6 Number of Citizens Approved by 3 -R Fee Assistance Program (Jan. 31) = 72 Amount of Assistance Provided (Jan. 31) = $3,462 �C_ Memorandum To: John Link, County Manager From: Gayle Wilson, Solid Waste Director Subject: Orange County Solid Waste Management Plan Reconsideration/Review Process Date: February 1, 2005 The current adopted Orange County Solid Waste Management Plan contains several components. The component that is the focus of this memorandum is the waste reduction goal, including the operational /financial means to achieve that goal. In the most recent BOCC approved Solid Waste Management Plan that was submitted to the state earlier this year, a number of substantive changes were made from earlier approved Plans relative to future waste reduction strategies; While the waste reduction goal of 61% was maintained, virtually all of the waste reduction and recycling program improvements /expansions were eliminated. This memorandum discusses how the County could reestablish a long -term waste reduction plan that is acceptable to the stakeholders and is aimed at achieving the adopted 61% goal, Suggested participants in the process include: ® An elected official Waste Deduction Plan Work Group (Work Group) representing 1 or 2 members (as decided by their individual board) from each of the three Towns and County. UNC would be invited to send a representative to the Work Group. Additionally, we would anticipate a SWAB liaison also participate. The Waste Deduction Work Group would meet periodically (3 -4 times) over the course of a year to review and discuss staff work and provide guidance. Additionally, these members would keep their own boards' apprised of the progress and key issues relative to the planning process. • Solid Waste Advisory Board • Board of County Commissioners • Citizens ® Staff Towns of Carrboro, Chapel Hill, and Hillsborough The following represents an outline of a timeline and process that could be followed to: ® reexamine and reconsider the portion of the Plan that serves as the means by which the 61% goal could be achieved, including • residential and commercial recyclable material collection methodologies • equipment and staffing • adding new materials and marketing • regulatory issues • material processing options • financial impacts and funding requirements for the enterprise fund • implementation issues • receive input from the SWAB, the Town's, the public, and the BOCC, and • prepare a recommended revised Plan and have that revised Plan considered and adopted by the three Towns and the BOCC before the next 3 -Year Update to the State required plan is due on June 30, 2006. Suggested Timeline 2004 November - December -Solid Waste staff to examine and identify a scope of work and timeline necessary to reexamine and analyze future waste reduction policy (including recyclables collection and processing options). Staff begins information gathering and analysis and discussions with the SWAB that will continue throughout the process. 2005 Fe — Staff presents to the BOCC a proposed process and timeline to conduct a study reconsidering the County's long -tern waste reduction strategy, including issues previously raised by the Town of Chapel MR. Staff receives guidance and proceeds to implement approved process /timeline. March — Staff discusses approved process with SWAB and defines and discusses the SWAB's role in the process. (SWAB will discuss as necessary at any scheduled monthly meeting or at a special meeting if desired) March/ Apri1- Work Group meets to receive progress update and review work to date, discuss their role and degree of involvement in the process, and to provide guidance /input to the process. (It is assumed that staff will provide certain communications to each TowsIUNC as a precursor to their selection of representatives) April — Staff provides status update to BOCC. Auguust /S tep ember — Work Group meeting to discuss staff analysis. September - Staff provides status update to BOCC and Town Boards (if desired). Public education conducted on the newly proposed Plan elements. October — SWAB sponsors open forum for citizen input. November/December — Staff submits preliminary draft of recommended revised Plan to Work Group and SWAB. Receives feedback on recommendations. 2 2006 Februa. -- Staff submits final draft of recommended Plan to SWAB and then, with SWAB input, to the Work Group. Deceives final input prior to submitting recommendations to governing boards. March - Staff submits final draft of recommended Plan to BOCC, summarizing input from citizen forum, Work Group and SWAB. Public invited to attend and provide input. BOCC provides guidance. April -- Staff submits final draft of Plan to Towns. Towns provide feedback. Requests for any substantive changes by Towns will be shared with BOCC. (This could be done at AOG meeting, if desired) May — Towns endorse revised 3 -Year Solid Waste Management Plan Update to State, which includes revised waste reduction and recycling component. June --- BOCC endorses revised 3 -Year Solid Waste Management Plan Update and authorizes submission of 3 -Year Plan to State (Due June 30). Summer — Star prepares comprehensive implementation plan for adopted Solid Waste Management Plan, including financing, capital, and operational elements. 3 lot6o �� ,, 3 , _14 Memorandum To: John Link, County Manager From: Gayle Wilson, Solid Waste Director Subject: Regulated Recyclable Materials Ordinance (RRMO) Update Date: February 2, 2005 Enforcement of the RRMO over the past year consisted of mainly three areas: amending the ordinance (March 2004), improved communication, and education. Closing Loopholes Some of the measures taken to improve compliance are: • to require all roll -off containers to be serially numbered and to be labeled with the owner's name, • requiring the certified commingled recycling facilities to include the roll -off container numbers on monthly reports sent to our department, • making multiple unannounced visits to the certified facilities to ensure that haulers were properly declaring the county of origin for their loads, • and to improve the method of attaching verification tags to roll -off containers so that they are not lost. Based on this stepped -up enforcement, 4 citations were issued. Three citations were issued for failing label/number roll -off containers, and one citation was issued for burning recyclable materials. There is also one large enforcement issue that is on -going that has resulted in 60 citations for illegal hauling and disposal and may lead to the revocation of a major hauler's license. Communication Also, one of the main goals this year has been to improve communication with haulers and contractors about changes to the ordinance and to provide any assistance necessary to help in compliance. The improved communication has included postcards with ordinance updates, personal phone calls as follow -ups to the post cards, and the creation of an email list to send necessary information. Education The enforcement staff took a 5 -day SWANA course on managing C &D debris. This class was very helpful in providing ideas for recycling options that can be passed onto contractors and haulers. Statistics As of February 1, there have been 258 hauling licenses issued. There were also two facilities that were certified to take mixed C &D debris for recycling: Materials Reclamation. LLC in Raleigh, and PCM Construction Services in Apex. Additionally, Canboro has issued 735 Regulated Recyclable Material Permits (RRMP) and Orange County 1,164. 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N O O l m m 0 0 cn co I- Lo LO m w cq N I •t N O 01:;E CO O m 0 0 0 o mmtot» rCO06M �Mtot» fo � r N Iw R 0 0 t OO mN 00 om :H3 N�eg� m Si n v � w � O �t A O O N O O N m"t o N O m' N M M '-r G M N Q> mi t0 mi m h w to rl) Cl) NW (D N try t» rn � M (m(pp o o m LO m O O M m O W O 1() CC m N aN- FA fff n m ONO N N N N m r 6 m N CM m [R N ems- m O c0 co m000 coNOO O m r 0 Vi N O ER 49 in n !A EA O un N N mi r- r N Mm N r IDS E9 Eo .- to N to V3 tR at O O l m t- O O I M to 0 0 O to O N U) to to m CD 0 o ta Cli 1� my ON 64 m C& 0 0 0 'n 0 0 0 m 0 0 yr to N v v> s� m N to ui 69� ar 000'oisoo'0000 to to to to to to 4T 6% to to Q m CO Q N N ~ N mom .O ~ N m m Z 0 q m 0 o 0 OC m 0 Y m W aI aU Y in FoO R C "9Eq m r22 m of of m m � a m a in .v � m=0 c .mor J u0_j uU� p U 7 a' �.J m U 7 d Q:-i m o b o 0 F -hFF- 0 m v m L U C m E ID U M CD n. m m m C E a c c W m cmn Memorandum To: John Link, County Manager From: Gayle Wilson, Solid Waste Director Subject: Landfill Capacity Update Date: January 31, 2005 The following is a status report on the County landfills. Capacity estimations are subject to a number of variables and therefore are not precise by their very nature. Staf's current best estimate follows: Construction and Demolition Landfill (existing) The current.0 &D landfill, due to incoming waste reductions, is estimated to reach capacity sometime in the fall of 2005. Due primarily to 1) the Regulated Recyclable Material Ordinance and 2) the shifting of waste to out -of- county C &D landfills, C &D waste has dropped from 33,471 tons in FY 2000 /01 to 16,891 tons in FY 2003 /04. This is a 50% reduction within a three -year period. Construction and Demolition Landfill (new) The new C&D landfill is essentially constructed. The associated sedimentation basin has rock in the bottom that must be removed in order to achieve the necessary basin capacity, at which time a submission will be made to the state for an operating permit. This rock is the only known impediment to obtaining the final permit. We have recently surveyed the rock and ascertained the quantity that must be removed and expect to have the rock removed within 60 days. Presently, the expected capacity of the new C &D landfill is 17 years, or 2022. Municipal Solid Waste Landfill An aerial survey is conducted annually and is used to estimate, among other things, remaining landfill capacity. based on the survey from spring of 2004, the MSW landfill is expected to reach capacity the summer to early fall of 2010. Two items of concern regarding the closing of this landfill are: 1) a location for the transfer station is identified and that the transfer station is developed and ready by the spring of 2010, and 2) that financial provisions are made for funding landfill closure, which could exceed two Million dollars. REPORT TO BOARD OF ORANGE COUNTY COMMISSIONERS AND ORANGE COUNTY ELECTED OFFICIALS SOLID WASTE ADVISORY BOARD February 8, 2005 Introduction /Purpose Over the past year, the Orange County Solid Waste Advisory Board (SWAB) has identified as part of its mission the need to increase communication between 'the SWAB and the various county and municipal elected officials who constitute the stakeholders in Orange County solid waste management. While We have made presentations. to the Board of Orange County Commissioners (BOCC) and to the various municipal governing bodies, we have had few opportunities to engage in a dialog with all of these stakeholders. This report attempts to continue.and expand this dialog. It briefly: • presents a summary of present state of solid waste disposal in the county and the associated pending issues facing the solid waste stakeholders; • reviews the mission and membership of the SWAB; • reviews the 2004 accomplishments of the SWAB; • summarizes the scope of the solid waste enterprise in Orange County in terms of performance data; and • details key issues that the SWAB believes the BOCC and other stakeholders need to deal with in the near- to mid -term. Summary of the Present State of County Solid Waste Disposal and Associated Issues The County Solid Waste Department manages four main waste streams. • Construction and demolition debris • Municipal waste • Recycled materials • Green or vegetative waste Page I of.10 213/2005 Construction and Demolition Debris (C&D) - The recently completed construction debris landfill should be sufficient to manage this waste stream for the next two decades. Recent C &D waste reduction and recycling successes have resulted in a significant reduction in disposal revenue. ' Municipal Waste - The existing municipal waste stream management system is sufficient until the year 2010. The current landfill will reach capacity by this date, requiring that a transfer station be in place by late 2009. It is recommended that a process for siting, planning, and constructing this transfer station begin this coming year in order to ensure that the facility is available when needed. Additionally, efforts to identify a long -term regional landfill should continue. If such efforts are successful, that option should reduce transportation costs and potentially allow for joint ownership and reduced environmental and economic risk. The revised Solid Waste Management Plan can be a key tool in outlining the alternatives. How to pay for anticipated landfill closure expenses has yet to be identified. Closure co.sts are expected to exceed $2 million. Recycled Materials — Recyclables are to be managed through existing policies and mechanisms in the current solid waste management plan. The Towns of Chapel Hill and Carrboro have indicated their desire to see further efforts at increasing recycling. It will be difficult to increase the recycling stream at a reasonable cost without some commitments for new alternative approaches to collection and processing. The mechanism for addressing this issue will be the revised Solid Waste Management Plan. This should be an area of interest to be BOCC for the next 18 months. Green Waste - Green waste consists of land clearing debris, residential and non- residential brush and vegetative waste, and storm debris. While the Solid Waste Department is equipped to handle a predictable stream of residential and commercial brush and vegetative debris, the County does not have facilities adequate to manage large amount of land clearing debris and storm debris. This issue is detailed in the key issues section of this report and needs to be addressed by the BOCC this year. Time Line for Solid Waste Activities and Decisions Page 2 of .10 2/3/2005 YEAR 2004 2005 2006 2007 2008 2009 2010 C & D Disposal Facilities A ..Development . - -- ......_ _ C &D Landfill Online and Operational — �_.._ .... -. _— _ _ .._. _.. .._ MSW (Present Landfill) LandF110nline and Operational w� m _ Begin Can Design and Permitting Waste Transfer Station ID. Site Design and Permit — i3ulid^ -- Operational - Bid Out Landfill Source Evaluate Regional Landfill Identify Disposal Options Operational Recycled Materials Revise SW Plan i �_ Implement Plan — J Revise SW Plan Land Clearing and Storm Debris I b Al# & Plain Construct w _. - operational _ ......... Page 2 of .10 2/3/2005 Solid Waste Advisory Board The SWAB was established in September 1999 by an interlocal agreement between the County and the three municipalities ( Carrboro, Chapel Hill, and Hillsborough). The mission of the SWAB, spelled out in the interlocal agreement, is: ... to advise the County's Governing Board on matters related to the [solid waste] System and the Solid Waste Management Plan and Policies." (Section 7, page 10, Interlocal Agreement for Solid Waste Management, August 7, 1999) - The SWAB is composed of two representatives each from Carrboro, Chapel Hill, Hillsborough, and Orange County. There is a non - voting representative from UNC (The University has not signed the interlocal agreement). Finally, there is a liaison representative from BOCC and several members of the Solid Waste Department staff attend the SWAB meetings. Several core members of the SWAB have been active since its inception. The SWAB first met in September 2000 and over the course of the past four plus years has been active in a number of areas. Some of the highlights include: • Rogers Road Neighborhood Water Supply Line — one of the initial tasks for the SWAB was to advise the BOCC on alternative strategies to finance the collateral costs for Rogers Road residents associated with access to OWASA water supply, including meters, hook -ups, and internal plumbing upgrades. The SWAB considered a number of issues of costs and equity and provided BOCC with alternatives, finally recommending a plan that would finance the water supply line while providing financial assistance to those households needing such assistance to connect to the public water supply. • Evaluation of Alternative Fee Structures — a major task for the SWAB has been to identify and evaluate alternative means to meet the financial shortfall incurred by the Solid Waste Management Department. Increased rates of recycling, resulted in lower revenues from landfill disposal fees and increased costs associated with recycling operations, thus requiring additional revenues in addition to those historically provided from tipping fees. As part of this effort, the SWAB again dealt with issues of costs and equity associated with the different needs of the County's solid waste stakeholders, including jurisdictional (County and Towns), socioeconomic, and economic (single residential, multifamily residential, commercial, governmental, non - profit, etc.). The SWAB identified the desirability of a fee -based funding mechanism based upon varying levels of service available to the various stakeholders as opposed to one based on property taxes. • Coordination with Towns and County Officials — as part of -the evaluation and identification of alternative fee structures, the SWAB members engaged in a significant program to educate the Municipal and County elected officials in their activities and in the future needs faced by the County. We are continuing this activity this year. Page 3 of .l0 2/3/2005 2004 Accompfishments of the Solid Waste Advisory Board Most recently, during 2004, the SWAB has been active in moving towards a "larger perspective" with respect to solid waste issues for Orange County. Early in 2004, we provided the BOCC with our view of the solid waste policy issues facing the County, and these remain on the table today: • Continued development of Orange County and recently announced plans for Carolina North reinforces the need to focus on waste reduction and recycling to support the sustainable development of our County and communities. • We continue to see the essential need for a materials recycling facility (MRF) as called for in the [previous] ten year plan. • Principles of sustainable development call into question the future plans for sending solid waste out of Orange County once the current landfill is closed. While the SWAB understands that there have been unsuccessful prior joint efforts with the Triangle Joint Council of Governments to identify a site for a regional landfill,. given the level of development anticipated over the next 50 years by UNC at Carolina North and Orange County in general, we should continue our efforts to evaluate our disposal options, including continued investigations of a regional landfill over which we would share control. • We need to work towards inclusion of UNC in the Interlocal Agreement. Throughout the year, the SWAB has monitored programs and plans of the Solid Waste Management Enterprise. Specifically, this has included review of the Revised Solid Waste Management Plan submitted to the state, as well as plans for additional recycling services and constituents. The County -wide Waste Reduction, Reuse, Recycling Fee (3 -R Fee) as it is now implemented is a modified version of alternative financing mechanism originally proposed in 2003 by the SWAB, and basically incorporates financing mechanisms initially considered by the SWAB. During 2004, the SWAB reviewed and endorsed the 3 -R Fee proposed by the Solid Waste Management Staff. In light of concerns raised by the Town of Chapel Hill (and also by the .SWAB) with respect to the Revised Solid Waste Management Plan, the SWAB in late 2004 began deliberations over options and methodology for further revising the plan based on input from all of the solid waste stakeholders, with a goal of finalizing that plan by early 2006. Solid Waste Performance Data During FY 2003 -2004, a total of 90,892 tons of waste were generated in Orange County. Other than "private" sources, Chapel Hill (garbage and brush collection) was the primary Page 4 of .10 > 1,2nos source of this waste (29.2 percent). The attached figures illustrate the origins of waste by jurisdiction during this period, and the waste by its type and disposal. Additional information is provided in the attached Table 1. Key Issues and Waste Challenges Facing Orange County Based on the .Solid Waste Plan, the current status of our waste management facilities, and the nature of the interlocal agreement, the SWAB has identified four challenges/key issues that. are in need of BOCC attention/consideration over the next year. The County Solid Waste Management Plan The existing Solid Waste Management Plan, as approved in June 2004, no longer includes any reasonable means for reaching the often stated and achievable waste reduction goal of 61 percent. The Town of Chapel Hill has indicated its preference for a complete revisitation of the Plan, with emphasis on expanding materials collected curbside in order to create optimum conditions for success of a Pay -As- You -Throw waste collection fee system. The SWAB anticipates working closely with staff and the BOCC in revising and redeveloping a functional long -term waste management plan that: • expands materials collected to the extent markets allow, • efficiently collects and processes collected materials, • maximizes material revenues, • achieves waste reduction goals; and • garners public support and participation. Solid Waste Management Funding The 3 -R Fee adopted in Fiscal 2004/05 will contribute significantly toward providing fiscal stability for those waste reduction and recycling programs that are unable to fund themselves from material revenues. The Manager recommended a fee structure that would have solidified the necessary funding for these programs and services for several years, or until the MSW landfill closes and/or a new Solid Waste Management Plan is approved and implemented. The recommendation included continuing to rely on surplus landfill disposal revenues as long as they. are available. However, the Manager's recommended fee structure was modified in June just prior to adoption, reducing the projected fee revenue by about $500,000. The BOCC instructed the Manager to obtain the additional $500,000 in necessary funding from the capital reserve fund in order to balance the Solid Waste Budget. The SWAB believes this action will require an increase in the fees for Fiscal 2005/06 to maintain the fund balance appropriate for future equipment replacement and operational needs. The SWAB also strongly supports reestablishment of both capital reserve funds and a reasonable undesignated fund balance of 10 -12 percent. Page S of.10 2/3/2005 Storm Debris Management Orange County continues to operate without a storm debris management plan capable of responding to another major storm event that will inevitably occur. Staff has, for several years, advocated development of a plan including a suitable site for receiving, processing, and storage of such vegetative debris. The SWAB believes that the County continues to be both lucky and vulnerable. Staff has previously suggested, and the SWAB agrees, that a dual purpose facility capable of handling the debris generated by a major storm event, but which also has ongoing daily utility in accepting land clearing and inert debris (LCID) for recycling, is badly needed. Such a facility would receive LCID as a normal daily function, helping to fund the operation and fill a local waste management need, while at the same time maintaining emergency storm debris management capability. This would operate as an alternative to burning and land filling. Most LCID is now hauled out of Orange County destined for cheaper disposal sites elsewhere. There is no-full -scale LCID disposal site in the County although small private sites do operate sporadically. Solid Waste Operations Center The existing Solid Waste Management Department administrative offices must be relocated by December 31, 2006 due to the expiration of an agreement between the Town of Chapel Hill and UNC for lease of the current site. The Town has commenced construction of their new operations center on Millhouse Road and anticipates relocating by that deadline, deconstructing and removing its old facilities as required by the agreement. The Solid Waste Department has shared the existing facilities for several years. The County has purchased a 4 -acre parcel on Eubanks Road and approved that parcel in their Solid Waste Facilities Master Plan as the home for a new Solid Waste Management Department Operations Center. The County has recently received proposals from architects in response to a formal request and staff is preparing to recommend to the BOCC an architectural firm to design the new operations center. The SWAB requests that the BOCC authorize the hiring of the recommended architect and commence to design the new building. The SWAB urges the BOCC to consider incorporation, to the extent practicable, of sustainable design practices and techniques. While these sustainable design elements usually add up -front costs to the design and construction phases, they have proven to be cost effective over time. The SWAB also advocates for a facility of sufficient size and functionality to consolidate the department's many disparate employees, to provide basic amenities that are currently lacking at some existing facilities, and to conveniently serve the many citizens who visit the Solid Waste offices. Should the current County solid waste collections activities be transferred from the Public Works Department to the Solid Waste Management Department, additional space will be required to accommodate those staff and equipment. Page 6 of .10 213/2005 Solid Waste Advisory Board Proposed 2005 Activities For 2005, the SWAB is particularly concerned with development of the revised Solid Waste Management Plan based on input and dialog among the solid waste stakeholders. To that end, the BOCC has asked the solid waste staff for an analysis of means to accomplish the 61 percent recycling goals as well as to address the concerns expressed by the Chapel Hill Town Council and by the SWAB. The SWAB would then hopefully.be involved in all aspects of reviewing and evaluating that analysis, participating in the overall planning process that may also include representatives of the municipalities, and then provide recommendations to the BOCC. The present 3 -R fee does not have a means to equitably assess the commercial sector for waste and recycling services. - In conjunction with development of a revised Solid Waste Management Plan, the SWAB hopes to address the issue of a commercial/industrial fee structure within the existing 3 -R Fee framework. . In addition, the SWAB will continue to deal with immediate issues of solid waste operations as requested by solid waste staff and by the BOCC and County Manager, as well as the long -term issues of disposal/transfer of solid waste, increasing recycling efficiency and efficacy, and maintaining the fiscal viability of the Solid Waste Enterprise. For the Solid Waste Advisory Board: Jan F. Sassaman, PhD, Chair, Chapel Hill Linda Bowerman, PhD, Carrboro Joe Clayton, Orange County Randolph Kabrick, P.E., DEE, Chapel Hill Bonnie Norwood, Orange County Remus Smith, Hillsborough Albert Vickers, PhD, P.E., DEE, Vice Chair, Carrboro 2131 005 Origins of Waste 2003 -04 Town of Town of Carrboro Hillsborough 9% 3% Orange County Town of Chapel - 17% Hill 29% UNC 6% Priva to 36% MSW Recycled by Program MultiFamily Commercial Food Hazardous Wastes 7% 10% 4% Urban Curbside 25% Drop Off + Rural Curbside Commercial Glass 9% 45% Page 8 of.10 2!3/2UU5 Page .9 Of'.1 0 2,"1'2005 Waste Recycled at Landfill by Type 2003-04 14)000 CD 12,000- 10,000- 8,000- —j 6,000- 47000- 2,000 0-, White Tires Vegetative Clean Clean goods Waste C&D Metal Wood Waste Type Page .9 Of'.1 0 2,"1'2005 0 0 0 0 0 0 3 N M O CO IQ U1 0 CSC M M CO CD M N a) a) 4 M r O N N r Cn N O co ti I` f` I` N 0 d L� O N N Im O I co N N� L1� <j I� � a) c E E o � ` U O > > O O t v E m a) ° = 0 0 a r O o >, O O_ *' d O c� 0 U U 2 U o 0 0 0 0 0 Q) N iT U >i N U > O C L Z - O -r r r CO T LC) O NO N O LO LO d' ct CD C N M O N M I- C) N O LID Mrl- CD >+ U r W M T't N O ti 00 0 LQ LO m I` CO r N r I` T 0 Lt7 r ti T T O a) L 9 a 0 18-0 o co CD cf) �rti N N 1 tv� N (( a+ 0 � CL rz .0 3 0 0 0 0 0 0 0 0 0 0 0 0 0 w _ CD LC) CO T r M I: C" O O CA I` 3 L O N O 0 0 0 O T C r 0 co O N c / CO r r .O to C ti CO C O N a) w En # . 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