The Mecklenburg County Experience. w hile. Mecklenburg County didn t set out to. establish an integrated waste management program,

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1 -I 8 0. INTEGRATED WASTE MANAGEMENT The Mecklenburg County n 0 Experience INTEGRATED WASTE MANAGEMENT, THE BUZZ concept of the eighties among solid waste management professionals, was unheard of in the seventies when Mecklenburg County, North Carolina, began searching for alternatives to landfills. As in most communities, long-term environmental concerns, legal barriers, decreasing available land, rising public opposition, and rising costs associated with landfilling prompted the search. Mecklenburg County (total population 470,000) is comprised of the City of Charlotte, (population 385,000), six other municipalities, and an unincorporated area. While Mecklenburg County didn t set out to establish an integrated waste management program, it is well on its way to having one. An extensive recycling program is underway, and a 200 tons per day (tpd) waste-to-energy facility is scheduled for start-up in June. Land has been purchased for an additional resource recovery facility and a state-of-the-art, lined landfill is being designed. No comparable -program - exists in the Southeastern United States, and few exist in the entire country. Mecklenburg s waste management philosophy Cary Saul, deputy director of engineering and Mecklenburg County s solid waste group head, describes integrated waste management as handling solid waste in the best way possible, using all available options, and taking into account the environment, cost, and what seems most practical. He adds, integration is more than just using all the different methods, it also involves everybody; all units of government, the private sector, and general public included. Teamwork among county staff, elected officials, and BY ELIZABETH DORN... Dorn is manager for solid waste recycling for Hazen and Sawyer, a civil and sanitary engineering consulting firm in Raleigh, N. C. She is the former recycling division manager for Mecklenburg County. citizen advisory boards was, and will continue to be, essential to implementing a successful program. In 1977, a group of environmentally-concerned citi- w hile Mecklenburg County didn t set out to establish an integrated waste management program, it is well on its way to having one. e m m a m m a zens approached Mecklenburg County officials to request that recycling centers be established at selected area high schools. The county established five centers and created the Mecklenburg Citizens Committee for Recycling to work with county staff in developing additional recycling programs. Information was shared openly with the committee, which played a significant role in shaping the county s recycling plans. When the county began investigating resource recovery options, the Recycling Committee and another citizens group recommended that the county form the Solid Waste Manage- ment Advisory Board to provide a vehicle for citizeninput in all waste management areas, not just recycling. The advisory board was established and worked directly with staff to draft the Mecklenburg County solid waste management plan, which was submitted to the elected bodies for approval. Public meetings on the plan were held to obtain more citizen input. In addition to teamwork, another key element of the county s waste management strategy is that the entire program is founded on the philosophy that the generation of waste should be prevented or reduced whenever possible and that materials in the waste stream should be reused if their generation cannot be prevented; recycled if they cannot be reused; processed for resource or energy recovery if they cannot be directly recycled; and buried in a sanitary landfill only as a last resort. Mecklenburg County generates 1,800 tons of solid wastes per day, with 85% from Charlotte and 5% to 10% from the six other municipalities. County staff and several consultants researched the potential for implement- Waste Alternatives / The Disposal Crisis

2 _I_ ing these alternatives and developed estimates on how much waste could be managed by each method. These estimates, adopted by the Board of County Commissioners, became the county s planning objectives: Recycle 15% of the waste stream by 1994 and 30% by 2006; Convert 40% of the wastes into energy for sale to businesses and institutions; and Reduce the amount of wastes landfilled from 99% of the total to 30%. A truly integrated program must remain flexible enough to allow for technological advancements, changing market conditions, and other factors that affect goals. Mecklenburg County staf and officials provided for flexibility by building into their waste management plan a process for continual evaluation of programs and facilities, and reassessment of existing and projected needs. The Solid Waste Management Advisory Board reviews the plan annuaiiy and recommends to county o%cials how it should be revised. County staff and Waste Management Board members recently recognized the need for more municipal involvement in the review process, particularly by the City of Charlotte, which generates approximately one-third of the county s wastes. The structure of the Waste Management Board was modified, providing for five City Council appointees. A joint City-County staff technical advisory committee also was established to ensure on-going communication in implementing the waste management plan. This step was critical to recycling, because municipalities in Mecklenburg County are responsible for solid waste collection while the county is responsible for waste disposal; recycling does not clearly fall into either category. According to Saul, two of the county s biggest planning errors were the failure to involve all affected parties early enough in the planning process and the failure to ensure integration in the transportation of solid wastes. The joint technical advisory committee also helped address needs in both these areas. In addition, meetings with the major waste haulers and the six other Mecklenburg municipalities have been held and will be repeated as needed. Everyone must understand funding Nothing is more critical to an integrated waste management program than having the full commitment of elected officials, staff, and the public to the funding process. Funding mechanisms must be developed, and public understanding and support concerning the costs must be obtained for program plans to become reality. In Mecklenburg County, the county manager s office and the Board of Commissioners have consistently ranked all major solid waste projects as high priority items. The county s fiscal year solid waste budget Waste Alternatives / The Disposal Crisis

3 Mecklenburg County is over $35 million; the combined capital and operating budget for the recycliiig programakne totals ov&lmjl- Iimel-. o t ~ ~ - T o n c w e r s o erating expenses. hverwhelmingly approved two separate bond referendums for solid waste management facilities totaling over $98 million: $5.3 million is earmarked for recycling facilities; $29 million for the 200 tpd incinerator; $17 million is for constructing a 575-acre, lined landfill (300 acres plus buffer); and $47 million for future resource recovery projects. One major advantage Mecklenburg County has had, Saul says, is little or no opposition to waste-to-energy facilities. The high level of community support is largely attributed to the county s half million dollar solid waste communications program that has operated over the past five years. The program is designed to develop public awareness and understanding of solid waste management issues, develop support for the county s waste management plan, and promote participation in recycling. The communications program helped gain not only public support, but also support of elected officials exposed to the communications materials. Nevertheless, the public would never have developed confidence in county staff if services were poor or the county was not truly committed to finding alternatives to landfilling. Good management practices have enabled county staff to avoid these problems. Engineering department management is committed to providing quality service. This message has been stressed heavily during departmental retreats, strategic planning sessions, and staff meetings. The department recently conducted a client opinion survey to determine how the public perceived their services. Engineering department staff also received extensive training opportunities to keep them informed of the latest technological developments. Achieving integration The department has completed several reorganizations in response to departmental growth and to increase the efficiency of operations. About a year ago, the organization of the solid waste group was modified, splitting sta f into three divisions: Recycling, Environmental Services (landfilling and heavy equipment, and grounds maintenance), and Waste-to-Energy. Each division is headed by a manager who reports to the deputy director in charge of the solid waste group. Separate budgets are submitted and maintained by each division, although disposal fees are set to cover the operating expenses of all three divisions. The three division managers have equal degrees of authority and opportunity for input in planning activities. This helps ensure that the needs of one division are not given higher priority than those of the others. This internal change was a critical step in achieving integration in the waste management program. It pro- vided strong evidence to the public that Mecklenburg County was as serious about recycling and waste-to-energy as it was about operating landfills. To keep the three divisions operating in an integrated fashion, joint supervisory staff meetings are held every two weeks, joint meetings of field personnel are held once a month, and social events are held two to four times a year. Even minor decisions such as having the same color uniforms for all field staff can impact teamwork among divisions. Mecklenburg County has adjusted its waste management strategy over the years to meet the changing needs of an integrated waste management program. County stafe and officials have leamed through experience that integrated waste management is an on-going process, and that to be successful, the process requires the involvement and cooperation of all parties affected by its outcome. It is an integrated process that will result in an integrated waste management program, Landfilling About 99 percent of Mecklenburg County s solid wastes is currently buried in unlined sanitary landfills. Half of the wastes are disposed in a county-operated landfill; a privately-operated landfill located in an adjacent county receives the remainder. Over the next 20 years, 900 to 1,200 acres of landfill will be needed if the county s waste management plan objectives are to be met. At the current rate of fill, the county facility will reach capacity in three years. Sites have been identified for three additional landfills, and land for two of these has been purchased. - Waste Alternatives /The Disposal Crisis

4 Design work is underway for one of the sites. The State of North Carolina will require engineering devices such as liners and leachate collection systems in all future landfills. Lack of clear guidelines from the state, however, has made design work difficult and expensive. Major delays in the permitting process due to this and other inconveniences will only heighten the critical nature of Mecklenburg County s solid waste problem. Mecklenburg County s Solid Waste Management Plan states that when the resource recovery and recycling programs are fully implemented, landfills will be used only to dispose of non-combustible and non-recyclable materials. Ash from waste-to-energy facilities will be buried in stateapproved landfills, unless options for ash recycling become available. The 200 tpd mass-burn incinerator now under construction will supply steam to the University of North Carolina at Charlotte and electricity to Duke Power Company. The MK-Ferguson Company is constructing and will operate the facility, which is designed with Volund technology.the county is analyzing options for additional resource recovery facilities to reach the 40% goal. Land has been purchased for a 600 to 800 tpd facility, the feasibility of which is currently under review. Private ownership, operation, and financing options are being considered. If constructed, this facility should be operational in One design feature being considered is making the plant expandable, so the county could increase its size at a later date if needed. Recycling Mecklenburg County s recycling operations are integrally linked with the landfill and resource recovery operations. Tipping fees at the disposal facilities are set to cover recycling program expenses. Incentives are built into the fee structure to encourage recycling behavior (See Table 1). Recycling centers are located at all existing disposal sites and will be incorporated in the design of future facilities. Wastes fueling the 200 tpd energy recovery facility will be collected from Charlotte residents who also will receive curbside recycling service. While mass-burn incineration technology will be used, recyclables will be removed from the waste stream via source separation prior to burning. Commercial and industrial wastes recycling programs also are being initiated to divert as many materials as possible before future recovery facilities go on-line. Policies such as mandatory source separation and a ban on the disposal of high value materials like cardboard and aluminum cans are now under consideration and will be implemented if voluntary participation is insufficient to meet the 30% recycling goal. Such incentives place responsibility on waste genera- Currently, 16,000 Meck enburg participate in the curbside recycling program. tors to find outlets for recvclable materials, which in the county s opinion, are valuable products that do not belong in the waste stream. Mecklenburg County also is working to obtain flow control authority from the State of North Carolina. If granted, the county will require all waste generated within county boundaries to be taken to a county-operated or -licensed facility. Recycling activities would be excluded from flow contro!; hmvrver: a flow cnnt!-d ordinaxe s:louid Sect recycling by preventing waste generators from sending wastes out of the county to avoid recycling if mandatory ordinances or bans are imposed. Extensive Recycling Mecklenburg County s recycling program is extensive. Its curbside recycling activities have attracted national attention. The county operates seven, unstaffed, drop-off centers where newspaper, aluminum and bimetal -- Waste Alternatives i The Disposal Crisis

5 beverage cans, and PET bottles are collected. All but one of the centers also accept glass; four take corrugated cardboard. A staffed convenience center for household wastes and recyclables operates three days a week and serves rural Mecklenburg residents. No waste disposal fees are charged, but users must bring in a designated amount of recyclables if they want to dump their garbage. The county plans to add several more drop-off centers for rural residents and multi-family dwellers who will not receive curbside recycling service. Several recycling activities are underway at the county s Harrisburg Road Landfill. A staffed, dropoff center accepts newspaper, glass, aluminum cans, PET bottles, cardboard, scrap metals, used motor oil, and lead acid batteries. Recyclables can used in lieu of paying the tipping fee as shown (See Table 1). The county has a cooperative arrangement with the City of Charlotte, Goodwill Industries, and the Salvation Army to segregate scrap metal obtained through bulky item collections and separate it by grade to maximize sales revenues. Corrugated cardboard is recovered from the active area of the landfill. Vehicles determined by the traffic director to be hauling a large amount of corrugated are directed to dump at a site on the edge of the landfill. Two laborers separate the cardboard, load it into a rear packer truck, and haul it to a local waste paper dealer. This project is a pilot for a larger recovery operation to be conducted at the county s materials recovery facility (MRF) now being designed and scheduled for completion in the winter of The MRF will accept loads containing over 70 percent corrugated boxes in return for a reduced dumping fee and a disposal site more convenient than the landfill. The materials will be fed onto a sorting conveyor where contaminants will be removed. The material will then be conveyed into an automatic baler and shipped to a paper mill. The MRF also will house processing equipment for materials recovered through the county s curbside collection program and drop-off centers. Metro Mulch The tub grinder, which shreds waste brush and tree limbs brought in by landscapers and others, also is located at the landfill. The shredded product, called Metro Mulch, is sold to the public for $4 per yard and is used by city and county departments to landscape public facilities. The county installed a magnetic separator for shredding wooden shipping pallets. The magnet removes nails and other metal fasteners, making the final product acceptable for sale as mulch or fuel for wood-fired industrial boilers. County staff estimate that one-fourth to one-third of all residential wastes is yard wastes-leaves, brush, and grass clippings-making these materials the single largest component in the waste stream and the most important to recover and recycle. In August, 1987, the county hired consultants to design a separate collection, processing, and marketing system for yard wastes and selected other vegetative products. This system, once implemented, will involve the City of Charlotte and other municipalities separately collecting yard wastes and Mecklenburg County processing the wastes. Plans are to operate one 8-acre composting site to serve the three north Mecklenburg towns, and a 22-acre site to serve Charlotte and the remaining three municipalities. The siting process is now underway for both facilities; the smaller site is expected to open later this year and the larger site sometime in Collecting Office Paper Mecklenburg County also collects white office ledger and computer printout paper from all major county buildings. This sewice, named Papr Chase, is h::t to be extended to the new City-County Government Center, which houses 1,000 employees. This building will be used as a model for instituting ofice paper recovery throughout the central business district. The c unty plans to provide promotional materials, technical 4 d marketing assistance, and staff help to participating business during start-up. In February, 1987, Mecklenburg County launched the first phase of a weekly curbside collection program for I Waste Alternatives /The Disposal Crisis

6 Mecklenburg County ' newspaper, glass containers, aluminum and bimetal beverage cans, and PET bottles. Customers receive a red plastic container for storing and placing their recyclables at the curb for collection by one of three specialized vehicles. Each one-man crew sorts the recyclables into one of three compartments on each truck. The materials are further sorted and prepared for sale at a 12,000 square foot processing center operated by the county on an interim basis until a larger facility is established. Currently, 16,000 households receive this service. County-wide expansion of the program will depend on the opening of a 200 tpd processing facility. The City of Charlotte is prepared to provide curbside recycling service to 94,000 households when given notice to proceed by the county. The hope is to have a processing facility operating by the end of Citizens opposed to the site selected for this facility filed suit against the county. The judge has requested that a transportation analysis be performed to determine how to minimize negative impact on the surrounding community. Due to delays resulting from the lawsuit, plus interest from the private sector in operating the facility, the county has hired a consultant to assess privatization options and to prepare a request for bids on the facility, once a decision is made on which option to pursue. During Phase I of the curbside service project, an extensive evaluation was performed; the results are being used to fine-tune the design of the county-wide collection, processing, and marketing system. Selected evaluation results are provided in Table 2. Plastics Recycling Private sector involvement in the curbside recycling program has been extensive. Support, in particular, from Coca-Cola USA and Charlotte-based Coca-Cola Bottling Company Consolidated enabled Mecklenburg County to include PET bottles among the materials collected. This decision placed the county in the waste management spotlight, as both public and private sector representatives watched to see the results of the plastics collection test. Coca-Cola provided the county with a PET granulator, paid for recycling consulting services to help design and evaluate the program, provided promotional assistance, and guaranteed a market for the granulated product. After Coca-Cola's initial assistance, the National Association of Plastic Container Recovery (NAPCOR) assumed.responsibility for providing further assistance. Results of the PET collections have been positive. Of the 72% of households that typically participated, 52.7% included PET bottles among items set out. On the average, 43.8 pounds of PET were collected per household per year. The price paid for color-sorted granulated PET ranged from $0.10-$0.12 per pound for clear material and $0.06-$0.12 per pound for green. Collection efficiencies were not significantly affected by including PET bottles. Market outlets are definitely available for PET. Mecklenburg County, however, had a problem collecting payment from one buyer. The value of PET appears to be climbing. I Coca-Cola provided Mecklenburg County with its PET granulator. On the average, 43.8 pounds of PET are collected per household per year Waste Alternatives / The Disposal Crisis Reprinted with permission from Waste Alternatives