I. INTRODUCTION Proper solid waste and hazardous waste management are essential for adequate protection of the County s natural resources and the public health, safety, and welfare. The potential environmental and health related impacts of solid and hazardous waste facilities and their management have led to a regulatory framework that extends from the federal government to the local government. The focus of this Subelement is to identify existing facilities and programs, perform an analysis of capabilities and responsibilities, and provide strategies for proper management and disposal from the present through 2020. The planning periods for the, analysis, and Plan, includes three time frames: five years (2005-2010), ten years (2005-2015), and twenty years (2005-2025). Solid Waste and Hazardous Waste will be reviewed separately in this Subelement. For a property understanding, the terms Solid Waste and Hazardous Waste should be defined. "Solid waste" means sludge unregulated under the Federal Clean Water Act or Clear Air Act; sludge from a waste treatment works, water supply treatment plant, or air pollution control facility; or garbage, rubbish, refuse, special waste or other discarded material, including solid, liquid, semisolid, or contained gaseous material resulting from domestic, industrial, commercial, mining, agricultural, or government operations. Materials not regulated as solid waste pursuant to this chapter are: Recovered materials; nuclear source or byproduct materials regulated under Chapter 404, F.S., or under the Federal Atomic Energy Act of 1954 as amended; suspended or dissolved materials in domestic sewage effluent or irrigation return flows, or other regulated point source discharges, regulated air emissions; and fluids or wastes associated with natural gas or crude oil exploration or production. (Chapter 62-701-200 (113) F.A.C.) Solid waste has been classified into the following categories: Class I wastes - solid waste which is not hazardous waste, and which is not prohibited from disposal in a lined landfill under Rule 62-701.300 F.A.C. Class III wastes - yard trash, construction and demolition debris, processed tires, asbestos, carpet, cardboard, paper, glass, plastic, furniture other than appliances, or other materials approved by the Department of Environmental Protection that are not expected to produce leachate which poses a threat to public health or the environment. Construction and Demolition Debris means discarded materials generally considered to be not water-soluble and non-hazardous in nature including, but not limited to, steel, glass, brick, concrete, asphalt material, pipe, gypsum wallboard and lumber, from the construction or destruction of a structure as part of a construction or demolition project or from the renovation of a structure, including such debris from construction of structures at a site remote from the construction or demolition project site. The term includes rocks, soils, tree remains, trees, and other vegetative matter that normally results from land clearing or land development operations for a construction project, clean cardboard, 5-1
paper, plastic, wood and metal scraps from a construction project; effective January 1, 1997, except as provided in Section 403.707(12)(j)F.S., unpainted, non-treated wood scraps from facilities manufacturing materials used for construction of structures or their components and unpainted, non-treated wood pallets provided the wood scraps and pallets are separated from other solid waste where generated and the generator of such wood scraps or pallets implements reasonable practices of the generating industry to minimize the commingling of wood scraps or pallets with other solid waste; and de minimus amounts of other non-hazardous wastes that are generated at construction or demolition projects; provided that such amounts are consistent with best management practices of the construction and demolition industries. Mixing of construction and demolition debris with other types of solid waste will cause it to be classified as other than construction and demolition debris. (Chapter 62-701.200 (27) F.A.C.) For the purposes of this Subelement, however, the term solid waste excludes hazardous waste. Hazardous waste means a solid waste regulated by the Department of Environmental Protection as a hazardous waste pursuant to Chapter 62-730, F.A.C. (62-701-200 (54) F.A.C.). In addition several terms for facilities will be used throughout this Subelement. These include: Transfer Station - a facility for the temporary storage of solid waste or hazardous wastes prior to transport to a processing plant or to a final disposal site. For the purposes of this Subelement, only permanent facilities which would require attendance by trained operators will be addressed Processing Plant - a facility designed for incineration, resource recovery or recycling of solid waste prior to its final disposal. This Subelement will address only such facilities as would serve the needs of the County as a whole. The purpose of these facilities may include any or all objectives of reduction of the volume of wastes disposed, energy recovery from wastes or recovery of reusable materials Landfill - the final disposal site of solid wastes, as it implies, involves burial of the wastes. Landfills are classified for regulatory purposes according to the characteristics of the wastes they are permitted to receive. The three types of landfills are defined subsequently in this Subelement II. REGULATORY FRAMEWORK A. Federal The potential environmental impacts of solid waste facilities have led to the development of a network of permitting requirements at the federal level. Impacts on air and water quality are reviewed by the EPA. If dredging and filling activities are involved in a particular development, the ACOE conducts a review. 5-2
For processing plants which will generate electrical power or require tall emission stacks, DEP and FAA review may be required. The National Resource Conservation and Recovery Act (RCRA) of 1976 directed EPA to develop a national program to regulate and manage hazardous waste and provide incentives for states to adopt their own programs consistent with the Act. The National Comprehensive Emergency Response and Compensation Liability Act (CERCLA) of 1980 provided EPA with authority and funds to respond to incidents requiring site clean-up and emergency mitigation (the EPA Superfund Program). This Act also defined the liability of businesses engaged in hazardous waste generation, transport, and disposal, and established enforcement processes. In 1991, the EPA promulgated revisions to the Criteria for Classification of Solid Waste Disposal Facilities and Practices as set forth in 40 CFR Parts 257 and 258. These rules set forth revised minimum criteria for municipal solid waste landfills, as well as, regulations governing the use and disposal of sewage sludge. The State of Florida Department of Environmental Protection has received delegation from EPA to implement and enforce solid waste regulations. B. State and Regional The DEP and the SWFWMD also conduct development review to determine potential impacts on water quality and quantity. Actual construction and operation of solid waste facilities requires further permits and review by DEP. During the late 1970 s the disposal of solid wastes became an issue of great concern in Florida and efforts were initiated to protect the environment and public health from pollution by solid wastes. In 1980, the Florida legislature adopted the Florida Resource Recovery and Management Act (Section 403.701, F.S.). The purpose of this act was to: Plan for and regulate the storage, collection, transport, separation, processing, recycling, and disposal of solid waste in order to protect the public safety, health, and welfare; enhance the environment for the people of the state; and recover resources which have the potential for future usefulness Establish and maintain a cooperative state program of planning and technical assistance for resource recovery and management Provide the authority, and require counties and municipalities, to adequately plan and provide efficient, environmentally acceptable resource recovery and management except for hazardous wastes Require review of the design, and issue permits for the operation of resource recovery and management facilities Promote the application of resource recovery systems which preserve and enhance the quality of air, water, and land resources 5-3
Ensure that exceptionally hazardous solid waste is transported, disposed of, stored, and treated in a manner adequate to protect human health, safety, and welfare and the environment Promote the recycling, reuse, or treatment of solid waste, specifically including hazardous waste; in lieu of disposal of such wastes Promote the application of methods and technology for the treatment, disposal, and transportation of hazardous wastes which are practical, costeffective and economically feasible Amendments to this Act contained in the 1983 Water Quality Assurance Act, included provisions and established funds to create a cooperative hazardous waste management program between local, regional, and state governments. These amendments are discussed in the hazardous waste management section of this Subelement. The Resource Recovery and Management Act contained provisions allowing administrative rules regarding disposal of solid wastes. These rules (Chapter 62-701 of the F.A.C.) include stringent requirements for the construction, maintenance, closure, and post-closure monitoring of solid waste landfills. During the 1988 Florida legislative session, the Florida Resource Recovery and Management Act (FRRMA) was amended. The purpose of the amendment is to improve solid waste management throughout the state. The major components of this legislation include County responsibility for solid waste management and reduction in the amount of solid waste disposed in landfills through a mandatory recycling program. Specifically, the legislation stipulates that counties must reduce the quantity of specified wastes disposed in landfills. All used tires and white goods are restricted from landfill disposal after July 1, 1989, and January 1, 1990, respectively. These wastes consist of materials that can be recycled. Furthermore, used oil and lead-acid batteries are restricted from landfill disposal after October 1, 1988, and January 1, 1989, respectively. The legislation also stipulates that yard trash is restricted from landfill disposal after January 1, 1992. Provisions are contained in the amendment for local governments to reduce their waste stream by 30 percent by December 31, 1994. No more than one-half of this reduction may be met with a reduction in yard trash, white goods, construction and demolition debris, and tires. Policies changed somewhat several years into the program. In 2002, the requirement changed to the mandate to recycle at least four of eight materials (glass bottles, steel cans, aluminum cans, plastic bottles, newspaper, cardboard, office paper and yard waste). The limit on the amount of yard waste, C&D material, tires and white goods that could count toward the recycling goal was also removed. 5-4
October1, 1988 January1, 1989 July1, 1989 January 1, 1990 January 1, 1992 December 31, 1994 July 1, 2002 Used oil restricted from landfill Lead-acid batteries restricted from landfill Counties initiate recycling program Used tires restricted from landfill C&D dbris Segregation White goods restricted from landfill Yard trash restricted from landfill 30 percent of solid waste recycled 30 percent of recycling requirement amended C. Local At the County level, the Citrus County Department of Public Works, Solid Waste Management Division, is responsible for management of the County owned landfill. Private solid waste facilities are permitted by the Department of Development Services, Division of Planning, with consultation from other County agencies, and approval by state agencies, such as DEP. III. INVENTORY AND ANALYSIS A. Collection 1. Existing Situation Solid waste in Citrus County is transported to the County operated landfill located south of SR-44, adjacent to the Withlacoochee State Forest by commercial haulers or by the residents who generate the waste(s) [Figure 5-1]. Approximately 80 percent of the households in unincorporated Citrus County subscribe to solid waste collection service providers. This leaves about 12,500 households with no collection service. The Cities of Crystal River and Inverness have exclusive franchise contracts for collecting wastes generated in their jurisdiction and delivering it to the landfill. Residents who do not subscribe to one of these companies must establish their own means of transporting solid waste to the County landfill. The number of individuals who deliver their own waste to the landfill creates the need for additional personnel and some inefficiency in operation (average of 500 individual visits per day). The existing system has two advantages. First, the County is not involved in the collection system, and therefore, is not required to financially support the service or enforce a regulatory program for private collectors. Second, the existing competitive system serves to keep subscriber costs down. There are, however, problems associated with the present system of solid waste collection. The collection companies have overlapping routes; consequently, as 5-5
they compete for service areas inefficient duplication of efforts is common. Also, collectors are free to offer their services as economic conditions dictate. This leads to varying levels of service throughout the County, with some areas not receiving collection service at all. Because some areas of the County are not served by collectors, and the fact that some residents may be unable or unwilling to pay for collection service, a problem of illegal dumping within the County occurs. Illegal dumping constitutes a danger to the health of Citrus County residents. It attracts and promotes the breeding of vermin who are often carriers of disease and it may introduce contaminants into the aquifer in the form of leachate. The illegal dumping of solid waste from boats into the surface waters is also a hazard to the environment. The County shall take measures to ensure that this practice is eliminated. The County has enforced this through the adoption of a strict marine/lakes/rivers littering ordinance which prohibits this practice and requires convicted litterers to perform community services and pay heavy fines. a. Preventive Measures Alternatives to mitigate the problem of inefficient service and illegal dumping include: County Collection Services - This alternative involves County participation in solid waste collection as either a supplement or alternative to private business Exclusive Franchises - If this option were chosen, the unincorporated County would be divided into service areas and private businesses would contract to serve a particular area. The County would act as the coordinator for solid waste collection Modification of Present System - Under this proposal, several private businesses would operate under County regulations. The presumption underlying this alternative is modification to existing, and the creation of additional, regulations Common to each of the alternatives listed above, is subscription by County residents to a collection service. The extension of collection service to every County residence is the most effective method to reduce illegal dumping. It is indicated in other counties, that the incidence of illegal dumping is considerably lower after the institution of a solid waste collection ordinance. In March 1987 the BCC appointed a committee of engineers, financial planners, and attorneys to recommend various components associated with solid waste collection. These include: A solid waste collection and special assessment ordinance 5-6
Negotiated franchise agreements A negotiated rate structure Determination of specific boundaries for each franchise collection area In June 1988, the consultants work was completed. According to the County s solid waste consultant, Young and Associates (1988), approximately 90 percent of illegal dumping would cease if the County adopted and enforced a solid waste collection and assessment ordinance. In 2001, the County again proposed to establish universal collection. The consultant, R.W. Beck, Inc., prepared a procurement document for selection of solid waste collection contractors to serve the County. However, the process was not completed following negative comments from collectors and some members of the public in a series of public meetings. 5-7
5-8 Infrastructure Element
b. Clean up of Existing Dump Sites The County has initiated a program to clean up existing illegal dump sites. The Citrus County Sheriff s Department, in conjunction with the Citrus County Department of Development Services and the Soil Conservation Service (SCS), began a program in March 1988 to locate and clean up existing illegal dump sites. The first part of this program involved an aerial survey to identify the site. Staff inspected these sites to determine if violations of solid waste disposal regulation had occurred. A report summarizing these inspections was submitted to the County Administrator in late 1988. Following review of this report, a plan to clean up, or remove, the illegal dump sites identified was implemented. This plan utilizes a cooperative approach with affected landowners to clean up illegal dumps. Through adoption of Administrative Regulation 11.05.01, two assistance programs were created. The first program involves a waiver of 50 percent of the tipping fee at the Central Landfill upon submittal of an application. This program has continued until the present (2005) and is administered by Code Enforcement, in the Department of Public Safety. The second program allowed owners of property which has been subjected to illegal dumping, to have their property cleaned by the Department of Public Works utilizing inmate labor, when available. Prior to authorization for this clean up, the owner must approve the work and submit an executed Hold Harmless Agreement to the County. This part of the program has been discontinued. The County also sought grants to cover the cost of illegal dump clean ups for both Class I wastes and illegally disposed tires. Grant funding provided by the State in 2000-2001 allowed the County to identify 67 illegal dump sites and clean up 60 of those sites. Grants are no longer available. When the owners of private property control access to their sites following a cleanup, repeat dumping is reduced. Unfortunately, many of the sites identified in 1988 were repeat sites in 2000. In addition to those efforts, the County added a Code Enforcement Inspector in 2003 whose only responsibilities are investigation of illegal dumping and littering complaints; new cases average about 30 to 35 per month. Other actions taken to reduce illegal dumping include providing fee waivers to Mosquito Control District workers for disposal of illegally dumped tires, and inclusion of tires, bulky waste, appliances and electronics in the residential solid waste assessment, thus making those items a no-pay item for residents at the landfill. The County also supports Keep Citrus County Beautiful Inc. 5-9
2. Future Collection System B. Disposal Universal collection of Class I solid waste, yard waste and recyclables may be addressed in the future. The most likely scenario to trigger this process would involve a combination of the need to control the waste stream and revenues in order to implement disposal contracts, growth including a demographic that expects those services, and higher population densities which would make the process more cost effective and at the same time reduce the undeveloped areas that are often victims of illegal dumping. Solid waste disposal in Citrus County was achieved by open pit dumping until 1975 when the various dump sites were closed and the Central Landfill was opened (Figure 5-2). The Central Landfill consists of cells that are constructed to contain solid wastes. Since 1988, all new landfill cells collect and remove leachate. Current regulations require double liners. 1. Landfills The more common and economically feasible method of disposing solid wastes in Citrus County is the use of landfills. A landfill consists of several individual cells that are specifically constructed (according to Chapter 62-701 F.A.C.) to contain solid wastes. There are two types of landfills: Class I landfills are those which accept for disposal solid waste that is not hazardous waste and material that is not prohibited from disposal in lined landfills (for example, yard waste) Class III landfills are those which receive only yard trash, construction and demolition debris, waste tires, asbestos, carpet, cardboard, paper, glass, plastic, and furniture other than appliances. Class III landfills cannot accept putrescible household waste Yard waste composting facilities operate in accordance with Chapter 62-709, F.A.C. Owners or operators of Class III landfills which were operating on January 6, 1993, were required to apply for modification of their permits to comply with this paragraph no later than January 6, 1994. Construction and Demolition Debris facilities are those which receive debris which meets the definition of construction and demolition debris. These facilities are permitted by FDEP under general permit and must also be permitted and operated in accordance with local regulations. These facilities have largely received the bulk of generated non-class I debris within Citrus County since their development by private landowners. 5-10
Although disposal of Class III wastes in a Class I landfill cell is accepted, the practice is inefficient. Class I cells are specifically constructed to protect the environment from the detrimental effects of Class I solid wastes. This is why costs to construct a Class I landfill cell are considerably higher than costs for construction of a Class III landfill cell. 5-11
5-12 Infrastructure Element
a. Central Landfill Since 1975, Citrus County has been operating a single, Class I landfill for all solid waste disposals. The Central Landfill is located south of SR-44 approximately three miles east of CR-491 (Figures 5-1 and 5-2), adjacent to the Withlacoochee State Forest. A 60 acre facility was used from 1975 through 1990. Since 1990, an adjacent 80 acre parcel has been developed and the older site has been closed and capped. The waste stream has been increasing at a faster rate than population growth. For example, in fiscal year 1994-1995, Class I waste delivered to the facility totaled 62,636 tons for a population of 105,468. This equates to 1,188 pounds per person per year, or 3.25 pounds per person per day. The projected waste deliveries for fiscal year 2004-2005 total 104,300 tons of Class I waste for a population of 132,635. This is 1,573 pounds per person per year, or 4.3 pounds per person per day. Table 5-1 shows a breakdown of the material types delivered to the landfill facility in fiscal year 2003-2004.. TABLE 5-1 WASTE ACCEPTED IN THE CITRUS COUNTY LANDFILL BY TYPE AND QUANTITY FISCAL YEAR 2003-2004 Type of Material Quantity - Tons (1) Class I Waste 96,496 Yard Waste 9,254 Scrap Metal and Freon Units 2,185 Tires 258 Other 615 TOTAL 108,808 Note: (1) Rounded to the nearest ton Source: Citrus County Department of Public Works, Division of Solid Waste Management, 2005 Prepared by: Citrus County Community Development Division, 2005 5-13
TABLE 5-2 WASTE ACCEPTED AT CENTRAL LANDFILL FISCAL YEARS 2000-2001 THROUGH 2004-2005 Class I Waste Fiscal Year Quantity Tons (1) 2000-2001 82,515 2001-2002 88,611 2002-2003 92,612 2003-2004 96,496 2004-2004 104,200* Note: (1) Rounded to the nearest ton *projected based on 11 month date Source: Citrus County Department of Public Works, Division of Solid Waste Management, 2005 Prepared by: Citrus County Community Development Division, 2005 The Division of Solid Waste Management is operated as an enterprise fund. The revenues for capital improvements, operation, long term care of closed sites, recycling programs and maintenance are derived exclusively from user fees (tipping fees). The current tipping fee is $30.00 per ton. The current residential assessment is $25 per household per year. The fees and assessments are periodically adjusted to reflect the cost for solid waste operation. Since the U.S. Supreme Court decision in 1994 declaring local solid waste flow control ordinances unconstitutional, solid waste management revenue has been less assured than in the past. During fiscal year 1996-1997, at least 35 percent of the Class I solid waste collected in the County was diverted to other disposal sites, with a resulting revenue loss. Assessments on both residential and commercial solid waste were instituted in 1997. This allowed a lower tipping fee to be used in conjunction with the assessments which provided economic flow control, an allowable mechanism under the Supreme Court decision. Construction and demolition debris constituted up to 42 percent of the waste disposed in the Central Landfill prior to 1989, when FDEP regulations required separate disposal areas. While some landfills within the state developed onsite segregated disposal, private enterprise has provided a separate disposal option within Citrus County for C&D material. In addition, the C&D landfills that operate within the County accept waste from other locations. Over the years the requirements for operating construction and land clearing debris landfills has increased. The intended use of this type of landfill is the disposal of construction wastes such as scrap wood and bricks. However, 5-14
other polluting construction wastes, such as paint cans and insulation fibers, are often introduced to scrap and construction debris disposal sites, thus the increased regulation at the State level. b. Landfill Expansion The current 80 acre site was opened in 1990 and contains one large cell to be constructed in multiple stages. The cell accepts Class I and Class III wastes. The site has a leachate treatment facility and a recycling collection facility. The current site is operated more efficiently than the previous landfill for several reasons. First, larger compactors result in greater solid waste compaction and, thus, more solid waste will be disposed per cubic yard. Second, improved landfill techniques will allow less soil cover and more solid waste to be placed in the landfill cell. Also, the landfill expansion will be high rised. High rising is the loading of a landfill cell above the ground surface. Finally, the construction of one large cell eliminates the unused space between several smaller cells. The first phase of construction (Phase I) included excavation of a 34 acre, 80- foot deep pit, about half of which was lined. This provided approximately seven years of disposal volume. The second phase (Phase IA) lined an additional three acre area and provided about eight years of disposal volume by filling above grade. Phase 2 (completed in 2005) has a use pattern that is currently uncertain, as detailed below. The life span of the 80 acre site is not known at this time. Depending on the details of cell construction and other uses for the site, it could last over 50 years. The County has a recently constructed (2005) disposal cell, known as Phase 2 that is projected to provide 10 years disposal capacity at full use. The County also is planning a procurement that would result in construction of a transfer station, and a reconfigured citizen service area, along with operation of the transfer station, transport of waste and disposal at an offsite location. If implemented on schedule, waste could be diverted from the landfill as soon as mid-2008. Continued limited use of Phase 2 is desirable in order to postpone costs for closure and to provide a ready disposal location in case of diversion of material unacceptable at the offsite disposal location, emergency storm debris disposal, interruption of operation of the transfer station, the transport system or the alternate disposal location. At limited use, Phase 2 could provide 50 additional years of disposal capacity. The planning horizon for the transfer station is 20 years for the original design, with a requirement to provide a concept for expansion. In conjunction with Phase 2 and transfer station use, there is space to construct one additional disposal cell, by lining the north slope of the current 5-15
excavation. This would allow waste to be placed in the excavation at least up to grade, thus making the rainfall runoff from the disposal area self-draining after closure. The capacity of that cell would provide additional years of disposal space. c. Private Landfills There is one Class III landfill in the County that is not open to the general public. The Monex Corporation operates a solid waste landfill at the Progress Energy Crystal River site in northwestern Citrus County (Figure 5-2). Only flyash generated by the power plants is accepted at the landfill. Throughout the County, there are several landfill sites that accept construction materials exclusively. The County will permit the disposal of construction materials without extensive site preparation because these inert materials do not pose a threat to the environment. A construction debris landfill requires a general permit from the DEP, and a Conditional Use approval as provided for in the Citrus County LDC. Some private landfill facilities are not adequately monitored by the state. Thus, solid wastes other than C & D material may be illegally introduced. C&D landfills are not constructed to contain the solid wastes that are detrimental to the environment and thereby pose a potential source of pollution. The County has taken measures, as time and funds allow, to monitor these sites to preclude illegal dumping of solid wastes in the private landfills. State law allows for the disposal of septage on private lands as a disposal technique. In general, this waste is not harmful to the environment and acts as a fertilizer. However, in some cases, the waste may be disposed of improperly and cause adverse environmental impacts to surface and ground waters. The County monitors entities that dispose of septage to ensure proper disposal techniques are used in areas which will not create adverse health or environmental impacts. d. Closed Public Landfills Prior to the opening of the central landfill in 1975, the residents of Citrus County used various sites throughout the County for solid waste disposal. These sites were not constructed, maintained, or closed according to any of the current standards. Because of this, these sites are potential sources of groundwater pollution. The closed public landfills have no monitoring systems to determine whether pollution is occurring. A comprehensive groundwater modeling or monitoring program will enable the County to determine if the supply of groundwater has been affected (refer to Conservation Element). 5-16
DEP is conducting a survey throughout the state to obtain specific information, if available, on closed landfills, whether public or private. Citrus County provided this information to the state in 2004. 2. Solid Waste Projections a. Quantity of Waste Generated The projected amount of Class I waste to be generated from 2005 through 2020 is indicated in Table 5-3. The projection is based on a Class I waste level of service estimated of 4.3 ppd, which is the current disposal rate, along with population projections from the Bureau of Business and Economic Research. The bulk of C&D material is disposed at private facilities. The largest fraction by weight and volume of Class III material is allowed at C&D facilities. Therefore, rather than constructing a separate Class III cell at the Central Landfill for the remaining fraction, those items are currently disposed in the Class I Central Landfill. At the time the transfer station is put into operation, Class III material may be the only material that continues to be disposed at this landfill. b. Acreage Required for Landfill Disposal Use of Phase 2 and lining the north slope of the existing excavation could provide disposal space beyond the 2020 planning period. It is unlikely that landfill disposal will continue through that time. c. Cost of Landfill Disposal Landfill operation costs are high but remain the least expensive alternative, when comparing local landfills with transfer to regional or out of state landfills or transfer to regional incineration facilities. Capital cost estimates for future landfill facilities, based on construction of the six-acre Phase 2, which was completed in 2005, can be expected to be over $650,000 per acre if excavation is required or about $390,000 per acre without excavation. The current 80 acre landfill site is expected to provide disposal space for Class I waste through the planning period (2020). Alternative site development plans would carry different costs. The preliminary capital cost estimate for development of a transfer station and replacement citizen service area is approximately $7 million. Operation and maintenance costs of all aspects of the solid waste management program (disposal, recycling, long term care, litter prevention and cleanup and 5-17
hazardous waste management) currently are about $4 million per year. Capital facility costs are in addition to this amount. When the transfer station is implemented, it is expected that operating costs, including contracts, will increase to over $6 million annually. The Board has authorized a rate study to be performed after proposals for the transfer station project are received, so that sufficient funding can be in place when capital and operating costs increase. d. Resource Recovery and Volume Reduction Current practices of modern living have led to the consumption of an excessive amount of valuable natural resources, which then enters the waste stream. These solid wastes are often disposed before their useful properties are exhausted. This ultimately forces the local government to utilize a considerable amount of capital for proper waste disposal. One method to extend the use of natural resources and reduce costs for landfill development is resource recovery. Resource recovery is defined as: the process of recovering materials or energy from solid waste, excluding those materials or solid waste under control of the Nuclear Regulatory Commission (Section 403.703, F.S.). 5-18
C. Recycling TABLE 5-3 CITRUS COUNTY CENTRAL LANDFILL WASTE DISPOSAL PROJECTIONS Fiscal Year Population* Class 1 Waste (Tons) 2004-05 128,352 100,724 05-06 130,900** 102,724 06-07 133,360 104,654 07-08 135,820 106,585 08-09 138,820 108,939 09-10 140,740 110,446 2010-11 143,200 112,376 11-12 145,580 114,244 12-13 147,960 116,112 13-14 150,340 117,979 14-15 152,720 119,847 15-16 155,100 121,715 16-17 157,480 123,582 17-18 159,860 125,450 18-19 162,240 127,318 19-20 164,620 129,186 2020-21 167,000 131,053 * Based on Bureau of Business and Economic Research Bulletin 138 Projections of Florida Population by County 2003-2030 **2005 actual was 132,600 Prepared by: Citrus County Solid Waste Management Division, 2005 All Florida counties were required to initiate a recycling program by July 1, 1989. The requirements of the programs were substantially modified in 2002. These programs often included separation of newspapers, glass, metal cans and plastic from the solid waste streams prior to final disposal at the landfill. These waste products are then offered for recycling. Local governments are encouraged to separate and recycle all other plastics, metal, and paper wastes. Also, counties are encouraged to compost all yard trash. Counties must report to DEP each year on the status of their recycling program. Table 5-4 presents the County s waste stream and recycling percentages for 2003 from that report. The report must also include: A description of the County public education program on recycling The amount of solid waste disposed of at solid waste disposal facilities by type of waste such as yard trash, white goods, clean debris, tires, and unseparated solid waste 5-19
The percentage of the population participating in various types of recycling activities instituted The percent reduction each year in solid waste disposed of at solid waste disposal facilities A description of the recycling activities attempted, their success rates, the perceived reasons for failure or success, and the recycling activities which are ongoing and most successful Materials Type TABLE 5-4 MUNICIPAL SOLID WASTE COLLECTION JANUARY 1, 2003 - DECEMBER 31, 2003 POPULATION 2003 125,804 Collected Tons Percent Total Tons Pounds per Capita per Day Percent Recycled Minimum 4 of 8 a) Newspaper 10,620 4 0.46 39 b) Glass 4,108 2 0.18 14 c) Aluminum Cans 3,081 1 0.13 79 d) Plastic Bottles 2,076 1 0.09 17 e) Steel Cans 2,049 1 0.09 42 f) Corrugated Paper 12,737 5 0.55 25 g) Office Paper 2,396 1 0.10 5 h) Yard Trash 51,776 21 2.26 91 Other Plastics 9,216 4 0.40 0 Ferrous Metals 2,228 1 0.10 17 White Goods 424 0 0.02 0 Non-ferrous Metals 2,808 1 0.12 48 Other Paper 17,622 7 0.77 0 Textiles 2,721 1 0.12 0 C&D Debris 99,867 41 4.35 0 Food 10,338 4 0.45 0 Miscellaneous 8,615 4 0.45 0 Tires 1,025 0 0.04 92 Process Fuel NA 0 TOTALS 243,707 100% 10.62 26% Source: Citrus County Department of Public Works, Division of Solid Waste Management 2005 Prepared by: Citrus County Division of Solid Waste Management, 2005. 5-20
In accordance with the new legislation, the County has the option to implement a curbside or centralized recycling program. A discussion of the options is included below. 1. Curbside Recycling Curbside recycling involves source separation of solid wastes. Thus, cooperation from all solid waste generators is needed to implement this program. The two methods of source separation include multi-container and singlecontainer. In the former case, multiple or partitioned recyclable materials containers are used to store the various materials. This method is something perceived as inconvenient and can have an adverse effect on participation. However, operational costs are low since the generator performs waste separation. The second method of source separation involves the use of one recyclable waste container per generator. In this instance, the collector separates the material at pickup. This method may have a higher participation rate, but also higher operational costs. This is the method of collection selected by the County when recycling was first implemented in limited higher density areas of the County. This program, which was quite popular, was very expensive and could not be implemented in the remaining two-thirds of the county due to costs. The County was responsible for assuring the availability of adequate processing for all recyclable solid wastes. Recycling processors are required to prepare the various recyclable wastes for transport out of the County. The processors in the County are currently operated by the private sector. Existing commercial recycling centers have indicated (to County staff) that they have the capacity to process the volume of recyclable wastes produced by County generators. 2. Centralized Recycling A centralized program involves separation of recyclable and non-recyclable solid waste at a central processing facility. This program involves a continuation of the present solid waste collection system. However, the collectors are required to transport the solid waste to a central processing plant, commonly referred to as a dirty Materials Recovery Facility (MRF) instead of the landfill. Personnel at the processing plant separate and segregate all recyclable wastes from the waste stream. The recyclable wastes are then prepared for transport to a regional recycling plant. The non-recyclable wastes are transported to the landfill and disposed. A centralized recycling program has several advantages. First, the County is not required to rely on the cooperation of solid waste generators for solid waste separation. Second, many types of solid waste can be recycled. Thus, the County 5-21
is not limited to four or five recyclable wastes as in curbside recycling. Finally, no specialized collection vehicles and containers are required. However, there are disadvantages associated with this program. Since separation of all recyclable wastes from nonrecyclable wastes is required at the processing plant, a large facility is needed. A plant large enough to process the waste generated in Citrus County would require a large capital outlay. Second, a centralized processing plant is very labor intensive. Finally, in centralized recycling, paper wastes are contaminated when combined with the remainder of the waste stream and thus, recyclability of paper is reduced. Another potential recycling program scenario utilizes waste collection trucks, allows the generator to place all recyclable materials together on the designated collection day and the sorting of recyclables takes place at the centralized facility. When the collected material is all recyclable, the sorting facility is called a clean MRF. This is a common method of recycling, with few of the disadvantages of using a dirty MRF. 3. Dropoff Based Recycling The loss of grant funding from the state prompted the County to find an affordable program to serve the entire County. The current program involves approximately a dozen sites where citizens deliver and segregate recyclables to collection boxes. The County provides site improvements, equipment, and service to deliver the material to a processing facility. Civic groups provide volunteer labor in exchange for revenue from the sale of the recyclables. This program does not have the same level of participation, but can provide broader area coverage at a much lower cost than the previously existing home container pickup program. 4. Recycling Program Cost The cost of operating the current recycling program, including the drop-off recycling program and those items that are managed only at the landfill, such as tires, batteries, electronics, office paper, scrap metal, and yard waste is about $700,000 annually. Capital expenditures for new drop-off locations are not included in the operating cost. Development costs for new sites vary widely in the range of tens to hundreds of thousands of dollars each. 5. Nonresidential Recycling Program Many commercial establishments generate large volumes of recyclable solid wastes. Because of the large volumes generated, it is not practical for commercial establishments to participate in a traditional curbside collection or drop-off program. 5-22
Commercial establishments often experience a decrease in solid waste collection costs due to recycling. For example, a collector may reduce his fee if an establishment agrees to separate their recyclable waste and transfer it to the collector free of charge. The collector then sells the recyclable waste to a recycling center. However, some generators perceive the separation of solid waste as inconvenient, despite the reduced cost for solid waste collection. Through the development process, the County can ensure that commercial establishments participate in County-wide recycling efforts. This is necessary for several reasons. Consistency should always be applied in the enforcement process. Applying regulations to households only is not recommended. Since commercial establishments generate a significant amount of waste, they should become an integral part of the program. To date, no mandatory recycling is in place either for household or commercial establishments. While public programs concentrate on residential recycling; voluntary recycling primarily from the business sector accounted for ten times the volume of public programs in 1995 accounting for 29 percent of the overall 32 percent recycling rate. Commercial recycling still accounts for the vast majority of recycling. Excluding yard waste, the County s recycling tonnage for 2003 was about 15,000 tons, of which only about 3,000 tons were from the drop-off programs. 6. Citrus County Resource Recovery Feasibility On September 22, 1987, the BCC authorized a study to determine the feasibility of alternative solid waste disposal methods. A primary objective of the study was to determine the feasibility of a Citrus County regional solid waste disposal facility. On August 16, 1988, the findings of the study were presented to the BCC. The study indicated that there are three solid waste management alternatives in addition to landfill disposal of raw solid wastes. These include resource/energy recovery, recycling, and volume reduction. Recycling has already been discussed. Resource/Energy Recovery and volume reductions are outlined below. a. Resource/Energy Recovery Resource/energy recovery involves the reclamation of thermal energy and/or materials from solid wastes. Four types of resource/energy recovery facilities, often referred to as waste-to-energy facilities, were investigated for Citrus County. Mass Burning - Mass burning is the incineration of raw solid waste. The energy released is often harnessed for electricity production. The residue ash is disposed in the landfill. 5-23
Refuse Derived Fuel Systems - Refuse derived fuel systems convert solid wastes into various forms of fuel to be used as a supplement for coal, oil, or natural gas. Fluidized Bed - This facility involves use of an incinerator, which utilizes a fluidized bed of sand as a prime combustion medium. Fluidization is achieved by pressurized combustion air passing upward through the bed of sand keeping the bed in suspension. The waste is fed into the bed and the ash exits the reactor through the flue. Pyrolysis - Pyrolysis is the physical and chemical decomposition of organic matter brought about by heat in an oxygen deficient atmosphere. The finished product is an oil-like liquid fuel. b. Volume Reduction The processing of raw solid waste into a condensed form conserves landfill space. The volume reduction methods used prior to disposal include composting, baling, shredding, chipping, incineration, and air curtain destructors. These methods are discussed below. Composting - This process involves the natural decay of organic matter. Composting can be performed with the absence of technology in a resident's yard or under controlled conditions of aeration, temperature, and moisture in a state-of-the-art facility. The end product of composting is a humus-like material, which has useful soil-conditioning properties, such as fertilizer. The end product has value and is sold or offered free of charge to residents, thus eliminating landfill disposal. A full scale municipal solid waste composting program would require identification of a market before implementation. Sumter County has attempted composting of municipal solid waste for over a decade with minimal success and a smaller scale than would be required for the Citrus County waste stream. The disposal of yard waste can be accomplished through composting. Composting may be encouraged on all residential lots large enough to contain a compost pile without becoming a nuisance to surrounding development. Also, a County operated compost area may be designated for those residents wishing to dispose of their yard waste. The composted materials can be managed by offering it free of charge to County residents and by use in public projects. The processing cost associated with this operation ranges between $5.00 and $50.00 per ton (Development Planning Research Associates, Inc., [DPRA] 1981). The cost depends on the level of technology used. Low technology methods involve creating unprocessed yard trash piles (windrows). This method requires large land area and several years for decomposition. High 5-24
technology operations include shredding machines (hammermills), conveyors, mixing machines, and concrete slabs for processing raw yard waste. These operations require less land area and time for processing. Approximately 20 percent of all solid waste consists of yard waste; however, in Citrus County in 2005, only about 3 percent of the total yard waste was delivered to the landfill for management. Current mulching (not composting) costs are about $20.00 per ton. If composting becomes required by regulation, the costs of yard waste handling could double due to the need for increased area, site capital improvements, equipment, and manpower increases. High Pressure Baling - This process involves the transfer of waste materials to a central location. The waste is fed into a hydraulic compressor, which molds the waste into rectangular bales weighing approximately 1.5 tons each. The bales are approximately four feet wide, five feet long, and three feet high. The bales have an average density of approximately 50 pounds per cubic foot or 1,350 pounds per cubic yard. Current operations are achieving approximately 1,200 pounds per cubic yard. Shredding - Shredding of solid waste materials can be used as a preliminary step to baling, composting, and incineration operations. Also, shredding reduces the space that is required for landfill disposal of solid wastes. By utilizing a shredder, the density of solid waste can be increased by 40 percent. Chipping - Chipping involves the reduction of wood wastes to mulch (wood chips). All yard waste, except large stumps and logs can be chipped. Chipping is often a preliminary measure to landfill disposal or composting. Wood chips are useful in landscaping applications. This process is currently used, with the mulch product also being screened to separate the fine and coarse fraction. Incineration - Incineration is a controlled combustion process used to reduce solid wastes into gases, such as carbon dioxide, and a relatively noncombustible, inert residue. The gaseous combustion products are released into the atmosphere with small quantities of particulate matter. The solid residue, or ash, from the combustion process must be disposed in a landfill, and some ash may be considered hazardous. Depending on the nature of the incoming waste, incineration will reduce the volume of the waste by approximately 75 to 90 percent. Air Curtain Incinerator - An air curtain destructor consists of a pit or box lined with heat resistant panels in which certain combustibles, such as untreated wood and yard trash, are burned. An air curtain is a barrier of rapidly blown air (greater than 100 mph). The air is blown at a downward angle, across the top of the pit, and the combustible materials are mixed by the turbulence of the air flow. Since the smoke particles cannot rise through the 5-25