HomeMy WebLinkAbout2010-252A (20)Indian River County
2030 Comprehensive Plan
Indian River County Community Development Department
Adopted: October 12, 2010
Comprehensive Plan
TABLE OF CONTENTS
Solid Waste Sub -Element
INTRODUCTION...........................................................................................................................1
DEFINITIONS.................................................................................................................................1
BACKGROUND.............................................................................................................................3
SolidWaste Master Plan......................................................................................................3
EXISTING SOLID WASTE MANAGEMENT SYSTEM.............................................................4
Generation................................................................................................................4
Collection.................................................................................................................5
Processing/disposal..................................................................................................9
Household Hazardous Waste.............................................................................................13
WaterQuality Monitoring.................................................................................................14
REGULATORY FRAMEWORK..................................................................................................14
FINANCE......................................................................................................................................16
SWDDAssessments..........................................................................................................17
TippingFees......................................................................................................................17
ANALYSIS....................................................................................................................................19
Solid Waste Generation and Cost......................................................................................19
Needsand Cost..................................................................................................................20
Solid Waste Processing/Disposal.......................................................................................20
Projection of Future Demand and Landfill Capacity.........................................................21
Funding and Capital Improvements...................................................................................22
Solid Waste Collection, Storage, and Transfer..................................................................22
Processing/Disposal...........................................................................................................24
Special Waste Handling and Disposal...............................................................................25
GOAL, OBJECTIVES AND POLICIES.......................................................................................26
PLAN IMPLEMENTATION........................................................................................................30
EVALUATION & MONITORING PROCEDURES....................................................................32
Appendix "A", 5 Year Capital Improvements Plan 33
Comprehensive Plan
LIST OF FIGURES
FIGURE 3.C.1
LOCATION OF SOLID WASTE FACILITIES
INDIAN RIVER COUNTY
FIGURE 3.C.2
Solid Waste Sub -Element
PAGF,
on
INDIAN RIVER COUNTY SOLID WASTE MANAGEMENT 7
FACILITIES
Comprehensive Plan
LIST OF TABLES
TABLE 3.C.1
2005 Recycled Materials
TABLE 3.C.2
SUMMARY OF SITE OPERATING PERMITS
TABLE 3.C.3
SWDD TIPPING FEES AS OF MAY 1997
TABLE 3.C.4
POPULATION PROJECTIONS
TABLE 3.C.5
SOLID WASTE SUB -ELEMENT
IMPLEMENTATION MATRIX
TABLE 3.C.6
SOLID WASTE SUB -ELEMENT
EVALUATION MATRIX
Solid Waste Sub -Element
11
16
H
20
30
32
Comprehensive Plan
INTRODUCTION
Solid Waste Sub -Element
In Indian River County, residents and commercial/industrial establishments produce an average of
2.4 tons per capita per year of solid waste (Duncan & Associates, 2007). In addition, the County
generates hazardous waste. Some is considered household hazardous waste, but the bulk comes
from businesses and industry.
This sub -element will identify and analyze Indian River County's existing solid and hazardous waste
management practices and facilities, project future waste generation levels, assess the adequacy of
current facilities, and establish goals, objectives, and policies.
DEFINITIONS
Average Annual Per Capita Landfill Capacity Consumption Rate: A consumption rate based on
2.5 cubic yards per person per year.
Commercial waste: Waste generated by commercial and institutional entities. These wastes
have physical characteristics similar to residential wastes, consisting largely of combustible and
degradable materials such as paper and food waste.
Customer Convenience Center (CCC): A drop-off facility for solid waste, recyclables, and
household hazardous waste delivered by County residents for transportation to the County's landfill
site for ultimate disposition.
Hazardous waste: Waste which, because of its characteristics, has the potential to cause or
significantly contribute to injury, illness or death and which could present a potential danger to
human health if improperly transported, stored, treated, disposed of or otherwise managed.
Industrial waste: Solid waste generated from industrial sites, excluding hazardous wastes. These
can include general industrial housekeeping and support activity wastes.
Landfill: The final disposal (burial) site of solid waste which has not been or cannot be recycled.
Per Capita Waste Generation Rate: Average quantity of total solid waste generated annually
by each resident. This is equal to 2.4 tons (Impact Fee Update, Solid Waste, Duncan & Associates,
2007).
Recycling: Any process by which materials otherwise considered to be solid waste are collected,
separated, processed and reused or changed into raw materials or new products.
Residential waste: Mixed household solid wastes, including yard trash.
Resource recovery: The process of recovering usable materials and/or energy from the
municipal solid waste stream.
Community Development Department Indian River County 1
Comprehensive Plan
Solid Waste Sub -Element
Solid Waste: Garbage, refuse, yard trash, land -clearing debris, ash, sludge and other discarded
material resulting from domestic, industrial, commercial, mining, agricultural or governmental
operations.
Special waste: Construction and demolition debris, yard trash, white goods, and waste tires.
Waste Generation Unit: A weight unit equivalent to 1 ton (2000 pounds) of solid waste.
Community Development Department Indian River County
Comprehensive Plan
BACKGROUND
Solid Waste Sub -Element
Prior to 1977, small landfill operations existed in six locations throughout the County. The old
dump (landfill) sites are as follows:
Roseland Landfill (east of Roseland Road): This landfill is currently closed with a portion
used as a Customer Convenience Center (CCC).
Wabasso Landfill (west of 58th Avenue and south of 85th Street): This landfill is currently
closed.
- Winter Beach Landfill (south of 65th Street and west of Old Dixie Highway): This landfill is
currently closed with a portion used as a CCC.
Gifford Landfill (south of 41st Street and west of 43rd Avenue): This landfill is currently
closed with a portion used as a CCC.
Oslo Road Landfill (Old Dixie Highway and 1 st Place): This landfill is currently closed with
a portion used as a CCC.
Dodger Pines Landfill site (north of 26th Street and west of 43rd Avenue). This landfill is
currently closed.
Of the six former dump sites referenced above, all except the one at Dodger Pines were maintained
by the County. The Dodger Pines site was a city of Vero Beach dump site.
In 1977, the Indian River County Board of County Commissioners (Board) established a centralized
county landfill at the current landfill site south of Oslo Road and west of 74th Avenue. The first
constructed landfill, Segment I, was unlined (it was not required to be lined at the time) and operated
until 1989. It was then closed, and the lined Segment II, the current operating landfill, was opened.
Solid Waste Master Plan
In order to determine future solid waste needs, the County, in 1985, commissioned a solid waste
study. The result of that study was the Indian River County Solid Waste Management Master Plan
(Solid Waste Master Plan). As recommended by that plan, the County then established a Solid
Waste Disposal District (SWDD). The SWDD is structured as a dependent special district.
Since 1985, the Solid Waste Master Plan has been updated several times. According to the adopted
plan, the specific programs, projects, policies, and direction of the solid waste management system
are to undergo periodic review and update. The focus of such reviews is expected to include the
following:
Update of waste stream and capacity forecasts;
Community Development Department Indian River County 3
Comprehensive Plan
Solid Waste Sub -Element
* Evaluation of how the useful life of the existing landfill has been extended or can be
extended through source reduction, recycling, and landfill development; and
* Review of disposal charges, bonding requirements and the role and effectiveness of the
SWDD.
Overall, the Solid Waste Master Plan provides specific guidance for solid waste management within
the County. Many of the policies of the Solid Waste Master Plan are similar to the policies of the
solid waste sub -element of the comprehensive plan.
EXISTING SOLID WASTE MANAGEMENT SYSTEM
To varying degrees, all land uses produce solid waste. This waste then must be handled in one of
several ways. Most commonly, solid waste is disposed of in a landfill. As more land is needed for
disposal, the threat of groundwater pollution increases, and the cost for construction and operation of
the landfill also increases. For those reasons, recycling and other alternatives to disposal have
recently come under serious consideration.
Currently, Indian River County maintains the County landfill facility for the disposal of solid waste
produced in the County. The solid waste system, however, involves more than just the disposal of
solid waste; it also involves the generation and collection of such waste. This section addresses
these three components.
Presently, the county's solid waste system consists of franchised solid waste collectors; five
customer convenience centers (Figure 3.C.1 shows the location of solid waste facilities in Indian
River County); a disposal system (Figure 3.C.2 shows the locations of the county's solid waste
management facility); a hazardous waste management program; and a recycling program. In the
incorporated areas of the County, solid waste collection is the responsibility of the respective
municipalities. In the unincorporated area, the SWDD Board has the legal authority to award
franchises to private haulers. Currently, two franchised haulers, Treasure Coast Refuse and Waste
Management Inc. of Florida, provide curbside collection services in the county's unincorporated
area.
Generation, collection, and processing/disposal are the three elements of municipal solid waste
management. Each must be considered when assessing a municipal solid waste (MSW) system.
Generation
Given the solid waste tonnage produced by residential, commercial, industrial, and special waste
generators, Indian River County's unit contribution rate of solid waste averages 2.4 tons per
capita/per year for the County's permanent population plus weighted seasonal population. The solid
waste industry weight standard is the short ton. A short ton equals 2,000 pounds.
Based on this unit contribution rate, the annual per capita solid waste generation is estimated to be
4,800 pounds (lbs), of which approximately one third is recycled and the remaining two thirds is
landfilled. According to SWDD records, the average annual per capita landfill capacity consumption
rate is approximately 2.5 cubic yards (Solid Waste Management Master Plan, 2007 update). The
Community Development Department Indian River County 4
Comprehensive Plan Solid Waste Sub -Element
landfill volume is the principal factor in projecting landfill needs and in creating level -of -service
standards.
At present, the County has 275 acres of land for solid waste disposal. As of 2005 approximately
1.09 million cubic yards of solid waste mass had been accumulated at the landfill site. Based upon
the average compaction densities achieved by the SWDD from 1996 through 2006, the annual
landfill capacity required by the County is approximately 2.5 cubic yards per capita. According to
projections for the year 2030, the landfill facility will require additional capacity of 9.6 million cubic
yards for solid waste disposal (Solid Waste Management Master Plan, 2007 Update).
Although there are slight variations in the seasonal generation of solid waste, the spring months
continue to have the highest generation rates, with lower generation rates occurring in the fall and
winter months.
Funding
For Fiscal Year 2007/2008, the operation costs of the SWDD were $11,356,000, while revenues
were $12,489,000. To fund orderly expansion and operation of the solid waste facilities, the County
uses non-advalorem assessment programs and user fees.
Collection
In this plan, collection refers to the system by which solid waste is transferred from the point of
generation to processing or disposal facilities. This also involves a transfer/storage component. The
transfer/storage component is an intermediate step between collection and disposal. Transfer/storage
has been employed to maximize cost efficiencies in the transportation of solid waste from the point
of generation to the point of disposal. In Indian River County, the transfer/storage system
supplements the curbside and door—to-door collection services.
Overall, the solid waste collection system involves transporting waste from individual land uses or
points of generation to the county landfill. Presently, there are three primary methods of solid waste
collection. These are as follows:
door-to-door collection by the City of Vero Beach;
curbside collection in the unincorporated County and the other municipalities by private
haulers; and
individual transportation of solid waste to County CCCs or the landfill.
Community Development Department Indian River County 5
Comprehensive Plan
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Solid Waste Sub -Element
Figure 3.C.1
Location of Solid Waste Facilities
County Landfill and Customer Convenience Centers
Indian River County
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Community Development Department Indian River County 6
Comprehensive Plan
Solid Waste Sub -Element
Figure 3.C.2
Solid Waste Management Facility (County Landfill)
Indian River County
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Community Development Department Indian River County 7
Comprehensive Plan Solid Waste Sub -Element
• Residential Collection
Within the County, residential solid wastes are collected in one of the following ways:
Drop-off
In addition to the landfill, five CCCs operate throughout the County. At any of the five CCCs and
the landfill site, County residents can at no charge drop off solid waste, waste that is to be recycled,
and household hazardous waste. In Fiscal Year 2007/2008, less than ten percent (10%) of the
County's residential solid waste was processed through the five CCCs. The cost for operation and
maintenance of the five CCCs and transportation of the waste material to the landfill site is about $2
million per year.
The five CCCs are open and manned five days a week from 7:00 a.m. to 6:00 p.m., while the landfill
site is open 7 days a week from 7:00 a.m. to 5:00 p.m. All CCCs are closed on Wednesdays, but
three of the CCCs are also closed on Tuesdays, with the other two CCCs closed on Thursdays. Each
CCC has 40 -yard roll -off containers designated for household waste and yard waste, segregated
containers for recyclables, and designated areas for various other materials such as bulky materials,
tires, batteries, etc. The Oslo, Fellsmere and Winter Beach CCCs also use transfer trailers equipped
with walking floors for transportation of household waste. Materials collected at the CCCs are then
transported by the SWDD to the landfill for disposal or for processing and transportation to
recycling markets.
Recently, the SWDD completed the expansion of the Fellsmere CCC, increasing its size by four
acres to 5.36 acres and remodeling the facility at a cost of $2,000,000. The facility uses 135 -cubic
yard transfer trailers equipped with walking floors, instead of 40 cubic yard -rolloff containers to
transfer MSW to the landfill site. This mode of transportation reduces the number of trips necessary
to transport the waste to the landfill site in comparison with the 40 -cubic yard containers, and thus
offers significant savings to the SWDD. The SWDD also plans to expand the Oslo CCC and build
a new facility at the site. Because solid waste collection remains voluntary by subscription only, the
CCCs continue to allow County residents to drop-off solid waste and recyclable materials without a
fee.
Residential Curbside Collection
Under current franchise agreements, the County is split into two service areas for residential solid
waste and recycling collection. While Waste Management Inc. serves the northern part of the
County, Treasure Coast Refuse serves the southern part of the County. Currently, the cost of
collection is about $14.32 per month for residential customers. Residential waste collection also
includes separate collection of yard and garden trash. All County residents, regardless of whether
or not they subscribe to a trash collection service, receive curbside or neighborhood recycling
collection service. Through inter -local agreements, residents in all municipalities within the county
also receive SWDD recycling collection service.
Community Development Department Indian River County 8
Comprehensive Plan Solid Waste Sub -Element
Unlike other municipalities within the County, the City of Vero Beach operates its own trash and
yard waste collection service. To provide City residents with enhanced recycling collection and
back -door recycling collection service, the City of Vero Beach separately contracts with Waste
Management, Inc. While the City of Sebastian and the City of Fellsmere contract with Waste
Management, Inc. for curbside residential solid waste collection, the Town of Indian River Shores
contracts with Treasure Coast Refuse for curbside residential solid waste and recycling collection.
• Commercial Collection
Both franchised haulers (Waste Management, Inc. and Treasure Coast Refuse) collect commercial
trash and recyclables from customers throughout the County, and are not limited to north/south areas
as with residential collection. Because no mandatory commercial collection exists within the
unincorporated areas of the County, commercial establishments must contract directly with a hauler
for trash and/or recycling collection services.
Processing/Disposal
The processing/disposal component of the SWDD solid waste management system includes
separation, volume reduction, special waste disposal, recycling and landfilling. In Indian River
County, there is only one active solid waste landfill.
• Solid Waste Landfill
Located at 1325 74th Avenue S.W., the current County landfill site occupies about 275 acres. The
SWDD also owns approximately 300 acres of land immediately north of the landfill site, referred to
as the northern expansion area. In 2006, the SWDD Board decided not to develop this area for
future landfill expansion and to confine future additions of landfill capacity to the 275 -acre landfill
site.
Physically, the landfill site is generally flat, as is typical of the area. On site, clean stormwater
runoff is channeled by a system of swales to a sedimentation pond from which the overflow is
directed through a single outfall into a drainage canal operated by the Indian River Farms Water
Control District (IRFWCD). Overall, the site is fairly isolated. With respect to drainage, it is
surrounded by canals of the Indian River Farms Water Control District.
At the landfill site, soils are poorly drained and comprised of sands, silts and clays with varying
permeabilities. The soils include a number of layers of relatively impermeable silts and clays which
are, for the most part, discontinuous over the site. The overall shallow aquifer is about 100 to 150
feet thick at the site. Beneath this aquifer is the Hawthorne Confining Unit, which is about 125 to
200 feet thick and overlays the deep Floridan Aquifer.
The Indian River County landfill site contains two separate landfills: a Class I landfill (Segments I
and II and the Infill Area connecting the two segments) and an unlined Construction and Demolition
(C&D) debris landfill. Additionally, a 5 -acre parcel, located within the northern expansion area, is
dedicated for grinding of all vegetative debris received. Since June of 2005, all C&D debris has been
landfilled on the side slopes and top deck of the unlined Segment I. In 2007, the SWDD Board
Community Development Department Indian River County 9
Comprehensive Plan Solid Waste Sub -Element
decided to discontinue the separate disposal of C&D debris in an unlined landfill, because of the
potential danger of groundwater contamination from accidental release of contaminated leachate,
and switched to codisposal, whereby the C&D debris is landfilled in a lined Class I landfill
commingled with MSW.
On the landfill site, the following improvements exist:
* A scale house for weighing materials entering the landfill;
* An administration building housing SWDD administrative offices;
* A yard trash site for processing yard trash such as bushes, trees, etc.;
* A recycling operation for processing recyclable materials;
* A household hazardous waste storage facility to store hazardous waste before the wastes are sent
to processing facilities;
* An Active Class I landfill cell for disposal of solid waste entering the landfill;
* An Inactive C&D debris landfill;
* A stormwater pond for treatment and on-site storage of clean stormwater run off;
* A landfill gas management system; and
* A biosolids dewatering facility (estimated construction completion March 2010).
Currently, SWDD's 5 -acre yard waste area encompasses both disposal and recycling activities. This
area is manned seven days a week by a contractor who is responsible for grinding all vegetative
debris received. In 2008, approximately 54,000 tons of yard waste were received and processed. Of
this tonnage, the SWDD used approximately 12,000 tons of ground vegetative debris on site for
daily cover at the Class I landfill. The contractor transports the balance off site.
Recently, the plans for future Segments 3, 4, and 5 of the Class I landfill were changed to establish
one new segment, Segment 3, with four phases of development. Also, the County decided in 2007
to abandon plans to develop a new cell (Cell 2) for C&D debris disposal, and decided instead to
commingle C&D debris with MSW in a lined Class I landfill.
As of 2005, approximately 1.09 million cubic yards of solid waste mass had been accumulated at the
landfill site. In order to accommodate the amount of solid waste projected through the year 2030,
the landfill facility will require an additional 9.6 million cubic yards of disposal capacity for Class I
solid waste and C&D debris. With the current available capacity plus the scheduled addition of the
vertical expansion and proposed Segment 3, the landfill's design capacity is estimated at 13.5
million cubic yards.
At present, the processing of solid waste remains the same as it was in 1995, with solid wastes
separated by type. As in the past, the processing of waste differs according to the various waste
types, and separation continues to occur at the source of production, at the CCCs, and at the landfill
site. To ensure safe processing and disposal of the County's solid waste and to minimize
environmental impact by following Federal and State standards and regulations, the SWDD
continues to monitor the landfill site.
For volume reduction at the landfill site, the County contracts for tire removal and for yard waste
grinding services. While tires are hauled off-site, a portion of the ground yard waste is used for
Community Development Department Indian River County 10
Comprehensive Plan
Solid Waste Sub -Element
coverage on the Class I landfill, and the remaining yard waste is hauled off-site.
Currently, sludge, screenings and grit from the County's wastewater treatment plants are dewatered
and disposed of at the County landfill. Recently, the SWDD obtained Florida Department of
Environmental Protection (FDEP) permits for construction and operation of a sludge dewatering
facility at the landfill site. This facility is presently under construction and is scheduled to be
complete by March 2010. Septage is also currently disposed of at the County landfill.
• Recycling
In response to the Florida Solid Waste Management Act of 1988, Indian River County established a
recycling program. Since May 1997, this program has included curbside or neighborhood residential
recycling collection available to every residence in the County, both single-family and multi -family.
In addition, residents may bring their recyclables to any of the five CCCs in the County or to the
landfill site.
As structured, the countywide recycling program includes curbside collection services for single-
family homes and either pick-up or drop-off service for businesses and multiple family
developments. To avoid concentrating recycling activities on only one or two materials, the State of
Florida does not allow everything that is recycled to count toward a community's recycling goals.
Consequently, the SWDD applies only a portion of the ground yard waste used for daily coverage of
the landfill toward the County's recycling goal. Additionally, the SWDD contracts with a private
company to remove all tires from the landfill for recycling into fuel and road base material.
During Fiscal Year 2007/2008, approximately 54,000 tons of recycled solid waste were collected.
This amount represents 23% of the total solid waste stream in the County. During Fiscal Year
2007/2008, the County recycled the following amounts of materials (Table 3.C.1):
TABLE 3.C.1
2008 RECYCLED MATERIALS
MATERIAL
ITONSRECYCLED
Glass
1 1,489
Aluminum Cans
1141
Plastic
707
Clean C&D
111,038
Yard Trash
32,996
Tires
463
Scrap Metals
871
Corrugated
858
Newspaper
4,788
Steel Cans
180
Mixed Rec clables
58
TOTAL
53,589
Community Development Department Indian River County 11
Comprehensive Plan Solid Waste Sub -Element
Until late 2008, the County recycled seven items. These were plastic #1 and #2, steel cans,
aluminum cans, clear glass, brown glass, green glass, and newspapers. At that time, waste haulers
had to collect these items, separate them at the curb, and place them in one of the recycling truck's
seven separate compartments. If one of the seven compartments was full, then the driver had to
travel to the landfill to empty the recycled materials before he could collect more. Since the
recycling trucks had only seven compartments, there was no room to add additional materials to be
recycled.
Presently, the County collects all non -newspaper recyclables together and sends them to regional
facilities for separation. This procedure was instituted after the SWDD decided that it would be
beneficial to collect newspapers separately and collect other recyclables combined. By collecting all
non -newspaper recyclables together, many other items, such as plastic #3 through #7, corrugated
cardboard, phone books, and magazines, can be recycled. This, in turn, further reduces the
quantities of material that are sent for landfill disposal.
Waste to Energy Conversion Facility
Another new method for reducing the amount of solid waste requiring landfill disposal is waste -to -
energy (WTE) conversion. With this method, solid waste is converted to energy. This is a new
technology that requires an in depth analysis to determine if it could work for the County. Among
other factors, a WTE feasibility study (FS) considers whether there is a sufficient waste stream to
support such a facility, a facility's effect on air quality, and the probability of obtaining a permit for
a facility. If feasible, the County then must choose a private firm to obtain all necessary permits as
well as build and operate the facility.
Even though a WTE FS has not formally been conducted by the County, the SWDD Board, on
March 24, 2009, authorized SWDD staff to start negotiations with INEOUS New Planet BioEnergy
LLC (INPB) to implement the first phase of a WTE conversion facility that would, by 2011, utilize
yard and other vegetative waste to produce approximately 8 million gallons per year of ethanol.
Subsequent phases of the project will utilize other wastes disposed at the County landfill as
feedstock for the WTE conversion facility. If this project is successful, future phases of the project
will definitely reduce the quantity of solid waste requiring landfill disposal. With this technology,
only residues will likely require landfill disposal.
Illegal Dumping
Indian River County requires that County residents properly dispose of all solid waste materials
within the County. The majority of these materials are then transported to the County's landfill for
disposal. Not all such materials, however, arrive at the County's landfill facility. Occasionally,
there are incidents of solid waste materials being discarded along County roadways, on private
property, and in other areas of the County. The improper disposal of solid waste materials
constitutes illegal dumping.
Illegal dumping remains a problem in the County. While improper disposal of solid waste continues
to occur along roadways and on private property, the improper use of the five CCCs has significantly
Community Development Department Indian River County 12
Comprehensive Plan Solid Waste Sub -Element
dropped. For Fiscal Year 2007/2008, the County's Code Enforcement Division reported 428 "junk,
trash & debris" code cases throughout the County. The referenced code enforcement cases,
however, represent only a small portion of total illegal dumping of solid waste.
According to the Indian River County Code Enforcement office, illegally dumped solid waste along
County roadways and on private property usually falls into one of the following categories:
O Materials, such as tires or hazardous waste such as batteries, oil filters, used oil, etc.,
which the owner does not transfer to the landfill or CCCs; or
O Heavy and bulky materials such as refrigerators, stoves, and others, which are
inconvenient and costly to transfer to the landfill or to the CCCs. There is no charge
for disposal of these materials at the landfill or at the CCCs; however, there are
transfer costs; or
O Trash disposed of outside the gates of CCCs when transfer stations are closed; or
O Trash disposed of along County roadways or on vacant properties
While illegal dumping outside of the CCC gates rarely occurs now, illegal dumping along roadways
and on private properties remains a concern of the SWDD. As the population has increased, the
number of "junk, trash & debris" code enforcement cases has also increased. According to the Code
Enforcement Division, only a small number of concerned citizens are willing to report acts of
improper disposal. In recent years, the County's emphasis on informing residents of the service
hours and fees of the landfill and the customer convenience centers, as well as the County's policies
on enforcement of illegal solid waste disposal and illegal dumping, has resulted in a reduction of the
problem.
It is expected that, if the County established a countywide mandatory door-to-door collection
service, there would be less incentive for illegal dumping, and the amount of illegal dumping could
be reduced even further. Since collection services would be available and would be paid for, there
would be no reason for residents to illegally dump solid waste. Mandatory door-to-door solid waste
collection would also reduce the costs associated with the operation of the CCCs.
Household Hazardous Waste
To manage all hazardous materials and to operate the household hazardous waste (HHW) program,
the SWDD has hired a private contractor, licensed by the State. This contractor replaced the
environmental chemist who supervised the HHW program in the past.
Although the amount of household hazardous waste collected and processed increased by sixty
percent (60%) between 1995 and 2008, this increase can be attributed to the County's growth during
that period. During Fiscal Year 2007/2008, the household hazardous waste program collected and
processed 62,200 pounds of household hazardous material. In 2008, there were no cases of
improperly managed or illegally disposed of hazardous waste in the County.
Community Development Department Indian River County 13
Comprehensive Plan Solid Waste Sub -Element
According to the State Health Department, only three events involving the mismanagement of
hazardous waste occurred in the County between the Fiscal Years of 1995/1996 and 2007/2008. The
Environmental Health Department attributes the awareness of the dangers of HHW and the
convenience of the HHW storage facility for the minimal occurrences of illegal HHW disposal by
County residents.
Water -Quality Monitoring
Groundwater, surface water and leachate monitoring take place in accordance with the current
Segment II FDEP Operations Permit. Presently, the SWDD has 60 monitoring wells, including 24
shallow -zone wells, 21 intermediate -zone wells, and 15 deep -zone wells. The SWDD contracts with
a laboratory for chemical analysis.
REGULATORY FRAMEWORK
Currently, the federal government, the state, and the county are all involved in the regulation and
management of solid waste disposal facilities. Table 3.C.2 provides a summary of the landfill site
operating permits and a list of issuing agencies.
• Federal
The potential environmental impact of solid waste facilities has led to the development of an
extensive network of permitting requirements. For air and water quality, impacts are reviewed by
the U.S. Environmental Protection Agency (USEPA) and the FDEP. Where dredging or filling
might occur, impacts are reviewed by the U.S. Army Corps of Engineers (USACOE).
With passage of the Federal Resource and Conservation Recovery Act (RCRA), the USEPA was
directed to develop a program to regulate and manage solid and hazardous wastes and provide
incentives for states to adopt consistent programs. Through the Federal Comprehensive Emergency
Response and Compensation Liability Act (CERCLA), USEPA was given the authority and funding
to respond to incidents requiring site clean-up and emergency mitigation; this act is commonly
known as the USEPA "Superfund" Act. As part of the program to implement this act, the USEPA
developed and created a National Priority List (NPL) to include sites that, due to the extent of
contamination and exposure, pose significant threat to human health and the environment and, as
such, need clean-up.
• State
In 1980, the Legislature passed the Florida Resource Recovery and Management Act. This act
adopted the federal guidelines and directed FDEP to develop and implement a hazardous waste
management program. Amendments to this act in 1983 provided direction and funding to establish a
cooperative hazardous waste management program among local, regional, and state agencies. In
1988, the Legislature passed the Solid Waste Management Act, with an initial overall goal of
reducing the volume of solid waste going into Florida landfills by 30 percent by 1994. Since then,
amendments to the act have continued to encourage county recycling programs. Basic components of
Community Development Department Indian River County 14
Comprehensive Plan
Solid Waste Sub -Element
the Act include requiring counties to initiate recycling programs; to separate newspaper, glass
bottles, cans, and plastic bottles from the solid waste stream; and to prohibit lead acid batteries,
whole tires, and yard waste from landfill disposal. The regional water management district provides
state -level review for water quality and quantity impacts.
• Local
The Indian River County SWDD is responsible for the planning and management of solid waste
operations serving the County, ensuring that such facilities conform to all permit requirements and
are in compliance with water quality regulations.
Community Development Department Indian River County 15
Comprehensive Plan Solid Waste Sub -Element
TABLE 3.C.2
SUMMARY OF SITE OPERATING PERMITS
Agency
Permit
Permit
Effective
Expiration
Status
Number
Date
Date
FDEP
ERP
ERP31-163429-
05/24/2006
Perpetuity,
Conceptual ERP application for build -out of the existing
001-E1
unless
landfill. Specific permit for the existing landfill facility
modified
configuration. Modification submitted in 2007 to replace
conceptual ERP.
FDEP
Wetland
199403582 (IP-
07/28/1997
N/A
Wetland Mitigation 10.45 -acre filled. 11.76 -acre
Mitigation
IS)
compensatory mitigation offered offsite.
FDEP
Class I
S031-0128769-
08/04/2006
05/18/2010
Approved permit includes plans for vertical expansion of
Operation/
013
Segments I and II, and infill and placement on slopes of
Construction
Segments I and II and the Infill at 3H:1 V grades. This
permit also allows for C&D placement on Segment I and
allows for elimination of terraces on Segment II.
FDEP
C&D Debris
5031-0128769-
06/12/2007
04/20/2012
Approved permit includes operation of 22.15 acre Cell 1
Landfill
014
and construction of 33.6 -acre Cell 2 for C&D debris
landfill. Cell 2 is currently being permitted as a Class I
landfill
FDEP
Multi Sector
FLR05GO35
05/14/2005
05/13/2010
Permit requires monitoring of the quantity and quality of
Generic Permit
stormwater discharge from Outfall D-001.
SJRWMD
Consumptive
2185
01/13/2009
09/08/2023
A modification permit was issued for dewatering of
Use
borrow pit No. 2 in the northern expansion for
excavation of soils for use as fill material for landfill
construction and operation.
IRFWCD
Stormwater
97-25
06/27/1994
N/A
Permit issued by the Indian River Farms Water
Discharge
Control District for connection and discharge of
stormwater to the C-6 canal.
IRFWCD
Culvert
08-37
01/05/2009
01/05/2010
Permit issued by IRFWCD to allow culvert connection
connection
and/or control structure in C-5 canal during construction
of borrow pit No. 2 development.
FDEP
Gas System
S031-
07/23/2005
04/18/2010
Construction and operation of an active landfill gas
0128769-005
collection system.
FDEP
Title V Air
06 -1005 -003 -AV
07/19/2007
06/30/2012
Permit regulating landfill gas and other air emissions
Operation
from landfill site.
Permit
FINANCE
For Fiscal Year 2007/2008, the SWDD's total revenue was $12,489,000. The bulk of this revenue
came from SWDD assessments and tipping fees. Other sources of revenue were: garbage sales;
recycling sales; septage/sludge disposal fees; controlled substance disposal fees; and miscellaneous
ffTbilli-s a
Community Development Department Indian River County 16
Comprehensive Plan
SWDD Assessments
Solid Waste Sub -Element
In Indian River County, residents are assessed an annual disposal fee per waste generation unit
(WGU). A WGU is defined as a basic unit of waste generation equivalent to 1 ton of solid waste. In
Fiscal Year 2007/2008, the annual assessment per WGU was $44.04 for residential customers and
$29.86 for commercial customers. The County Tax Collector is responsible for collecting and
distributing all assessments, using the same procedures employed to collect ad valorem taxes. For
Fiscal Year 2007/2008, $7,601,412.38 was collected from solid waste assessments.
Tipping Fees
Currently, the SWDD has a schedule of tipping fees for various materials entering the landfill.
Table 3.C.3 shows current rates for various materials brought in. When materials are brought to the
landfill, tipping fees must be paid before leaving unless there is an established account with the
SWDD. Tipping fee revenue varies from year to year, since the SWDD does not have control over
the amount of solid waste entering the landfill each year.
Community Development Department Indian River County 17
Comprehensive Plan
TABLE 3.C.3
SWDD TIPPING FEES AS OF APRIL 2009
Solid Waste Sub -Element
CODE
TYPE OF MATERIAL
DESCRIPTION OF MATERIAL
RATE/Ton
RATE/OTHER
ANL
animal large
over 150 Ib.
$50.00 per animal
ANS
animal small
150 lb. or under
$5.00per animal
ASB
asbestos
$140.00
ASP
asphalt
$31.80
BOT
boat
$32.50
C&D
construction/demolition
531.80
$7.70 per cubic yard
CCD
concrete/dirt
clean
53.00
$3.89 per cubic yard
CCS
Soil
Contaminated
$55.00
CCS
soil
clean i.e. complies with Soil Disposal Protocol
$5.00
CDL
C&D
contaminated
$55.00
$13.31 per cubic yard
CHP
chipped tree debris
$18.00
$4.50 per cubic yard
GCH
garbage
chargeable
$32.50
LCD
land clearing debris
$22.00
$2.75 per cubic yard
LCN
land clearing contaminate
$55.00
$6.88 per cubic yard
OCW
out -of -county waste
asbestos or haz. not accepted
$60.00
$15.00 per cubic yard
OFL
oil filters
$500.00
SGG
sludge/grease/grit
$15.00 (min. $7.50)
TAS
tires/auto/single
max. 4 tires
$2.00 per lire
TAU
tires/auto
$95.00
THE
tires/heavy equip.
$130.00 (min. $20.00)
THS
tires/heavy equip.
single
$20.00 vertire
TTP
treated ties/poles
$32.50
TTR
tires/truck
$100.00 min. 5.00
TTS
tires/truck
single/ max. 4
$5.00 per tire
UCL
uncovered load
$25.00 per event
UTS
utilities treated sludge
$15.00 (min. $7.50)
YDC
yard debris
contaminated
$55.00
$4.68 per cubic yard
V WS
vehicle weigh service
$3.00 per event
NSF Checks
Varies $20.00 and up per check
Community Development Department Indian River County 18
Comprehensive Plan
ANALYSIS
Solid Waste Sub -Element
In evaluating the County's solid waste system, several functional components must be considered.
These components include: (1) solid waste generation and cost; (2) solid waste collection, storage,
and transfer; (3) solid waste processing and disposal; and (4) projection of future demand and
landfill capacity.
Solid Waste Generation and Cost
Since 1998, Indian River County has experienced over a 30% population increase. Thus, the amount
of land area needed for landfill disposal of solid waste has increased. To address this need, the
SWDD in recent years acquired an additional 300 acres of land, increasing the landfill site by
approximately one hundred and ten percent (110%). In 2006, however, the SWDD Board decided
not to develop the additional area for landfill expansion, but instead to limit all future capacity
additions to the current area of the landfill site. To satisfy the need for water storage and canal
modification as a result of the future abandonment of the C-5 canal that bisects the landfill property,
the SWDD Board, in 2009, purchased 80.94 acres adjacent to an existing SWDD owned 30 acres on
the West side of I-95.
From 1995/96 to 2007/08, the total cubic yards of solid waste mass accumulated at the landfill site
more than doubled, but because the SWDD currently compacts its solid waste at a greater density
rate than in the past, the rate at which the landfill approaches capacity is slower.
Currently, the County's level of service standard for solid waste is set at 2.2 tons per capita per year,
an amount which is based on the annual per capita waste generation rate of 2.4 tons. Of the 2.4 tons
per capita, 0.2 ton is attributable to commercial sources.
Population Projections
For population growth, the Introductory Element of the County's Comprehensive Plan provides
information. Since the landfill site serves both the unincorporated and the incorporated areas of the
County, the total County population must be used to project solid waste demand.
Overall, the projected population determinates future needs for solid waste services. Using a
population projection that is too low is likely to result in the failure to adequately provide for the
County's needs. Conversely, using a population projection that is too high will result in identifying
needs that will not occur in the forecasted time period. Therefore, an accurate forecast of the future
population is essential in planning for solid waste demand.
Section 9J-5.005 of the Florida Administrative Code (FAC) states that communities should utilize
the University of Florida's Bureau of Economic and Business Research (BEBR) mid-range
projections when planning for future service needs. Consistent with Florida Administrative Code,
the county has adopted BEBR's mid-range population projections. The following table identifies the
County's population projections through 2030:
Community Development Department Indian River County 19
Comprehensive Plan
TABLE 3.C.4
POPULATION PROJECTIONS
Solid Waste Sub -Element
POPULATION PROJECTIONS
INDIAN RIVER COUNTY
2010 2015 2020 2025 2030
BEBR
142,300
155,000
169,300
183,400
196,900
Source: University of Florida, BEBR, Mid -Range Projections 2009
Solid Waste Generation Rates
Based on population projections and the average annual per capita landfill capacity consumption rate
developed from landfill disposal records, the 2007 update of the Solid Waste Master Plan projected
that SWDD facility needs will be 5.3 million cy for Class I solid waste and 4.3 million cy for C&D
debris, for a combined total of 9.6 million cubic yards, from 2009 through the year 2030 (Neel
Schaeffer, 2007).
Needs and Cost
According to the Solid Waste Master Plan (Neel -Schaeffer, 2007), approximately 9.6 million cubic
yards of solid waste capacity will be required by the year 2030. With the current landfill segments,
the scheduled vertical expansion of the Class I landfill and the proposed Segment III expansion, the
design capacity of the landfill site for 2030 is 13,500,000 cubic yards. This design capacity, along
with current SWDD practices, provides sufficient land area for solid waste management needs
through 2030 and beyond. Consequently, there is no need to expand the landfill site's area through
2030. For the County to be able to continue landfill operations at this site, however, the county will
need to implement buffer control measures to screen the landfill from I-95 which abuts the landfill to
the west.
Between Fiscal Years 1995/1996 and 2007/2008, the yearly operational costs for SWDD facilities
increased by 99% from $5,700,000 to $11,356,000. During the same time period, the yearly
revenues increased by 63% from $7,662,540 to $12,489,000. Even though costs increased faster than
revenue between Fiscal Years 1995/1996 and 2007/2008, revenue received annually continues to
exceed the yearly operational costs of maintaining the SWDD facilities. For that reason, there is no
need to increase the SWDD non -ad valorem assessment rate at this time.
Solid Waste Processing and Disposal
At present, the processing of solid waste at the County's landfill meets Federal and State standards
and regulations, ensures safety, and minimizes environmental impacts.
Community Development Department Indian River County 20
Comprehensive Plan Solid Waste Sub -Element
To reduce solid waste volume, the County has contractors that provide for tire removal and for yard
waste grinding and removal services. While tires are hauled off-site, a portion of the ground yard
waste is used for daily cover on the Class I landfill, and the remaining yard waste is hauled off-site.
According to FDEP solid waste reports, Indian River County and its adjacent counties have seen
slight, but steady, increases in the per capita tonage of solid waste disposed of each year. The
average tons/capita/year for the State of Florida is nearly double that of the County's.
In order to further reduce the amount of solid waste being disposed of at the landfill, there are two
principal options. First, the County can expand its existing recycling system, disposing the
remainder of solid waste in the landfill. Second, the County can contract with a regional landfill to
transfer solid waste to that disposal site.
Another option for reducing the amount of solid waste requiring landfill disposal is Waste to Energy
(WTE) conversion. WTE converts solid waste to energy. This is a new technology that requires an
in depth study to determine if it could work for the County. With the proposed INEOS New Planet
Bio project, the SWDD has initiated the process of establishing a WTE facility to convert solid
waste to energy and ethanol. In the future, the county should assess the performance of that facility
and should support the project if the assessment shows that the project is successful.
Proiection of Future Demand and Landfill Capacity
Since the time horizon of this Comprehensive Plan update is 2030, future solid waste demand must
be projected to that year. For solid waste, demand projection is based on two components:
population growth and solid waste generation rates.
Landfill Capacity
One of the County's principal responsibilities is to ensure that sufficient landfill capacity is available
for disposal of processed or raw waste. According to the Solid Waste Master Plan, the County must
maintain a disposal capacity of at least three years to allow for sufficient time to permit and
construct a new active landfill segment, when necessary.
Currently, the SWDD utilizes two approaches to ensure that there is adequate landfill capacity.
These are: (1) developing new landfill capacity, and (2) implementing programs to reduce the
demand for landfill disposal. To increase the disposal capacity for Class I waste and C&D debris,
the SWDD has optimized the design of the Class I landfill between Segments I and II. Also, the
SWDD recently obtained permits for additional C&D disposal on the side slopes of Segment I to
increase the C&D disposal capacity. To increase the disposal capacity of the landfill footprint area,
the SWDD obtained permits for a vertical expansion of the Class I landfill to elevation 185 feet
National Geodetic Vertical Datum (NGVD). Construction of the vertical expansion began in May
2009 and was completed in October 2009.
Besides those initiatives, a 70 -acre Segment III Class I cell is being designed and permitted for
future construction. This cell will accommodate another 8.4 million cubic yards of Class I waste and
C&D debris. SWDD has also obtained permits for a 33 -acre component of the Segment III landfill
Community Development Department Indian River County 21
Comprehensive Plan
Solid Waste Sub -Element
that can be constructed prior to re -permitting of the entire 70 -acre footprint.
Along with Segment III, the existing Class I landfill with the scheduled vertical expansion and the
two additional infills are designed to provide a disposal capacity of 13.5 million cubic yards. This
will provide sufficient capacity to meet the County's disposal needs through the year 2030 and
provide a surplus of more than 2.11 million cubic yards of disposal capacity.
In conjunction with increasing landfill capacity, the SWDD is continuing to work to decrease the
demand for landfill space. The most significant effort in this regard is maintaining and expanding
the County's countywide recycling program. Currently, the County's recycling program includes
curbside pick-up for residences and either pick-up or drop-off service for businesses.
Recently, the County expanded its recycling educational program to encourage more recycling,
increased the number of materials that can be recycled, and changed the County's recycling
collection and separation method. With expansion of the County's resource recovery and recycling
programs, the amount of solid waste that will be disposed in the landfill will be reduced further and
will increase the expected life span of the landfill even longer.
In the future, the county should continue to expand recycling activities and pursue waste to energy
conversion to reduce the amount of solid waste being disposed of at the landfill.
Funding and Capital Improvements
The current SWDD 5 -year Capital Improvements Program (CIP), as identified in the Capital
Improvements Element (CIE) of the County's Comprehensive Plan, is shown in Appendix "A".
This CIP includes CCC improvements and relocation; purchase of tractors/transfer trailers and roll-
off truck/containers; lateral and vertical expansion of segments I and II; development of segment III;
and infill improvements. The SWDD's CIP is completely funded through assessments and user fees.
To ensure that solid waste is adequately collected and disposed of, the County must undertake the
improvements identified in the CIP.
Since the County's CIE must be updated annually, any capital improvements projects completed will
be removed from the CIP, and any new needed improvements will be added on an annual basis.
Solid Waste Collection, Storage, and Transfer
Generally, the County's existing collection system is adequate for a rural area. According to the
Solid Waste Master Plan, however, a mandatory countywide curbside service type of solid waste
collection may become necessary as the County becomes more urbanized. In rural areas, it is
generally not feasible to pick up all solid waste at the source of generation. In urbanized areas,
however, it is more efficient for solid waste haulers to pick up solid waste at residences and
businesses. Currently, the existing customers of the County -franchised solid waste haulers are
paying about $14.32 per month for collection services. According to the SWDD, the collection fee
per customer could be reduced if there were a mandatory curbside solid waste collection system.
Presently, about ten percent (10%) of the County's solid waste is collected and transferred to the
Community Development Department Indian River County 22
Comprehensive Plan Solid Waste Sub -Element
landfill through the five CCCs. This is a significant drop from the more than thirty percent (30%) in
1998. Even with this reduced activity level, however, the County must coordinate and maintain the
five CCCs at a cost of about $2 million per year, an amount that accounts for more than fifteen
percent (15%) of the yearly SWDD operation costs.
Another problem associated with the existing collection and transfer system is illegal dumping. This
problem has two parts. One part is the improper disposal of solid waste along County roadways and
on private property. The other part is improper use of the five CCCs. With the existing system, the
service area for each transfer station is about 5 miles, and the CCCs are not open 7 days a week.
This causes some inconvenience and results in illegal dumping.
In response to illegal dumping problems, the County adopted Chapter 973, Public Nuisance, of the
Indian River County Code of Laws and Ordinances. According to Chapter 973, an accumulation of
debris, garbage, junk, trash, weeds, unserviceable vehicles, dead trees posing a health or safety
hazard, or other noxious materials may be declared a public nuisance. Pursuant to the provisions of
Chapter 973, the county may abate public nuisances if property owners fail to take action. The
Environmental Planning and Code Enforcement Section of the Indian River County Planning
Department administers this ordinance. Also, Chapter 204, Solid Waste Disposal, of the County
code has specific sections regarding littering and use of CCCs and the landfill within the County.
In the future, the County has three options for modifying the County's existing collection system.
The County could: (i) keep the CCCs open seven days a week with longer operational hours; (ii)
build more CCCs; or (iii) establish a countywide mandatory solid waste collection system. To have
CCCs open seven days a week or build additional centers, the county would incur additional costs
that, according to the SWDD, are not justifiable. For example, it would cost an additional
$400,000.00 per year to operate another CCC that could be open 5 days a week. The SWDD
estimates that it would cost another $300,000 per year to keep the existing CCCs open seven days a
week.
If a mandatory door-to-door solid waste collection system is initiated, the need for the CCCs would
be greatly reduced. Overall, mandatory solid waste collection could eliminate the costs associated
with maintaining the CCCs and reduce illegal dumping. With mandatory door-to-door solid waste
collection, illegal dumping would decline because it would be more convenient for residents to have
their solid waste removed by curbside collection than by illegally dumping solid waste. From a cost
perspective, closing the CCCs could reduce SWDD operational expenses by $2,000,000 a year.
Also, the CCC properties could be sold or used for other purposes.
If all types of solid waste were collected at the place of generation and transferred directly to the
landfill site, there would be less need for coordination, and the County would have better control of
the solid waste stream entering the landfill site. Such a mandatory door-to-door solid waste
collection system would provide for better control of the solid waste stream entering the landfill site.
Consequently, the County's policy should be to evaluate the feasibility of establishing a mandatory
collection system in the future.
Processim/Disposal
Community Development Department Indian River County 23
Comprehensive Plan Solid Waste Sub -Element
Processing of waste that arrives at the landfill is an important part of the entire system. At the
processing site, the various waste types are separated and treated accordingly. Then, each type of
waste needs a different method of processing in order to sufficiently reduce the total waste volume
and ensure that the waste will receive the appropriate treatment. The prerequisite for ensuring
proper processing is appropriate separation of the solid waste.
Overall, materials collected and shipped to processing centers for recycling must be free of
contamination. Contaminated materials are returned to the landfill. While separation of different
types of solid waste is costly, time consuming and in some cases requires special equipment, the
existing County system is generally adequate to handle various types of solid waste.
An important part of the solid waste processing system is the availability of equipment to handle all
materials appropriately. In the future, there may be a need for additional equipment to facilitate the
separation of materials entering the landfill. As technology improves, the County should acquire
new equipment to handle all materials appropriately. There may also be a need for equipment to
reduce the amount of waste and to recycle some of the waste stream. Because the County is
sending several types of solid waste materials to processing centers for recycling, the County does
not need any additional recycling equipment at the landfill at this time. For general landfill
operations, however, the County must maintain its heavy machinery such as bulldozers, loaders,
compactors, and scrapers. Even though the County is currently under contract with Waste
Management, Inc. to operate the Class I Landfill, the county must still maintain a suite of equipment
for emergency use. For such emergencies, the County has entered into a rental agreement with a
local equipment supplier.
The final part of a processing/disposal system is the disposal of processed or raw waste in the
landfill. In disposing of waste, the county must ensure that the disposed material does not have an
adverse impact on the environment and that sufficient landfill capacity is available for disposal of
the processed or raw waste. With Segment II of the landfill designed according to federal and state
standards and being monitored regularly, the County ensures that there will be no adverse
environmental effects from the landfill. Consistent with the Solid Waste Master Plan, the County
maintains at least three years of landfill disposal capacity at all times, thereby allowing sufficient
time for permitting and construction of a new active segment.
With respect to disposal, the County has three options. First, the County can continue to recycle as
much solid waste as possible and dispose of the remainder in the landfill. Second, the County can
contract with a regional landfill, such as the Okeechobee Landfill in Okeechobee County or the JED
Landfill in Holopaw, Osceola County, and transfer solid waste to that disposal site. Third, the
County can pursue development of a waste -to -energy (WTE) facility, if that technology is
determined to be feasible for the County.
At present, option one seems to be the most workable for the County. Although the County recently
initiated negotiations with INPB for a WTE conversion project for ethanol production in the County,
it is still necessary for the SWDD to conduct a feasibility study and a cost/benefit analysis of all
three options and utilize any combination of options as appropriate. With options two and three,
however, the County would need to continue to maintain the landfill for backup and for disposal of
some solid waste as well as for disposal of residue from a WTE facility.
Community Development Department Indian River County 24
Comprehensive Plan Solid Waste Sub -Element
Special Waste Handling and Disposal
To accommodate household hazardous waste materials, the SWDD has built a temporary storage
facility at the landfill for residentially generated hazardous waste. This facility, however, will not
accept such waste from small quantity commercial or industrial generators. Instead, small quantity
generators must individually contract with licensed hazardous waste haulers for the disposal of their
hazardous waste materials. In the future, the County intends to expand this facility at the landfill to
temporarily store hazardous waste materials from residences and provide a receiving and
coordination center between transporters and local small quantity generators.
Community Development Department Indian River County 25
Comprehensive Plan Solid Waste Sub -Element
GOALS, OBJECTIVES AND POLICIES
Goal
Indian River County shall have an efficient and environmentally sound solid and hazardous waste
management system to prevent spread of disease, to promote orderly growth within the County, and
to meet existing and projected demands for the management and disposal of waste.
OBJECTIVE 1 Service Concurrent with Development
Through the time horizon of the plan, the active segment of the landfill will always have sufficient
capacity to accommodate demand.
POLICY 1.1: Design for additional disposal segments of the landfill shall be completed before the
active segment of the landfill is at 70% of its capacity, and construction of additional segments shall
begin when the active segment is at 75% of its capacity in order to ensure that the established level
of service will be maintained.
POLICY 1.2: New development within the Indian River County SWDD service area shall continue
to be approved only when capacity is available at the active segment of the landfill. If the active
segment of the landfill is at 90% of its capacity and a new segment is not ready, additional
development shall not be permitted.
POLICY 1.3: The following level of service standards are hereby adopted, and shall be used as the
basis for determining the availability of facility capacity and the demand generated by new
development:
2.4 tons per capita for permanent population plus weighted seasonal population per year
or 4 cubic yards per permanent population plus weighted seasonal population per year
POLICY 1.4: The County shall maintain its concurrency management system to update its solid
waste facility demand and capacity information as development orders or permits are issued.
POLICY 1.5: The SWDD shall maintain a comprehensive solid waste management master plan and
shall prepare annual summaries of demand and capacity information for the active segment of the
landfill.
POLICY 1.6: The SWDD shall maintain at least 3 years of disposal capacity available at all times.
POLICY 1.7: The County shall continue to provide countywide solid waste services to all of the
County's municipalities and the unincorporated portion of the County by providing landfill capacity
for solid waste disposal, by administering a countywide recycling program, and by studying and
implementing new technologies. On-going studies shall identify the following:
New technologies for recycling;
Community Development Department Indian River County 26
Comprehensive Plan Solid Waste Sub -Element
New methods for safe solid waste disposal;
Assessment of the feasibility of implementing these new technologies in Indian River
County; and
Cost/benefit analyses for promising technologies.
OBJECTIVE 2 Special Waste and Hazardous Waste
Through the time horizon of the plan, there will be no cases of improper management or illegal
disposal of hazardous waste in the County.
POLICY 2.1: The County shall dispose of stabilized sludge from wastewater treatment plants at the
County landfill.
POLICY 2.2: The County shall dispose of the screenings and grit accumulated at the wastewater
treatment plants at the County landfill.
POLICY 2.3: The County will continue to require all septage haulers operating in the County to
dispose of septage at the Gifford Wastewater Treatment Plant or other sites approved by FDEP until
the proposed new Biosolids Facility at the County Landfill is open.
POLICY 2.4: The SWDD shall provide convenient locations at which residents can drop off
household hazardous materials free of charge.
POLICY 2.5: The County shall continue to maintain a contract with a licensed hazardous waste
transporter for providing disposal services to the small quantity generators of household hazardous
waste within the County.
POLICY 2.6: The County shall perform water quality tests in accordance with the landfill permit
requirements to ensure that the Class I landfill is not contaminating the surrounding groundwater and
surface water bodies.
POLICY 2.7: The County shall close its existing C&D debris landfill cell and switch to co -disposal
operation whereby C&D debris is disposed of in a lined Class I landfill commingled with MSW. -
POLICY 2.8: The County shall encourage the County Environmental Health Department to
continue to perform regular inspections of small quantity hazardous waste generators.
POLICY 2.9: The County shall cooperate with the FDEP and USEPA to continue to perform
regular inspections of private licensed waste handlers to ensure that bio -hazardous waste, generated
by medical establishments and handled by private firms, is properly managed. When improper
management of bio -hazardous waste is found during an inspection, the FDEP and USEPA will take
enforcement action. The County shall continue to inspect for the bio -hazardous waste from the solid
Community Development Department Indian River County 27
Comprehensive Plan Solid Waste Sub -Element
waste that enters the landfill.
OBJECTIVE 3 Capital Improvements
Through the time horizon of the plan, the County will have maximized the use of existing facilities
and discouraged urban sprawl by having completed all needed solid waste capital improvements as
outlined in the Capital Improvements Element of the County Comprehensive Plan.
POLICY 3.1: The County shall maintain a five year schedule of capital improvements for the
landfill and shall update this schedule annually in conformance with the review process for the
Capital Improvements Element of this plan.
POLICY 3.2: Proposed capital improvement projects shall be evaluated and ranked according to the
following priority level guidelines:
Level One - whether the project is needed to protect public health and safety, to fulfill the
County's legal commitment to provide solid waste facilities and services, or to preserve or
achieve full use of existing facilities; and
Level Two - whether the project increases efficiency of use of existing facilities or prevents
or reduces future improvement costs.
Level Three — whether the project increases the amount of solid waste being recycled.
POLICY 3.3: The County shall structure solid waste fees, rates, and assessments to support the
solid waste system as a financially self-supporting enterprise system.
POLICY 3.4: The County shall continue its current non-advalorem assessment program to fund the
orderly expansion of its solid waste facilities.
POLICY 3.5: The County shall apply for state and federal sources of funding for the improvement
and expansion of solid waste services as well as for expansion of its recycling program.
POLICY 3.6: All future expansion of the landfill and the SWDD facilities shall be consistent with
the adopted solid waste level of service standards.
POLICY 3.7: The County shall maintain its charge mechanism for the collection and management
of special wastes such as C&D debris, bio -hazardous waste, and other wastes needing special
collection, handling, and disposal.
OBJECTIVE 4 Recycling and Waste Volume Reduction
By 2020, the County will have increased the portion of solid waste recycled to 30% of its waste
stream.
Community Development Department Indian River County 28
Comprehensive Plan Solid Waste Sub -Element
POLICY 4.1: The County shall expand its recycling program by accepting more materials to be
recycled to reduce the volume of waste disposed of in the landfill.
POLICY 4.2: By 2012, the SWDD shall complete a study to determine the feasibility of
establishing a mandatory solid waste collection system. Upon the establishment of mandatory door-
to-door garbage collection, the SWDD shall evaluate the need for and the level of service required
from the customer convenience centers. -
POLICY 4.3: The SWDD shall continue to assist the School Board to develop and maintain a
course which informs students of the impact of mismanaged solid and hazardous waste as well as the
importance and benefits of a recycling program.
POLICY 4.4: The County as part of its recycling program shall eliminate open burning in urban
areas by maintaining its facility for the recycling of organic waste, including land clearing debris,
grass clippings, etc. into compost and mulch.
POLICY 4.5: The SWDD, through radio and newspaper advertisements, informational brochures,
or through special events, shall provide general public education on the importance and benefit of
the recycling program.
POLICY 4.6: By 2012, the SWDD shall arrange for completed studies to determine the feasibility
of the maximum recovery of recyclables from the County garbage stream and their conversion to
useful products.
POLICY 4.7: By 2012, the SWDD shall arrange for completed studies to determine the feasibility
of transferring the County's solid waste to another regional facility for disposal of solid waste.
Community Development Department Indian River County 29
Comprehensive Plan
PLAN IMPLEMENTATION
Solid Waste Sub -Element
An important part of any plan is its implementation. Implementation involves execution of the
plan's policies. It involves taking actions and achieving results.
For the Solid Waste Sub -Element, implementation involves various activities. While some of these
actions will be ongoing, others are activities that will be taken by certain points in time. For each
policy in this element, Table 3.C.5 identifies the type of action required, the responsible entity for
taking the action, the timing, and whether or not the policy necessitates a capital expenditure.
To implement the Solid Waste Sub -Element, several different types of actions must be taken. These
include: construction of additional landfill segments, acquisition of new equipment, improvement or
replacement of existing equipment, adoption of land development regulations and ordinances,
coordination, and preparation of studies and evaluation and monitoring reports.
Overall plan implementation responsibility will rest with the Solid Waste Disposal District. Besides
responsibilities identified in Table 3.C.5, the Planning Department has the additional responsibility
of ensuring that other entities discharge their responsibilities. This will entail notifying other
applicable departments of capital expenditures to be included in their budgets, notifying other
departments and groups of actions that must be taken, and assisting other departments and agencies
in their plan implementation responsibilities.
TABLE 3.C.5
SOLID WASTE SUB -ELEMENT
IMPLEMENTATION MATRIX
POLICY #
TYPE OF ACTION
RESPONSIBILITY
TIMING
CAPITAL EXPENDITURE
1.1
Design & Construction
Solid Waste Disposal District
Ongoing
Yes
1.2
Permitting and Concurrency
BCC/Solid Waste D.D./PS
Ongoing
Yes
1.3
Level of Service standard
BCC/SWDD/PS
Ongoing
No
1.4
Monitoring Procedure
Planning Staff
Ongoing
No
1.5
Annual Report
SWDD
Annually
No
1.6
Capacity Provision
SWDD
Ongoing
Yes
1.7
Coordination
BCC/Municipalities
Ongoing
No
2.1
Sludge Disposal
SWDD/Utilities Dept.
Ongoing
Yes
2.2
Screenings & Grit Disposal
SWDD/Utilities Dept.
Ongoing
Yes
2.3
Septage Disposal
SWDD/Utilities Dept.
Ongoing
Yes
2.4
Collection of household hazardous waste
SWDD
Ongoing
Yes
2.5
Hazardous Waste Transport
SWDD
Ongoing
No
2.6
Water Quality Monitoring
SWDD
Ongoing
No
2.7
Maintaining the existing Procedures
SWDD
Ongoing
No
Community Development Department Indian River County 30
Comprehensive Plan
Solid Waste Sub -Element
POLICY #
TYPE OF ACTION
RESPONSIBILITY
TIMING
CAPITAL EXPENDITURE
2.8
Monitoring
Public Health Unit
Ongoing
No
2.9
Monitoring
FDEP
Ongoing
No
3.1
CIP Maintenance/Evaluation
Finance Dept./SWDD
Ongoing
No
3.2
CIP Evaluation and Prioritization
Finance Dept./SWDD
Ongoing
No
3.3
Financing Method
SWDD/Finance Dept.
Ongoing
No
3.4
Funding Mechanism
SWDD/Finance Dept.
Ongoing
No
3.5
Funding Mechanism
SWDD/Finance Dept.
Ongoing
No
3.6
Landfill and Facility Expansion
SWDD
Ongoing
Yes
3.7
Charge Mechanism
SWDD
Ongoing
No
4.1
Recycling Program
SWDD/Municipalities
Ongoing
No
4.2
Feasibility study of establishing a mandatory
door-to-door solid waste collection system
SWDD
2012
No
4.3
Coordination/Public Education
SWDD/School Board
Ongoing
No
4.4
Maintaining Recycling Program
SWDD
Ongoing
No
4.5
Public Education
SWDD
Ongoing
No
4.6
Feasibility studies for development of Waste
Conservation Industrial Park and waste to
energy facility
SWDD/BCC
2012
Yes
4.7
Feasibility study of transferring solid waste to
another regional facility
S WDD/BCC
2012
Yes
PS = Planning Staff SWDD = Solid Waste Disposal District
Community Development Department Indian River County 31
Comprehensive Plan
EVALUATION & MONITORING PROCEDURES
Solid Waste Sub -Element
To be effective, a plan must not only provide a means for implementation; it must also provide a
mechanism for assessing the plan's effectiveness. Generally a plan's effectiveness can be judged by
the degree to which the plan's objectives have been met. Since objectives are structured, as much as
possible, to be measurable and to have specific timeframes, the plan's objectives are the benchmarks
used as a basis to evaluate the plan.
Table 3.C.6 identifies each of the objectives of the Solid Waste Sub -Element. It also identifies the
measures to be used to evaluate progress in achieving these objectives. Most of these measures are
quantitative, such as additional capacity provided, decrease in the amount of improperly managed
waste, reduction of waste disposed in the landfill, and others. Besides providing evaluation
measures, Table 3.C.6 also identifies timeframes associated with meeting the objectives.
The Solid Waste Disposal District staff will be responsible for monitoring and evaluating the Solid
Waste Sub -Element. This will involve collection of data and compilation of information regarding
facility capacity, landfill expansion, and new development permitted. The monitoring and
evaluation will be done on a regular basis. As part of the County's concurrency management system,
the Solid Waste Disposal District will continually monitor facility capacity to ensure that solid waste
level -of -service standards will be maintained.
While monitoring will occur on a continual basis, formal evaluation of the Solid Waste Sub -Element
will occur every five years in conjunction with the formal evaluation and appraisal of the entire
Comprehensive Plan. Besides assessing progress, the evaluation and appraisal process will also be
used to determine whether the Solid Waste Sub -Element objectives should be modified or expanded.
In this way, the monitoring and evaluation of the Solid Waste Sub -Element will not only provide a
means of determining the degree of success of the plan's implementation; it will also provide a
mechanism for evaluating needed changes to the plan element.
TABLE 3.C.6
SOLID WASTE SUB -ELEMENT
EVALUATION MATRIX
OBJECTIVE #
MEASURE
TIMEFRAME
I
Cubic yards of available capacity in active segment of the landfill
Through the time horizon of the plan
2
Number of cases of illegal hazardous waste disposal
Through the time horizon of the plan
3
Completed improvement as identified in the sub -element
Through the time horizon of the plan
4
Volume of solid waste recycled
2020
Community Development Department Indian River County 32
Comprehensive Plan
Solid Waste Sub -Element
APPENDIX A: FIVE-YEAR SCHEDULE OF CAPITAL IMPROVEMENTS
Solid Waste
Community Development Department Indian River County 33
Revenue
FY 2009/10
FY 2010/11
FY 2011/12
FY 2012/13
FY 2013/14
Total
Assessments & User Fees
$ 3,279,600
$ 3,312,300
$ 3,345,300
$ 3,378,900
$ 4,192,900
$17,509,000
Total Revenue
$ 3,279,600
$ 3,312,300
$ 3,345,300
$ 3,378,900
$ 4,192,900
$ 17,509,000
Community Development Department Indian River County 33
Expenditures
FY 2009/10
FY 2010/11
FY 2011/12
FY 2012/13
FY 2013/14
Total
Revenue Source
Citizen Convenience Center
Improvement Projects
Relocation & Replacement of
Fellsmere Citizens Convenience
Assessments
&
Center
$
130,000
$ -
$
-
$
-
$
-
$130,000
User Fees
Winter Beach Citizens Convenience
Assessments
&
Center Phase I Improvements
$
-
$ -
$
-
$
-
$
247,000
$247,000
User Fees
Roseland Citizens Convenience Center
Assessments
&
Expansion and Improvements
$
-
$ -
$
-
$
1,920,000
$
-
$1,920,000
User Fees
Gifford Citizens Convenience Center
Assessments
&
Expansion and Improvements
$
-
$ -
$
1,430,000
$
-
$
-
$1,430,000
User Fees
Oslo Citizens Convenience Center
Assessments
&
Expansion and Improvements
$
2,500,000
$ -
$
-
$
-
$
-
$2,500,000
User Fees
Transfer Tractor/Transfer Trailers
Assessments
&
and Roll -off Truck/Containers
$
-
$ 380,000
$
50,000
$
125,000
$
75,000
$630,000
User Fees
Lateral and Vertical Expansion of
$
Assessments &
Segment I/Segment II/Infill
$
550,000
$ -
$
-
$
-
$
-
550,000
User Fees
Design, Permitting & Construction of
Class I Landfill - Cc Disposal
Assessments
&
(former 33 Acres for C&D)
$
3,000,000
$ -
$
-
$
-
$
-
$3,000,000
User Fees
Relocation/Replacement 10,000 gal
Assessments
&
Diesel Fuel Tank
$
50,000
$ -
$
-
$
-
$
-
$50,000
User Fees
Abandon. Relocate 3 Groundwater
Assessments
&
Monitoring Well Clusters
$
52,000
$ -
$
-
$
-
$
-
$52,000
User Fees
Assessments
&
Retrofit of MRF
$
50,000
$ -
$
-
$
-
$
-
$50,000
User Fees
Partial Closure of Cell I. C&D
Landfill, Seg -1, Seg -2 and the
Assessments
&
Infill
$
550,000
$ -
$
-
$
-
$
6,400,000
$6,950,000
User Fees
Total Expenditures
$
6,882,000
$ 380,000
$
1,480,000
$
2,045,000
$
6,722,000
$17,509,000
Community Development Department Indian River County 33
Comprehensive Plan
Solid Waste Sub -Element
FACommunity Development\Comprehensive Plan Elements\solid waste sub-element\Solid Waste_Sub-_Element 5 14 09 new file from sasan.doc
Community Development Department Indian River County 34
Comparison of Expenditures
to Revenue
FY 2009/10
FY 2010/11
FY 2011/12
FY 2012/13
FY 2013/14
Total
Total Revenue
$ 3,279,600
$ 3,312,300
$ 3,345,300
$ 3,378,900
$ 4,192,900
$17,509,000
Total Expenditures
$ 6,882,000
$ 380,000
$ 1,480,000
$ 2,045,000
$ 6,722,000
$17,509,000
Annual Balance
$ -3,602,400
$ 2,932,300
$ 1,865,300
$ 1,333,900
$-2,529,100
$0
FACommunity Development\Comprehensive Plan Elements\solid waste sub-element\Solid Waste_Sub-_Element 5 14 09 new file from sasan.doc
Community Development Department Indian River County 34