BOARD OF COUNTY COMMISSIONERS. December 10, 1991

Transcription

1 ANATEE COUNTY BOARD OF COUNTY COMMISSIONERS December 10, 1991 Mr. W i l l i a m Hinkley, A d m i n i s t r a t o r S o l i d Waste Section F l o r i d a Department of Environmental Regulation v, ^ Twin Towers O f f i c e B u i l d i n g. ;^ ^ 2600 Blair Stone Road, ''b Tallahassee, F l o r i d a Re: A p p l i c a t i o n f o r Variance from the January 1, 1992, Yard Trash Ban from Class I L a n d f i l l s Dear Mr. Hinkley: Thank you f o r your response, dated October 2, 1991, t o our request f o r an extension on the January 1, 1992, yard t r a s h disposal ban. As a r e s u l t of your comments. Manatee County Government i s hereby requesting a variance from the current s t a t u t o r y requirement regarding yard waste contained i n Section (15) (c) of the F l o r i d a S t a t u t e s. The County does so on the grounds t h a t our s i t u a t i o n q u a l i f i e s f o r a variance pursuant t o Section (b) F.S., s p e c i f i c a l l y : Compliance w i t h the p a r t i c u l a r requirement or requirements from which variance i s sought w i l l n e c e s s i t a t e the t a k i n g of measures which because of t h e i r e x t e n t or cost, must be spread over a considerable period of time. A variance per t h i s s e c t i o n requires a s p e c i f i c t i m e t a b l e f o r compliance which Manatee County i s w i l l i n g t o e s t a b l i s h w i t h an i n t e g r a t e d s o l i d waste management program. Manatee County c u r r e n t l y does not have County-wide curbside r e c y c l i n g c o l l e c t i o n, a Class I I I l a n d f i l l, a s o l i d waste i n c i n e r a t o r or a yard waste composting f a c i l i t y. The County does have County-wide mandatory s o l i d waste c o l l e c t i o n and a permitted Class I L a n d f i l l w i t h s u b s t a n t i a l remaining capacity. The County also has p i l o t curbside programs, drop-off centers and some m a t e r i a l recovery at the l a n d f i l l c o l l e c t i v e l y i n d i c a t i n g a 24.2% volume reduction as c a l c u l a t e d f o r the 1991 Annual Report t o FDER. There i s a l i m i t e d capacity, p r i v a t e l y operated, wood waste recovery f a c i l i t y w i t h i n the County. P.O. Box 1000, Bradenton, Florida 34206

2 Yard Waste Variance December 10, 1991 Page Two The County i s i n the process of s e l e c t i n g a vendor from proposals f o r a County-wide recycling/waste reduction program. The request f o r proposal asks the vendors t o discuss how they w i l l meet the requirements of the S o l i d Waste Management Act i n c l u d i n g 30 percent waste reduction by the end of 1994 and the yard waste ban from Class I l a n d f i l l s by January 1, The choice of a technology/vendor and the implementation of t h i s s t r a t e g y are key elements of the County's S o l i d Waste Master Plan c u r r e n t l y being updated. I n order t o e f f e c t a d i v e r s i o n of a l l yard waste from the Lena Road L a n d f i l l by the deadline. Manatee County would have t o ( i ) sidetrack i t s plan, ( i i ) n e g o t i a t e separate yard waste c o l l e c t i o n w i t h i t s two franchised h a u l e r s, and ( i i i ) e s t a b l i s h an i n t e r i m yard waste holding f a c i l i t y. The County would then have t o ( i v ) c o n t r a c t for/undertake the p e r m i t t i n g and c o n s t r u c t i o n of a yard waste composting f a c i l i t y. Other options, f o r which proposals have been received, t h a t might be more advantageous t o the County and b e t t e r address a l l of the requirements of the Act are too extensive t o implement immediately. These proposals can be implemented w i t h i n a maximum time of 24 months a f t e r c o n t r a c t, which w i l l meet the 1994 deadline f o r the 30 percent waste reduction goal. A more s p e c i f i c t i m e t a b l e would be agreed t o a f t e r the vendor i s selected and a contract has been negotiated. The attachment t o t h i s l e t t e r responds p o i n t by p o i n t t o the requirements of F.A.C. f o r an a p p l i c a t i o n f o r a variance. Thank you f o r your c o n s i d e r a t i o n of t h i s matter. Please do not h e s i t a t e t o c a l l i f you have any questions or r e q u i r e f u r t h e r i n f o r m a t i o n. S i n c e r e l y, BOARD OF COUNTY COMMISSIONERS MANATEE CODNTY, FLORIDA RICIA M. GLASS / PATRICIA M. GLASS Chairman PMG/GAD/gbp Attachment

3 MANATEE CODNTY, FLORIDA APPLICATION FOR VARIANCE PROM YARD WASTE DISPOSAL BAN FACTORS TO BE INCLUDED per F.A.C. [a] The s t a t u e or r u l e from which a v a r i a n c e i s sought (15)(c)F.S. which s t a t e s t h a t, a f t e r January 1, 1992, no person s h a l l knowingly dispose of yard t r a s h i n a l a n d f i l l except i n u n l i n e d l a n d f i l l s c l a s s i f i e d by Department of Environmental Regulation r u l e. [b] The f a c t s which show t h a t a v a r i a n c e should be g r a n t e d because of one of the reasons s e t f o r t h i n S e c t i o n , F l o r i d a S t a t u t e s. The f a c t s which warrant t h i s variance are, as f o l l o w s s Manatee County c u r r e n t l y operates under an ordinance of mandatory s o l i d waste c o l l e c t i o n. I t has a 15-year contract w i t h two waste h a u l e r s. Cedar Hammock Refuse Disposal/Waste Management, Inc. of F l o r i d a and I n d u s t r i a l Waste Service, Inc., t o help implement the terms of t h i s mandatory ordinance. A l l of the County's c o l l e c t e d waste i s disposed at the Lena Road L a n d f i l l, which has approximately 22 years of u s e f u l disposal l i f e l e f t. I t has no waste-to-energy f a c i l i t y or other disposal f a c i l i t y other than i t s l a n d f i l l. There i s no County-wide recyclables c o l l e c t i o n ; only three of the County's m u n i c i p a l i t i e s c u r r e n t l y have any curbside recyclables c o l l e c t i o n. The County c u r r e n t l y has i n place p i l o t curbside and drop-off center programs f o r the c o l l e c t i o n of newspaper, aluminum, glass and p l a s t i c as w e l l as c o l l e c t i o n of computer and high-grade o f f i c e papers i n a l l government o f f i c e s. I n a d d i t i o n, waste t i r e s and white goods are segregated at the L a n d f i l l F a c i l i t y f o r processing. The c o l l e c t i v e volume reduction from these p i l o t programs f o r F i s c a l Year 1991 was 24.2%. The County i s, however, able t o separate pure yard waste loads from s e l f - haulers. I t i s then processed at the County L a n d f i l l under c o n t r a c t w i t h Resource Recovery I n d u s t r i e s, Inc. Only four c i t i e s have municipal s o l i d waste c o l l e c t i o n or c u r r e n t l y c o l l e c t yard t r a s h as a separate c o l l e c t i o n and are t h e r e f o r e i n a p o s i t i o n t o add or continue t o separate yard t r a s h pickup w i t h o u t changes t o the c o n t r a c t. The favorable terms of the County's franchises w i t h these two haulers and the f a c t t h a t the County's l a n d f i l l has so many u s e f u l years l e f t mean t h a t the County residents c u r r e n t l y pay one of the lowest s o l i d waste fees i n the S t a t e. Any a l t e r a t i o n t o the e x i s t i n g system, which would, of course, include the implementation of the State's yard waste ban, should t h e r e f o r e be c a r r i e d out i n such a way t h a t w i l l not upset the County's f a v o r a b l e s i t u a t i o n. 1.

4 For t h i s reason. Manatee County Government has approached the task of implementing separate yard waste c o l l e c t i o n (and n e c e s s a r i l y changing the e x i s t i n g franchise) w i t h great c a u t i o n. I n J u l y, 1991, the County issued a Request f o r Proposal ("RFP") f o r a County-wide Recycling/Waste Reduction Program. Ten f i r m s responded t o t h i s RPP, and s i x s h o r t l i s t e d vendors are c u r r e n t l y being evaluated by a s e l e c t i o n committee. The s h o r t l i s t e d proposals include both separate c o l l e c t i o n of yard waste/recyclables and mixed waste processing. Of these s i x, only Cedar Hammock Refuse Disposal/Waste Management, I n c., has proposed t o provide separate yard t r a s h c o l l e c t i o n services on or soon a f t e r January 1, The p r i c e would represent about a 40 percent increase over the f r a n c h i s e p r i c e the County c u r r e n t l y enjoys w i t h t h i s p a r t i c u l a r company. The p r i c e proposal assumes t h a t the County w i l l provide a yard waste management f a c i l i t y at the same t i p p i n g fee as the L a n d f i l l ( c u r r e n t l y $18.00/ton). I t i s Manatee County's p o s i t i o n t h a t, i f i t were compelled t o choose a more expensive option s o l e l y on the basis of i t being the only way i t could meet the January 1, 1992, deadline, i t would f a i l t o meet another s t a t u t o r y requirement found a t Section of the F l o r i d a S t a t u t e s, which s p e c i f i c a l l y provides as f o l l o w s : [ L l o c a l governments and s t a t e agencies should use the most coste f f e c t i v e means f o r the p r o v i s i o n of services and are encouraged t o contract w i t h p r i v a t e persons f o r any or a l l of such services or programs i n order t o assure t h a t such services are provided on the most c o s t - e f f e c t i v e basis. Thus, Manatee County Government, by choosing the most expensive yard t r a s h c o l l e c t i o n option s o l e l y f o r the sake of immediacy, and compliance w i t h the January 1, 1992, deadline, would not be i n compliance w i t h the s t a t u t o r y p r o v i s i o n which encourages l o c a l governments t o provide services through the most c o s t - e f f e c t i v e means. Yet, by delaying the process f o r l e s s than 24 months. Manatee County Government would be able not only t o comply w i t h the yard waste separation mandate, but a l s o w i t h i t s o b l i g a t i o n t o provide the most c o s t - e f f e c t i v e yard t r a s h c o l l e c t i o n services t o i t s r e s i d e n t s. [c] The p e r i o d of time f o r which the v a r i a n c e i s sought, i n c l u d i n g the reasons and f a c t s i n support of the time p e r i o d. This variance i s being sought only f o r t h a t period of time necessary t o complete the planning and implementation phase of the County's comprehensive s o l i d waste management program, which i s proposed t o be a maximum of 24 months from signing a contract w i t h the selected vendor. The vendor s e l e c t i o n and n e g o t i a t i o n process i s expected t o be completed by March 1,

5 The reasons and f a c t s i n support of t h i s p a r t i c u l a r time period have already been discussed above. S p e c i f i c a l l y, i t took 2 months f o r Manatee County Government t o develop i t s RFP. I t took 1.5 months f o r proposing f i r m s t o prepare and submit t h e i r responses. I t has taken 2 months thus f a r f o r the County t o i d e n t i f y and evaluate the top s i x f i r m s, and i t i s expected t o take another 1 t o 2 months f o r the County t o make a f i n a l decision about which f i r m can o f f e r the most c o s t - e f f e c t i v e, comprehensive waste reduction program on a long-term basis. I f the S t a t e a u t h o r i z e s Manatee County Government's p r e f e r r e d t i m e t a b l e, the schedule i s a n t i c i p a t e d t o proceed as f o l l o w s : Present-January 31, 1992 Continuing review and comparison of waste reduction proposals February 1, 1992 S e l e c t i o n of vendor February 2-March 1, 1992 Negotiations w i t h selected f i r m ; f i r m begins p e r m i t t i n g process w i t h respect t o f a c i l i t y May 1, 1992-? 12 t o 24 months f o r f a c i l i t y p e r m i t t i n g and development depending on the technology/vendor [d] The requirements which t h e p e t i t i o n e r can meet, i n c l u d i n g the d a t e and time when the requirements w i l l be met. Manatee County's Public Works Department c u r r e n t l y d i v e r t s annually 12,500 tons of pure loads of yard waste from the scale at the Lena Road L a n d f i l l t o a separate area where i t i s processed at the l a n d f i l l s i t e under contract w i t h Resource Recovery I n d u s t r i e s, Inc. Resource Recovery I n d u s t r i e s also operates a p r i v a t e yard wood waste f a c i l i t y i n Palmetto. The County w i l l make p r o v i s i o n f o r increased space on the working face of the L a n d f i l l t o f u r t h e r accommodate the separation of yard t r a s h by p r i v a t e commercial h a u l e r s. Four m u n i c i p a l i t i e s - B r a d e n t o n, Bradenton Beach, Longboat Key and Palmetto-are i n a p o s i t i o n t o o f f e r separate t r a s h c o l l e c t i o n t o t h e i r r e s i d e n t s because they provide t h e i r own c o l l e c t i o n service or have yard t r a s h c o l l e c t i o n as an established p a r t of t h e i r s o l i d waste management. I n these ways. Manatee County Government can, at l e a s t i n p a r t, meet the January 1, 1992, requirements f o r yard t r a s h d i v e r s i o n from the L a n d f i l l. W i t h i n 24 months, the time period t h a t has been discussed throughout t h i s document. Manatee County Government w i l l have been able t o secure an appropriate arrangement t h a t w i l l d i v e r t yard waste from the l a n d f i l l as required by F l o r i d a S o l i d Waste Management Act, and, at the same time, provide Manatee County r e s i d e n t s w i t h the best a l l - a r o u n d, most coste f f e c t i v e h a u l i n g, waste reduction and disposal service p o s s i b l e. 3.

6 [e] The s t e p s or measures t h e p e t i t i o n e r i s t a k i n g t o meet t h e requirements from which the v a r i a n c e i s sought. I f t h e r e q u e s t i s pursuant t o S e c t i o n (1)(b), F l o r i d a S t a t u t e s, t h e p e t i t i o n e r s h a l l i n c l u d e a schedule when compliance w i l l be achieved. At t h i s time, as discussed above. Manatee County Government i s conducting an extensive review of the s i x proposals i n order t o determine the one which best meets the requirements of the County's r e s i d e n t s. County s t a f f does not expect t o be able t o complete t h i s thorough review and i d e n t i f y the best program f o r another 2 months. Then, a f t e r the s e l e c t i o n process, i n c l u d i n g n e g o t i a t i o n s, i s completed, the selected vendor w i l l have t o be allowed s u f f i c i e n t time t o order and receive any and a l l necessary equipment, and too permit and develop the f a c i l i t y. I f the State a u t h o r i z e s Manatee County Government's p r e f e r r e d t i m e t a b l e, the schedule i s a n t i c i p a t e d t o proceed as f o l l o w s : Present-January 31, 1992 Continuing review and comparison of waste reduction proposals February 1, 1992 S e l e c t i o n of vendor February 2-March 1, 1992 Negotiations w i t h selected f i r m ; f i r m begins p e r m i t t i n g process w i t h respect t o f a c i l i t y May 1, 1992-? 12 t o 24 months f o r f a c i l i t y p e r m i t t i n g and development depending on the technology/vendor [ f ] The s o c i a l, economic and environmental impacts on the a p p l i c a n t, r e s i d e n t s of the area and of the s t a t e i f the v a r i a n c e i s g r a n t e d. I f the variance i s granted, i t w i l l provide a p o s i t i v e s o c i a l impact f o r the residents of Manatee County by f o s t e r i n g a s i t u a t i o n where they can p a r t i c i p a t e i n an open decision-making process s t r u c t u r e d t o s e l e c t a w e l l - designed s o l i d waste management program. The p o s i t i v e economic impact on Manatee County's r e s i d e n t s, i f t h i s variance i s granted, w i l l be considerable and f a r - r e a c h i n g. The County Government w i l l be able t o n e g o t i a t e the best deal f o r i t s c i t i z e n s, whereby they can continue t o enjoy one of the State's most c o s t - e f f e c t i v e waste disposal systems, which meets a l l of the waste reduction requirements of the Act and also deals w i t h the yard waste ban. The environmental impact on Manatee County's r e s i d e n t s of g r a n t i n g t h i s variance w i l l be r e l a t i v e l y minor. The ban on l a n d f i l l i n g yard waste i n Class I l a n d f i l l s i s not based on the p o t e n t i a l f o r p o l l u t i o n or environmental degradation but r a t h e r on using the resources of these more secure l a n d f i l l s w i s e l y by d i v e r t i n g yard waste t o other f a c i l i t i e s and i d e a l l y t o productive uses. While County-wide yard waste d i v e r s i o n from 4.

7 ^' ' \ l a n d f i l l i n g w i l l be delayed f o r up t o 24 months beyond March 1, 1992, the eventual program w i l l be more comprehensive and b e t t e r organized than one which went i n t o e f f e c t on January 1, 1992, on the p r e t e x t of meeting the current l e g a l requirements. The approval of t h i s variance, because i t i s so l o c a l i z e d and s p e c i f i c t o the needs of Manatee County's r e s i d e n t s, w i l l not cause any p e r c e p t i b l e s o c i a l, environmental, or economic e f f e c t s t o the region or t o the residents of the State as a whole. [g] The s o c i a l, economic and environmental impacts on t h e a p p l i c a n t, r e s i d e n t s of the area and of the s t a t e i f t h e v a r i a n c e i s denied. I f the variance i s denied, the s o c i a l impact on the r e s i d e n t s of Manatee County w i l l be d i s r u p t i o n created by going t o an i n t e r i m c o l l e c t i o n system which competes w i t h the best long-term s o l u t i o n. The economic impact w i l l be a more c o s t l y s o l i d waste management system f o r a t l e a s t an i n t e r i m period of 3 t o 5 years and possibly longer i f the RFP process i s delayed. The short-term environmental impact would p o t e n t i a l l y be greater i f the County had t o implement an i n t e r i m "minimal technology" yard waste composting f a c i l i t y which may maximize the use of t h i s waste component. The d e n i a l of t h i s variance, because i t. i s so l o c a l i z e d and s p e c i f i c t o the needs of Manatee County's r e s i d e n t s, w i l l not cause any p e r c e p t i b l e s o c i a l, environmental, or economic e f f e c t s t o the region or t o the other r e s i d e n t s of the State as a whole. gbp 5.