37.          YARD DEBRIS

Plant material commonly created in the course of maintaining yards and gardens and through horticulture, gardening, landscaping or similar activities. Yard debris includes but is not limited to grass clippings, leaves, branches, brush, weeds, flowers, roots, windfall fruit, and vegetable garden debris.

 

 

37.1        INTRODUCTION

This chapter of the Douglas County Comprehensive Solid Waste Management Plan (DCCSWMP) outlines the regulatory framework overseeing yard debris, discusses the existing conditions and programs within the Regional Planning Area (RPA), establishes objectives to meet the existing and projected needs, identifies alternatives, and recommends actions for achieving the established objectives.

 

 

37.2        REGULATORY FRAMEWORK

 

37.2.1     Federal Requirements

Federal regulations do not prohibit the disposal of yard debris into permitted landfills. But as with any non-hazardous solid waste the Resource Conservation and Recovery Act (RCRA) emphasizes recycling, reclaiming or reuse whenever possible and when markets are available.

 

37.2.2        State Requirements

The State of Washington Department of Ecology (DOE) does not prohibit the disposal of yard debris into permitted landfills. However, the DOE does regulate compost facilities and sites under Chapter 173.304 WAC. This rule however does not apply to:

 

-                    composting used as a treatment for dangerous wastes;

-                    composting used as a treatment for petroleum contaminated soils;

-                    treatment of liquid sewage sludge or biosolids in digesters at wastewater treatment facilities;

-                    treatment of other liquid solid wastes in digesters;

-                    production of substrate used to grow mushrooms;

-                    vermicomposting (composting with worms).

 

Yard debris that meet the criteria as a Dangerous Waste (DW) must be disposed of according to the requirements of Chapter 173.303 WAC.

 

Organic sludges are defined within WAC 173-304-300(5)

 

37.2.3        Local Requirements

 

Douglas County

Any jurisdiction, agency, private corporation, individual or other entity wishing to import yard debris into Douglas County must conform to the Douglas County Solid Waste Importation Ordinance (DCSWIO). As specified within this ordinance, a formal Letter of Request to the Douglas County Board of Commissioners requesting that their application for solid waste importation be reviewed is required. Only after the Douglas County Board of Commissioners has received a Letter of Request will the review and approval process begin. The Douglas County Board of Commissioners will review the information contained within the Letter of Request with county staff and others. If it is determined by the Douglas County Board of Commissioners that sufficient information has been provided, and that all known potential adverse impacts have been identified, assessed and mitigated, the request may be approved.

 

Within Douglas County no person shall deposit, discard or otherwise dispose of any yard debris upon any public place within the county or upon a private residence or private property not owned by him/her, or in any waters within the county except:

 

-                    when such property is designated by the state or any of its agencies or the county for the disposal of solid waste, and such person is authorized by the appropriate permitting authority to so use such property;

-                    with the prior written consent of the landowner approving of such disposal upon their private property.

 

Additionally, within Douglas County all owners or persons in control of any private residence or other private property shall at all times maintain the premises free of any yard debris that pose a risk to public health and safety, the environment or create a nuisance.

 

 

37.3        EXISTING CONDITIONS

 

37.3.1     Education

An education program has been in place since 1993 to inform the general public about the options available to them concerning the disposal, reuse or recycling of their yard debris. The program has utilized resources through the media (radio, newspaper), pamphlets, brochures and direct personal communications. Yard debris composting and vermiculture brochures are available through the Douglas County Solid Waste Program Office (DCSWPO). Also available is a back-yard compost bin pamphlet that instructs the homeowner on how to construct different types of compost structures. These pamphlets and brochures have been distributed throughout the RPA. Additionally, the DCSWPO maintains a resource center that contains videos, manuals, articles, and other resources concerning composting.

 

Master Composter Program

The Chelan County Master Gardeners, in conjunction with the DCSWPO, offers a Master Composter Program. The mission of the volunteer program is to serve as networkers, educators, researchers, facilitators, consultants and motivators to home composters. In order to become a Master Composter, a person must take forty hours of formal classroom instruction, attend three field trips, spend one day working at the master composter demonstration site and develop and implement a forty hour public outreach plan. Upon completion of the program, the volunteer will be qualified as a Master Composter, receive a Douglas County Master Composter Certificate and become a member of the Douglas County Master Composters.

 

 

 

The Douglas County Master Composter Program has five major goals:

 

-                    to provide every citizen within Douglas County who wishes to compost with the basic knowledge, methods and steps necessary to begin successfully composting at home;

-                    to develop and distribute current, accurate and clear information stressing the ease, convenience and flexibility of backyard composting;

-                    to maintain an active backyard composting demonstration site at their residence;

-                    to demonstrate the proper steps and methods of backyard composting, and to educate the general public as to its benefit;

-                    to implement a countywide community outreach program designed to inform the general public about the Douglas County Master Composter Program and its mission and goals.

 

Master Composter Demonstration Site

The Chelan County Master Gardeners, in conjunction with the DCSWPO, maintains a master composter demonstration site. This demonstration site is to showcase the different and varied types of compost bins, provide a local resource for interested individuals, groups and students to visit and see how composting is done and its benefits and uses. By working in partnership with the Master Gardeners, the general public can see at one site the complete cycle of backyard composting; from generation of the materials, to it's processing and finally to it's beneficial use within the Master Gardener's flowerbeds. Also offered at the demonstration site are instructional talks and workshops put on by the Chelan County Master Gardeners and the Douglas County Master Composters.

 

37.3.2     Technical Assistance

In conjunction with the Douglas County Master Composters, the DCSWPO offers technical assistance to any Douglas County organization, group or individual who may have questions about how to properly compost, what to compost and correct what they are currently doing or not doing with their compost. This assistance consists of consultations, referrals, on-site visits and an annual Backyard Composter Workshop.

 

 

37.4        OBJECTIVES

 

37.4.1     Ensure that Yard Debris is Properly Managed

With the generator being responsible for the proper management of their yard debris, it is very important that the generator properly dispose of their yard debris. Failure of a generator to properly manage their yard debris can pose a direct threat to the public health and safety and the environment.

 

37.4.2     Ensure that Yard Debris Facilities Meet All Federal, State, and Local Regulations

With both state and local regulations specifying how yard debris is to be processed and disposed of, it is very important that the generators of this waste be properly educated. Failure of a generator to properly process or dispose of their yard debris can result in substantial penalties, fines and corrective actions.

 

37.4.3        Ensure that Programs Reflect Local Conditions

With the tendency of regulatory agencies to have a one-size-fits-all approach, it is imperative that all programs be locally supported and accepted. Because of the rural character of Douglas County and its cities and towns, all programs should reflect conditions that exist locally and not be driven by what the DOE deems as efficient or cost effective.

  

37.4.4        Ensure that the Established Agricultural Industry be Protected

With the importation of untreated "green waste" into the RPA a possibility, it is extremely important that this waste be processed and managed in a manner that will not pose a threat to the established agricultural industry. Untreated "green waste" may contain agricultural pests, noxious weeds, bacteria, fungi and other non-indigenous organisms that could be harmful to our established agricultural industry if introduced into the RPA.

 

37.4.5     Ensure that the Public has an Opportunity to Recycle

With restrictions placed on how yard debris is to be processed and disposed of, it is imperative that generators have convenient and economical recycling opportunities available. Failure to provide such opportunities may lead to improper disposal and possible enforcement action against the generator.

 

37.4.6     Establish a Yard Debris Diversion Goal

It is the goal of the DCCSWMP to divert five percent of all yard debris from the waste stream within the RPA.

                                               

 

37.5        ALTERNATIVES

 

37.5.1     Ban all Yard Debris from the GWRLF

Another way to increase source-separated recycling is to prohibit the disposal of yard debris into the Greater Wenatchee Regional Landfill and Recycling Facility (GWRLF). One problem associated with disposal bans is illegal dumping of the banned material. Therefore, an important component of a disposal ban is the development of alternative handling and disposal methods. For example, if yard debris disposal is banned from the solid waste stream, a yard debris collection and recycling facility must be available, convenient and reasonably priced to accommodate the diverted material.

 

37.5.2     Restrict Disposal to only Permitted and Approved Facilities

By restricting yard debris disposal to only permitted and approved facilities, proper disposal, diversion and recycling opportunities will be available within the RPA. This will ensure that the facilities are operated in a manner that protects the public health and safety and the environment. However, there are currently many non-permitted collection and disposal sites within the RPA. As required under Chapter 173.304 WAC, all solid waste facilities are to be permitted by the Chelan-Douglas Health District (CDHD) and inspected at least annually. Facilities failing to obtain or apply for a solid waste facility permit are considered to be illegal dump sites, and are in violation of state law and local regulations.

 

37.5.3     Determine Yard Debris Composting Technologies

The site requirements, length of processing time, labor and machinery demands and costs are different for each technology level, but the end product is essentially the same. Chapter 173.304 WAC, specify what site and operational control and requirements must be met by each technology level in order to be permitted to process yard debris. In general, the higher the level of technology the more specialized equipment, process control system, environmental monitoring, and quality control standards are needed. However, the decomposition of the yard debris is achieved faster with the higher level of technology and less land area is needed to process the yard debris. Low-end technology normally takes less equipment, a simpler process control system, a longer time to decompose and a larger land area. All yard debris composting technologies must be designed to accommodate the specific characteristics of the organic waste stream within the RPA. The available techniques for yard debris composting can be classified into three groups:

 

-                    minimum-level technologies,

-                    intermediate-level technologies,

-                    high-level technologies.

 

Minimum-Level Technologies

In this technology, yard debris is formed into long piles (windrows) about 12 feet high and 24 feet wide and the material is not chipped or ground before its formed into windrows. Under this technology the yard debris can be managed as either anaerobic and turned infrequently, or managed aerobically and turned frequently. Aerobic composting typically takes much less time than anaerobic composting. If substantial amounts of woody debris are in the mix, composting may take longer than otherwise expected. The equipment required typically includes a front-end loader and screening equipment. Infrequent turning of the windrows allows for a composting process between 12 and 18 months.

 

Intermediate-Level Technologies

Intermediate-level technology is similar to the minimum-level alternative, but involves the use of specialized equipment such as chippers, grinders, windrow turners and screens. If significant amounts of branches and other woody debris are collected, chippers and grinders can reduce the volume and size of the material, which accelerates the composting process. The material is placed into a windrow, which is typically 6 feet high, 12 feet wide, and of variable length. The windrows are turned when the internal pile temperature drops. Regular turning of the windrow keeps them aerobic, which results in a more rapid composting process of between 9 and 12 months.

 

High-Level Technologies

High-level technology can be found in two forms. The first involves forced aeration of the windrows during the first stage of composting by temperature controlled blowers. The windrows are typically turned daily to maintain a high rate of composting. The second high-level technology involves a reactor vessel, which accelerates the composting process. Both methods require sophisticated process control systems and continuous monitoring. Typical composting times are between 2 and 8 weeks. The processed material must "cure" several months before being released to the market.

 

37.5.4     Investigate Yard Debris Collection Options

Because of the rural characteristics of the RPA, and the distance of travel between the participating jurisdictions, the options for a yard debris collection program are limited. Traditionally, the yard debris collection options include:

 

-                    mobile drop-boxes,

-                    permanent drop-off center,

-                    curbside collection.

 

Mobile Drop-Boxes

A mobile drop-box system involves the placement of portable containers, typically 40 cubic yard in size, at identified sites. The diversion potential of these mobile drop-boxes depends on many factors including:

 

-                    convenience of location,

-                    hours of operation,

-                    frequency of pick-up.

 

Typically household residents must collect and transport their yard debris to the drop-off boxes on a weekly basis during the spring, summer and fall months. It is therefore critical that the identified sites be conveniently located. For households that have sizable grounds, the large volume of yard debris may make delivery to the drop-off boxes difficult, possibly requiring a truck to deliver the yard debris to the drop-off boxes. For large yard debris generators, such as school districts, parks departments, cemeteries and commercial lawn care businesses, it may be necessary to place drop-boxes at locations that are convenient to them. Contamination is the major problem involved in the operation of a drop-off box system, followed by inadequate servicing of the drop-off boxes, leading to costly clean up and public complaint. A mobile drop-off box system requires specialized containers and trucks to haul them, have high operation and maintenance costs and typically diverts less than 5 percent of the yard debris waste stream. For a mobile drop-off box system to be successful, it is imperative that a good public education and awareness program be implemented and sustained.

 

Permanent Drop-Off Center

Residential, public and private generators of yard debris could take their yard debris directly to permanent drop-off centers. The permanent drop-off centers would have established operating hours and be staffed. This alternative could divert more yard debris than a mobile drop-box system because it is more convenient, and the ongoing presence of the drop-off center reminds residents of the opportunity to recycle their yard debris. In addition, permanent drop-off centers are better able to handle yard debris from large yard debris generators, such as school districts, parks departments, cemeteries and commercial lawn care businesses.

 

Curbside Collection

Curbside collection of yard debris could be conducted as described for residential recyclables. This would provide the most convenient method for generators to participate in the program. Yard debris can be set out bagged or in wheeled containers. Most communities providing curbside collection provide large, wheeled containers for the yard debris. Some communities encourage residents to purchase biodegradable bags suitable for inclusion in the compost mix. Yard debris can also be collected in dump trucks or compactor trucks. Although the frequency of collection varies statewide, the most common has been weekly collection. It may be necessary to vary the collection frequency during the winter months when the volume of yard debris is negligible, or to eliminate curbside collection all together during those months. Yard debris collection programs are currently allowed as a voluntary service within Washington State Utilities and Transportation Commission (WUTC) franchised areas. However, the WUTC does not allow a mandatory yard debris collection fee to be embedded into the franchised haulers solid waste rates.

 

37.5.5        Investigate Yard Debris Implementation Incentives

Most households within the RPA pay more for each additional can of solid waste they set out on the curb. With yard debris constituting approximately five percent of the solid waste stream, any program that would divert that material from the waste stream could provide a direct cost savings to the resident. By implementing a yard debris collection program that reduces the volume being collected at the curb, while costing the resident less than the additional can, an incentive would be created to participate in the program. This alternative would allow the resident the opportunity to reduce their traditional curbside service to possibly a mini-can or bi-weekly collection and only pay for what they throw away. The DCSWPO should enhance the yard debris collection program by offering backyard composting workshops, conducting mulching seminars, subsidizing compost bin sales and providing composting and vermiculture education. The participating jurisdictions could assist the yard debris collection program by requiring mandatory yard debris collection, thus spreading the cost of the collection program over the maximum number of households.

  

37.5.6        Investigate Local Yard Debris Markets

The quality of the compost and the size of the local and regional market will determine the economic viability of a yard debris composting program. Most rural counties within the state have found that, at least in the early stages of yard debris composting, it was not possible to charge for the processed compost, and so revenues were not generated. Some eastern Washington rural counties have even subsidized their programs in order to market their processed compost. Ultimately, in order to be successful a yard debris composting program must be cost-effective, with collection and processing costs less than traditional disposal methods (i.e. landfilling, exportation).

 

The primary markets within the RPA for yard debris compost are:

 

-                    municipal use (i.e. parks, cemeteries, fairgrounds, right-of-ways etc.)

-                    agricultural use,

-                    nurseries,

-                    landscaping firms.

 

A market development strategy should be developed prior to the implementation of a yard debris collection program. Potential users should be identified and contacted, so that end-use markets would be secure. Product standards would have to be established based upon these end-use markets, so that the potential users of the yard debris compost would be assured a usable product that would have a value to them. A market development strategy should also include developing a regional product name, conducting regular testing and chemical analysis of compost products, maximizing the amount of yard debris collected by lowering tipping fees for yard debris, requiring the participating jurisdictions to establish procurement policies, supporting yard debris diversion and use ordinances and policies, and consulting specialized marketing organizations familiar with compost products and markets.

 

There are several barriers to marketing yard debris. Studies have shown it is relatively inefficient and cost prohibitive to transport yard debris over fifty miles from its point of processing to the end-user. In addition to transportation inefficiencies, a perception exists among end-users that compost made from yard debris contains contaminants and is of low quality. Another limiting factor for processed compost is determining which end-user you wish to market the compost to. Different groups of end-users have varying product specifications and standards, making general marketing difficult.

 

37.5.7        Haul Collected Yard Debris from the GWRLF to the Ellensburg Compost Facility

Ellensburg currently hauls their Municipal Solid Waste (MSW) to the GWRLF for disposal and these trucks then return to Ellensburg without a load. It could be beneficial to use these trucks to back haul yard debris generated within the RPA to Kittitas County's composting site in Ellensburg. This would reduce the amount of yard debris entering the GWRLF and would allow the returning trucks to transport a load thus eliminating the empty back haul for the returning trucks.

 

37.5.8        Site a Regional Yard Debris Compost Facility within the Greater East Wenatchee Area

The GWRLF estimates that approximately forty percent of the municipal waste stream during the spring, summer and fall months is composted of organic material. Additionally, a large volume of yard debris is currently being illegally dumped within the Greater East Wenatchee Area, primarily by commercial yard care and landscaping businesses. Siting and permitting a regional yard debris compost facility within the Greater East Wenatchee Area could divert this volume from the GWRLF and provide an opportunity for the commercial and landscaping businesses to recycle their yard debris. A number of processors within the region have expressed interest in having an organic waste composting facility within the area for their organic waste. This material is currently being transported out of the area at significant costs to be utilized as cattle feed. A working group of interested parties could be formed to discuss the practicality and determine the level of support for a regional organic waste composting facility within the Greater East Wenatchee Area. This facility could be privately owned and operated and would utilize high-level technology to achieve compost within eight weeks. A feasibility study should be conducted to determine the economic viability of a regional organic waste composting facility within the Greater East Wenatchee Area.

 

37.5.9        Site Community Yard Debris Compost Facilities in Bridgeport, Mansfield and Waterville

Because of the small volume of yard debris and the distance to travel, the City of Bridgeport and the towns of Mansfield and Waterville should site community organic waste composting facilities within their jurisdictions. These community facilities would provide a local and convenient opportunity for the residents of Bridgeport, Mansfield and Waterville to divert their yard debris from the waste stream. These facilities should be staffed and have established operating hours in order to be convenient to the residents. Organic wastes from large generators such as school districts, parks and cemeteries should be accepted at a reduced rate or have exchange rights for processed compost. Additionally, these facilities could co-mingle the dredging of their sewage lagoons with the organic material, thus producing a nutrient enhanced compost. Each community organic waste compost facility would consist of a:

 

-                    fenced enclosure,

-                    office/ticket house,

-                    equipment/maintenance shed,

-                    collection area,

-                    stormwater/leachate holding ponds,

-                    pre-processing area (chipper),

-                    procession area (windrows),

-                    storage area (screen).

 

The community organic waste compost facilities would have to meet all standards specified within Chapter 173.304 WAC, as well as any local siting and permit requirements. The technology utilized would be intermediate, and the process would take between 9 and 12 months to produce compost. It is projected that all compost generated by these facilities would be locally utilized.

 

37.5.10     Develop a Yard Debris Technical Assistance Program

The DCSWPO could offer assistance to commercial yard debris generators by conducting workshops, providing regulatory guidance and on-site consultation. These services could offer the commercial generator valuable assistance in gaining experience and knowledge that can take months or years to develop without outside assistance. For example, by utilizing the DCSWPO Resource Center the commercial generator would have access to federal, state and local regulations, requirements and guidance as it pertains to the proper management of yard debris. The DCSWPO should continue to assist the general public by conducting annual Backyard Composting Workshops, providing technical manuals and fact sheets on composting and vermiculture and by providing on-site consultation.

 

37.5.11     Develop a Yard Debris Education Program

The DCSWPO should continue to offer the Master Composter Program. This program provides training to individuals who, once certified, perform community service projects throughout the RPA, provide outreach to interested individuals, groups clubs, etc., maintain the Master Composter Demonstration Site, assist individuals with maintaining a successful backyard composting program and serves as a general support and service group for individuals interested in composting. Additionally, in conjunction with the Chelan County Master Gardeners, the DCSWPO should continue to support the Master Composter Demonstration Site.

 

The DCSWPO should develop a yard debris education program. This program would specifically provide commercial generators and the general public with information about the proper methods, processes and control measures to successfully compost yard debris. The program should also provide information on what is yard debris, how it is regulated, where it can be disposed of, and other similar information. The DCSWPO should develop brochures and information sheets to educate the public, generators and regulatory authorities about how yard debris is to be managed properly. The reuse of yard debris should be stressed over landfilling.

 

37.5.12   Monitor and Track Yard Debris

The DCSWPO needs to monitor and track all yard debris to determine who is generating the yard debris, the volume of yard debris being generated, where it originated from, where it is being disposed of, and how it is being disposed of. Without knowing these basic facts, it is impossible to properly manage the solid waste stream within the RPA. Therefore, the DCSWPO should establish a data tracking program which monitors and tracks all yard debris disposed of within the RPA annually.

 

 

37.6        RECOMMENDATIONS

 

37.6.1     Restrict Disposal to Only Permitted and Approved Facilities

 

37.6.2     Conduct a Yard Debris Collection and Composting Feasibility Study

 

37.6.3     Implement a Yard Debris Technical Assistance Program

 

37.6.4     Implement a Yard Debris Public Education Program

 

37.6.5     Monitor and Track Yard Debris