38. FOOD WASTE
Residual food from residences, institutions or commercial facilities, unusable portions of fruit, animal or vegetable material resulting from food production or organic sludges produced from the processing of fruit or vegetable materials.
38.1 INTRODUCTION
This chapter of the Douglas County Comprehensive Solid Waste Management Plan (DCCSWMP) outlines the regulatory framework overseeing food waste, 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.
38.2 REGULATORY FRAMEWORK
38.2.1 Federal Requirements
Federal regulations do not prohibit the disposal of food waste into permitted landfills. But as with any non-hazardous solid waste the Resource Conservation and Recovery Act (RCRA) emphasis recycling, reclaiming or reuse whenever possible and when markets are available.
38.2.2 State Requirements
The State of Washington Department of Ecology (DOE) does not prohibit the disposal of food waste 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 waste;
- 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 waste in digesters;
- production of substrate use to grow mushrooms;
- vermicomposting (composting with worms).
Organic sludges are regulated under WAC 173-304-300(5), which complies with the Municipal and Domestic Sludge Utilization Guidelines WDOE 82-11 dated September 1982 or as hereafter amended.
38.2.3 Local Requirements
Any jurisdiction, agency, private corporation, individual or other entity wishing to import food waste 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 food waste 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 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 food waste that pose a risk to public health and safety, the environment or create a nuisance.
38.3 EXISTING CONDITIONS
Most food waste within the RPA is generated from grocery stores, produce stores and restaurants. This food waste is traditionally disposed of within the Municipal Solid Waste (MSW) stream. The majority of the food waste generated by grocery stores, produce stores and restaurants are discarded into their solid waste collection containers, picked up by the waste hauler and disposed of at the GWRLF.
Organic sludge, primarily from Tree Top and Naumes, are imported into the RPA and utilized as a soil conditioner. Most of these organic sludges are a bi-product of the fruit juice making process and have a high liquid content. These liquid organic sludges are transported by truck into the RPA and injected into the soil as a soil conditioner.
38.4 OBJECTIVES
38.4.1 Ensure that Food Waste is Properly Managed
With the generator being responsible for the proper management of their food waste it is very important that the generator properly dispose of their food waste. Failure of a generator to properly manage their food waste can pose a direct threat to the public health and safety and the environment.
38.4.2 Ensure that all Food Waste Facilities Meet all Federal, State, and Local Regulations
With both state and local regulations specifying how food waste 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 food waste can result in substantial penalties, fines and corrective actions.
38.4.3 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.
38.4.4 Ensure that the Established Agricultural Industry is Protected
With the importation of untreated food 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 food 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.
38.4.5 Ensure that the Public has an Opportunity to Recycle
With restrictions placed on how food waste 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.
38.4.6 Establish a Food Waste Diversion Goal
It is the goal of the DCCSWMP to divert five percent of all food waste from the waste stream within the RPA.
38.5 ALTERNATIVES
38.5.1 Ban all Food Waste from the GWRLF
Another way to increase source-separated recycling is to prohibit the disposal of food waste into the 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 food waste disposal is banned from the solid waste stream, a food waste collection and recycling facility must be available, convenient and reasonably priced to accommodate the diverted material.
38.5.2 Restrict Disposal to Only Permitted and Approved Facilities
By restricting food waste 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. 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.
38.5.3 Export all Food Waste Outside of the RPA
Most food waste generated within the RPA is disposed of within the municipal solid waste (MSW) stream. Traditionally, the food waste is discarded into the solid waste collection container, picked up by the waste hauler and disposed of at the GWRLF. Though there may be a specific market for food waste as a livestock feed source, the small volume generated, high handling costs to separate from the MSW stream and the distance to disposal or processing outside the RPA, makes the exportation of food waste cost prohibitive.
38.5.4 Investigate Composting Food Waste with Yard Debris
A typical food waste processing facility receives the bulk of its food waste from fruit and vegetable processors, grocery stores, produce stores and restaurants. Food waste is traditionally mixed with a carbon source, normally chipped wood waste, and composted to reduce the volume significantly. The compost is then further processed by turning it for consistency and passing it through a screen. The finished compost material is screened so that the end product, meet specific size and cleanliness standards. Finished compost can be used as landscape material, nursery bedding material and as a soil amendment. Food waste processing facilities generate most of their revenues from tipping fees on the incoming food waste.
Another use of food waste is as a feed source for livestock. The food waste is traditionally loaded onto trucks and shipped to the stockyards, dairies, feed lots, etc. No processing of the food waste is necessary. However, the cost of transportation can be fairly high and is the primary limiting factor.
Because of the rural characteristic of the RPA, the unknown volume of food waste available and the uncertainty of end-markets, a feasibility study should be undertaken to determine the economic viability of any food waste processing facility prior to its siting and construction.
38.5.5 Encourage Beneficial Use of Food Waste
Beneficial use of food waste should be encouraged if it does not threaten the public health and safety and the environment of the RPA. Current state regulations allow processed food waste to be land applied at agronomic rates to the soil as a soil conditioner. Through the nutrient value of food waste is low, the material can improve the tilth of the soil. Because food waste attracts vectors, it is necessary to incorporate the food waste into the soil as soon as it is delivered to the incorporation site. Fruit processing waste, that have a high liquid content, may be directly injected into the soil. Food waste that has been composted with other organic material can be safety utilized as a soil conditioner without incorporation
38.5.6 Develop a Food Waste Technical Assistance Program
The DCSWPO could offer assistance to commercial food waste 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 food waste. The DCSWPO should continue to assist the general public by conducting annual Backyard Composting Workshops, providing technical manuals and fact sheets on how to properly compost (vermiculture) food waste.
38.5.7 Develop a Food Waste Education Program
The DCSWPO should develop a food waste 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 food waste. The program should also provide information on what is food waste, 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 food waste is to be managed properly. The reuse of food waste should be stressed over landfilling.
38.5.8 Monitor and Track Food Waste
The DCSWPO needs to monitor and track all food waste to determine who is generating the food waste, the volume of food waste being generated, where it originated from, where it is being disposed of, and how is it 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 food waste disposed of within the RPA annually.
38.6 RECOMMENDATIONS
38.6.1 Restrict Disposal to Only Permitted and Approved Facilities
38.6.2 Conduct a Food Waste Collection and Composting Feasibility Study
38.6.3 Encourage Beneficial Use of Food Waste
38.6.4 Implement a Food Waste Technical Assistance Program
38.6.5 Implement a Food Waste Education Program
38.6.6 Monitor and Track Food Waste