SOLID WASTE MANAGEMENT
IN THE TERRITORY OF GUAM
This report (SW-l8ts) was written by
Harry R. Little
U.S. DEPARTMENT OF HEALTH, EDUCATION, AND WELFARE
Public Health Service
Consumer Protection and Environmental Health Service
Environmental Control Administration
Bureau of Solid Waste Management
1969
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Single copies of this publication will be distributed as
supplies permit. Address requests to the Bureau of Solid
Waste Management, 5555 Ridge Avenue, Cincinnati, Ohio 45213-
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FOREWORD
IN KEEPING WITH the basic purpose of the Solid Waste Disposal Act
of 1965, one of the functions of the Bureau of Solid Waste Management
is to provide technical assistance to those State, local and private
agencies who request help in the planning, development, and imple-
mentation of improved solid waste disposal programs. At the request
of the Government of Guam, the Bureau conducted a basic data survey
to study waste generation, collection practices, and disposal and
management methods on the island. The basic data and the study
are reported in the following publication (SW-l8ts). Our findings
and recommendations will hopefully be useful in establishing more
efficient, economic methods of solid waste collection and disposal
on Guam, where special problems in solid waste management have been
created by climate, topography, limited land area, and military
installations. The study methods described in the report may be
applicable to other areas with similar solid waste management
problems.
--RICHARD D. VAUGHAN, Director
Bureau of Solid Waste Management
i i i
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CONTENTS
INTRODUCTION 1
REPORT SUMMARY 3
RECOMMENDATIONS 7
GENERAL DESCRIPTION OF GUAM 13
Topography 13
Geology 16
Climate 16
Population and Development 17
STUDY PROCEDURE k . . 23
RESULTS AND DISCUSSION 25
Solid Waste Generation 25
Residential 25
Commercial 33
Government 35
Hotels and Motels 35
Parks 35
Industrial 35
Agricultural 37
Hospitals and Clinics 37
Schools 37
Labor Camps ^tO
Abandoned Automobiles ^0
i v
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Sol id Waste Storage k2
Residential 42
Commercial and Institutional 5'
Solid Waste Collection 52
Solid Waste Disposal 63
Management of Solid Waste Collection and Disposal 68
Organization 68
Manpower 69
Legislation 71
Budget 71
Solid Waste Management on Military Bases 72
Naval Operations 72
Andersen Air Force Base 77
REFERENCES 80
ACKNOWLEDGMENTS 81
APPENDICES 83
A Report of Observations on Solid Waste Management
Practices, Island of Guam, November 1968 85
B Sample Size to Determine Solid Waste
Densities 97
C Solid Waste Separation 99
D Moisture-Content Determination 100
E Effect of Rainfall on Moisture Content
of Solid Waste 103
F Collection Times and Time-Study Procedure 107
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G Equipment Needs ...................... 110
H Present Legislation .................... ]]2
TABLES
1 Summary of Estimated Amounts of Solid Waste Generated
in Civilian Areas of Guam, by Sector ............ k
2 Reported Temperatures on Guam ............... 18
3 Summary of Rainfall at Agana Naval Air Station,
Guam, 1952-62 ... .................... 19
k Population of Guam .................... 21
5 Distribution of Residential Dwelling Units on Guam,
March 1, 1969 . ...................... 26
6 Collected Residential Solid Waste ............. 27
7 Estimated Volume and Weight of Residential
Solid Waste Collected ................... 29
8 Composition of Residential Solid Waste in Guam,
February 26,1969, to March 5, 1969 ............. 30
9 Composition of Residential Solid Waste in Guam
and the Continental United States ............. 31
10 Distribution of Commercial and Government
Activities in Guam .................... 3^
11 Estimated Amounts of Solid Waste Generated
Annually by Hotels and Motels on Guam ........... 36
12 Number and Volume of Solid Waste Samples from Selected
Schools on Guam, February 25 to March 7, 19&9 ....... 38
13 Estimated Weight of Solid Waste Generated by All Schools
on Guam ....... ................... 39
14 Amount of Solid Waste Generated by Labor
Camps on Guam . ...................... 41
15 Productivity of Collection Vehicle by Type of
Truck and Route ...................... 56
v i
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16 Department of Public Works Partial
D-l
E-l
Solid Waste Moisture-Content Determination, Territory of
Guam, February 26, 1969, to March 5, 1969
Average Rainfall at Agana Naval Air Station,
Guam, 1952-62
101
105
FIGURES
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
Location of Guam
Territory of Guam
Distribution of Residences on Guam, by Type of
Waste-Storage Container
Solid Waste Ready for Collection
Solid Waste Storage Area Before Collection
Distribution of Residences on Guam Using 55~gal Waste-
Storage Drums, by Number of Drums
Distribution of Residences on Guam Using 32-gal Waste-
Storage Containers, by Number of Containers
Distribution of Waste-Storage Containers Used on
Guam, by Container Volume
Residential Storage-Container Locations
Burning in Storage Containers
Two 32-gal Containers on Rack (Note 55~gal Drums
Also Present)
A 20-cu-yd Packer Truck
An 18-cu-yd, Top-Loading Packer Truck
A 12-cu-yd Dump Truck
Loading a Packer Truck (Note Yard Wastes)
Loading a Top-Loading Packer Truck
14
15
43
44
44
45
46
47
48
50
50
53
54
54
61
61
VI I
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17 Loading a Dump Truck (Tailgate Down) 62
18 Loading a Dump Truck Over the Side 62
19 Solid Waste Disposal Sites 6k
20 Yigo Dump 65
21 Ordot Dump 65
22 Filled Area of Ordot Dump 66
23 Agat Dump 66
2A Bulk Containers (Naval Station) 73
25 Large Bulk Container (Naval Station) 73
26 Stationary Compactor (Naval Station) 75
27 "Shark Pit" Disposal Site (Naval Station) 75
28 Sanitary Landfill (Naval Station) 76
29 Disposal of Waste Oils (Naval Station) 76
30 Storage Containers (Andersen Air Force Base) 78
31 Trench Landfill Operation (Andersen Air Force Base) ... 78
32 Burned Waste (Andersen Air Force Base) 79
33 Dump for Bomb Cartons (Andersen Air Force Base) 79
E-l Relation Between Rainfall, Moisture Content, and
Unit Weight of Solid Waste 106
F-l Field Survey Collection-Time Data Sheet 108
VIII
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SOLID WASTE MANAGEMENT IN THE TERRITORY OF GUAM
Solid waste collection and disposal is a growing problem in the
Territory of Guam. Considerable effort has gone into studying the
shortcomings of the solid waste system of the Territory, and this effort
resulted in a report by Eldon P. Savage in January 1966 and another by
Albert E. Bertram in September 1967- Both reports defined problem areas
and made recommendations for improving collection and disposal practices,
In 1968 the Government of Guam requested assistance from the Bureau of
Solid Waste Management through the San Francisco Regional Office of the
U.S. Public Health Service for further study of their system. Accord-
ingly, Mr. Donald M. Keagy, Solid Waste Management Representative, En-
vironmental Control Administration, Region IX, and Mr. Jack DeMarco,
Deputy Director, Division of Technical Operations, Bureau of Solid
Waste Management, went to Guam in August 1968 to confer with local offi-
cials on the extent of assistance needed. A report on their visit was
submitted to the Government of Guam in November 1968 (Appendix A).
In an effort to assist the Government of Guam in implementing the
recommendations of that report, the Division of Technical Operations
agreed to conduct a basic data survey on the island. The study took
place from February 23 through March 7, 1969, and concentrated primarily
on collection practices and waste generation. Attention was also given
to management and disposal methods.
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The study was directed by Claude A. J. Schleyer, Chief, Systems
Section, Technical Assistance and Investigations Branch, Division of
Technical Operations, Bureau of Solid Waste Management. Harry R. Little
served as project officer and was directly responsible for the devel-
opment of the study protocol. Ronald A. Perkins was the third member
of the study team and has worked up much of the technical data.
The objectives of this report are to define and evaluate existing
solid waste management practices and conditions in the Territory of
Guam, and to recommend corrections and improvements to the system.
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REPORT SUMMARY
A brief summary of the study team's findings appears on these
pages .
Solid Waste Generation
Res i dent i al. Residential solid waste on Guam was estimated at
178,460 cu yd, or 23,600, tons per year (Table 1). This amount was
collected from a civilian area population of 61,283 as of January 1,
1969. The waste that was studied contained 44 percent combustibles
and 56 percent noncombustibles by weight, as received.
Commerc ia1. Commercial solid waste was estimated at 11,180 tons
per year. This total includes government buildings and clinics.
Hotels and Motels. Using a previously determined factor of 0.6
Ib of solid waste per occupant per day, it was estimated that about
100 tons of waste are collected from hotels and motels annually.
Hospi tal. The solid waste from Guam Memorial Hospital was esti-
mated at 0.9 tons per day, or 330 tons per year.
Schools. School waste was estimated to be 6.48 tons per school
day, or 1,170 tons per year. This is based on an observed amount
of 0.11 cu ft of solid waste per student per day, and 4.4 Ib per cu
ft.
Labor Camps. Labor camps are estimated to produce about 1,090
tons of solid waste per year from a population of 1,865.
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TABLE 1
SUMMARY OF ESTIMATED AMOUNT OF SOLID WASTE GENERATED
IN CIVILIAN AREAS OF GUAM, BY SECTOR
Sector Tons/day Tons/year
Residential 6*4.7 23,600
Commercial 30.6 11,180
Government"
Hotel and Motel 0.3 100
Industri al
Agr i cul tural
Hospi tal
School
Labor camps
Total
-
0.9
3.2
3.0
102.7
-
330
1,170
1,090
37,470
'^Included in commercial sector.
Smal1 amount.
Mili tary. The Navy estimates that their activities generate
650,000 cu yd of solid waste per year, and the Air Force sets their
estimate at 390,840 cu yd per year. If a unit weight of 5.6 Ib per
cu ft is assumed, these amounts become 48,000 and 30,000 tons per year,
respectively.
Abandoned Vehicles. There are approximately 2,000 abandoned
vehicles on the island that are not located in organized storage areas.
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Solid Waste Storage
Eighty percent of the storage containers encountered on Guam
were 55~gal drums, 10 percent were 32-gal containers, and the remaining
10 percent were other types. Burning and littered storage areas
were common.
The average weight of the storage containers was 65 lb when
loaded and 42 lb when empty. Thus, only 23 lb, or 35 percent of
the total weight, was actually waste to be collected.
Solid Waste Collection
Collection of solid waste is the responsibility of the Department
of Public Works. For this purpose, ten trucks are operated on a
day shift and three on an evening shift during the 6-day work week.
Both packer trucks and dump trucks are used. It was found,
however, that dump trucks take 238 percent as much time as packer
trucks to collect waste from a "typical" mile of residences on Guam.
Solid Waste Disposal
The Government oi Guam operates five solid waste disposal sites,
all of which are open, burning dumps. There is an operator and a
single bulldozer at one dump, but no attempt Is made to cover the
waste.
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RECOMMENDATIONS
The Territory of Guam has a serious solid waste management prob-
lem. Major planning and financial effort on the part of the Government
of Guam must begin now if progress is to be made. The Territory must
establish regular collection of solid waste, provide adequate facili-
ties to dispose of all waste in a sanitary manner, and have the ability
to meet emergency needs during periods of large waste production that
would follow a typhoon or similar catastrophe.
To achieve the goal of regular collection of solid waste, the
following measures are recommended:
1. The Department of Public Works should secure sufficient equipment
and manpower to provide twice-weekly collection from all residences
and businesses and daily collection from schools, hospitals, gov-
ernment offices, and food preparation establishments.
a. It is estimated that nine additional packer trucks similar to
those already on hand will be needed to provide this service
(Appendix G). Back-up equipment will also be needed.
b. Twelve drivers and 24 collectors will be necessary for the
packer trucks.
c. Salaries should be raised to attract enough qualified workers.
Collectors work harder than common laborers and should there-
fore receive more pay.
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d. A training program for new employees and continued training
of crews should be instituted to insure safe and efficient
operation of the equipment.
e. Candidates for collectors and drivers should be subjected to
physical and mental aptitude examinations in keeping with
the position for which they are applying.
2. The dump trucks that are presently being used should be retained
for the collection of bulky waste and as back-up units for the
packers .
3. The Refuse Division should be headed by one person with three
supervisors under him who will have direct responsibility for the
crews .
k. Night shift operations should be eliminated. With the present level
of training and the lack of supervision, operation of packer trucks
at night results in unnecessary exposure of workers to accidents.
5. A third collector should be placed on the dump trucks as an interim
measure until new equipment \s purchased. The driver could then
remain in the cab at stops and speed up collection.
6. The statutes prohibiting on-site, open burning of solid waste
should be enforced.
7. The size and weight of storage containers should be specified and
enforced.
8. Yard and bulky waste should be bundled for collection. Bundles
should be less than 5 ft long and weigh under 75 lb.
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9. Solid waste storage containers should be kept at the rear of the
residences rather than at the curb. Homeowners should carry out
their waste on the day of collection and return their empty con-
tainers. This arrangement will require the establishment of set
routes that will be collected on specific days.
10. The possibility of using liners in storage containers should be
investigated since they would allow additional storage capacity
and would make curbside carryout easier.
11. The possibility of using bulk containers at schools, hospitals,
offices, and other large waste producers should be investigated.
Two of the present trucks are capable of handling bulk containers.
12. A system of tagging unsafe or unlawful containers should be in-
stituted. Collectors could mark such containers and indicate
that they will no longer collect them.
Improved collection will result in greater amounts of solid waste
that must be disposed of in a safe and sanitary manner. It is therefore
recommended that:
1. the five open-burning dumps be closed, with due regard for insect
and rodent control;
2. a single sanitary landfill be established;
3. the Ordot dump, Agana swamp, and several abandoned quarry pits be
included in the engineering investigations that will be necessary
to select the best site.
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Improvements can also be made in administrative practices. A
cost-accounting and control system applicable to efficient solid waste
management should be instituted. The first steps should include
keeping daily records on the production of each collection crew and
on the amounts of waste received at the landfill. The latter should
be done on a weight received basis, but it could also be done on a
volume bas is .
Present legislation (Appendix H) is in need of major revision.
Special attention is needed in the following sections:
§9660. Definitions should be expanded and updated in accordance
with present terminology.
§9660.2. Reference to metal containers should be omitted and capa-
city limited to 20 to 32 gal with an empty weight of less than
20 Ib.
§9660.3. Rubbish should be required to be placed in approved con-
tainers with tight-fitting lids. Large items such as tree limbs,
weeds, etc. should be securely tied in bundles not to exceed 60 in.
in length or 75 Ib in weight.
§9660.6. Garbage, rubbish, and other offensive substances should
be limited to disposal in a sanitary landfill. Placing solid waste
in or near water sources should be prohibited.
§9660.7. This section should end after the word "substances" in
line five, so that all burning of garbage, dead animals, or other
offensive substances (except in an approved incinerator) would be
prohibi ted.
10
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59660.12, 59660.13, §9660.1^, and §9660.16. These sections
should be revised in accordance with disposal in a sanitary land-
fill.
A section should be added to provide penalties for the violation of the
provisions of this act.
To enlist the cooperation of the people of Guam, certain steps
should be taken, including the establishment of a public relations
program to make people aware of the problems and of the Government's
efforts to resolve them.
The Government of Guam collects and disposes of less than a third
of the solid waste collected on the island. Navy and Air Force author-
ities are faced with a large responsibility in this area that is not
in keeping with their primary mission. It is therefore possible that
they would relinquish their activities in solid waste management to a
competent local authority. In this light, it is recommended that the
Government investigate the possibility of combined, island-wide collec-
tion and disposal and the possibility of using existing military solid
waste disposal sites.
!n keeping with the above recommendations, it is further recommended
that the Territory of Guam develop a comprehensive solid waste manage-
ment plan that will extend through the year 2000.
11
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GENERAL DESCRIPTION OF GUAM
Guam is the southernmost island in the Marianas chain and is a
territory of the United States (Figure 1). It is governed by a presi-
dential ly appointed governor and guided by a group of 21 elected senators
Each of the 19 districts elects a commissioner, and although he has
no official powers, he usually exercises a great deal of influence over
the people of the district.
The island of Guam has an area of about 212 square miles (Figure 2).
It is 30 miles long, and varies from a width of 8i miles in the northern
part, to 4 miles at the central part, to lli miles in the southern part.
Most of the following information on the topography, geology, cli-
mate, population, and development of Guam has been quoted directly from
a geological survey paper published by the U.S. Department of the In-
terior. 1
Topography
The northern half of Guam is a gently undulating limestone plateau
bordered by steep wave-cut cliffs. The plateau slopes generally
south-westward from altitudes of approximately 600 feet in the
north to less than 100 feet at the narrow midsection of the island.
The generally uniform surface is interrupted by three hills --
Barrigada Hill (665 ft), which is a broad limestone dome, and Mount
Santa Rosa (858 ft) and Mataguac Hill (630 ft), which are composed
of volcanic rock.
No perennial streams exist on the plateau because of the high per-
meability of the limestone. Water may flow in short channels in
the limestone during heavy rains, but it soon disappears into
numerous sink holes and fissures. Local runoff has eroded gullies
in the volcanic rock of Mount Santa Rosa and Mataguac Hill, but
here also the water sinks rapidly into the limestone that surrounds
the hills.
13
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Andersen
Air Force Bo
0123 4 Miles
Figure 2. Territory of Guam.
15
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It would therefore not be advisable to locate sanitary landfills
in the northern part of the island unless adequate precautions were
taken to prevent drainage from the fill into the porous limestone. It
is expected, then, that any landfill would be located In the southern
portion of the island, which is primarily voltan c in origin.
Geology
The principal rock in the plateau in northern Guam is the Barrigada
Limestone, which lies unconformably on an irreyular surface eroded
fn volcanic rock of the Alutom Formation and is overlain by a
veneer of the Mariana Limestone. The base of the Sarrigada under
most of the plateau is below sea level. The volcanic rock extends
above sea level in an area of several square miles near the northern
end of the island and projects through the limestone at Mount Santa
Rosa and Mataguac Hill. Most of the limestone in trie plateau con-
tains numerous caverns, fissures, and other solution openings, which
give the rock a high overall permeability. The volcanic rock has
low permeab i1i ty.
The rocks south of a line between Pago Bay and Adelupe Point con-
sists mainly of a complex of pyroclastic rock and lava flows,
clastic sediments derived from the volcanic rock, and small amounts
of interbedded limestone, which make up the Alutom, Umatac, and
Bonya Formations. Overlying parts of the complex are beds of the
Alifan Limestone forming caps on peaks and ridges, and the Mariana
Limestone forms marginal aprons along the coast.
The volcanic rock and clastic sediments are thoroughly weathered
to depths of 50 feet or more over much of the area of exposure. The
upper few feet of the weathered section is common Iv granular and
friable. The permeability of the fresh and weathered rock is low;
the friable mantle is generally a little more premeable than the
underlying material. The limestone lying on the volcanic and
clastic rock has high permeability.
C1imate
Guam is warm and humid. The mean annual temperature near sea level
is about 81°F; monthly means range from about 80° in January to
82i° in June, and recorded extremes range from 64° in February to
100° also in February. The relative humidity i •:, s-arely less than
16
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60 percent, and the mean humidity ranges from 66 percent in the
early afternoon to 89 percent in the early morning. [Additional
temperature data have been compiled by the U.S. Department of
Commerce (Table 2.)]
Easterly trade winds are dominant throughout the year, and they
blow 90 percent of the time from January through May. Calms
are rare from January through May and are frequent from June to
October. Tradewind speeds generally are between 4 and 12 mph
(miles per hour) and rarely exceed 2k mph, but typhoons passing
over or near the island may bring winds having speeds greater
than 100 mph.
Guam has two distinct seasons--a dry season from January through
May and a wet season from July through November. December and
June are transitional, or from year to year they may fall in
either the wet season or dry season. The mean annual rainfall
ranges from about 80 inches on the coastal lowlands in the Apra
Harbor area to about 100 inches on the uplands in southern Guam.
Of the total rainfall, 15-20 percent falls during the dry season,
68-73 percent during the wet season, and the remainder during the
two transitional months. Dry-season rainfall is mostly from
scattered light showers [Table 3]• During the wet season, about
a third of the rainy days have prolonged and steady rain.
The heaviest prolonged rainfall on Guam is during the passing of
typhoons. The greatest rainfall recorded during a 24-hour period
in postwar years occurred during typhoon Alice on October 14-15,
1953, when 24.90 inches fell at Andersen Air Force Base and 15.80
inches at the Agana Naval Air Station. The median of the rainfall
at 12 widely scattered stations during the 5~day period of rain-
fall associated with the typhoon was about 24 inches.
Population and Development
The population of Guam, including the military forces, was about
67,000 in I960 according to the reports of the U.S. Bureau of
the Census. The civilian population is concentrated in towns
and villages in the central part of the island and in villages
scattered along the southern coast. Centers of military popu-
lation are at the Andersen Air Force Base in the northern part
of the island, the Agana Naval Air Station, near Agana, and at
Guam Naval Base, at Apra Harbor.
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TABLE 2
REPORTED TEMPERATURES ON GUAM
Temperature
Normal
Dai ly
Period maximum
January
February
March
Apr! 1
May
June
July
August
September
October
November
December
Year
83-9
84. 4
85-3
86. 4
87.1
87.3
86.7
86.4
86.2
85.8
85.2
84.4
85.8
Dai ly
mi n i mum
72.4
72.2
72.2
73.3
73.6
73.1
72.3
72.2
72.3
72.7
73-3
73.0
72.7
Month 1 y
average
78.2
78.3
78.8
79-9
80.4
80.2
79.5
79-3
79.3
79-3
79-3
78.7
79-3
Record
h i 9n
87
88
89
90
90
91
93
91
95
91
89
89
95
Extremes
Year
1962
I960
1965
I960
1966
1959
1966
1966
1957
1957
1962
1966
1957
Record
low
60
59
54
59
62
65
66
68
61
66
62
61
54
Year
1962
1959
1965
1965
I960
1965
1959
1965
1958
1965
1957
1967
1965
Source: Local climatological data; annual summary with comparative
data, 1967, Guam, Pacific. U.S. Department of Commerce [1968]. 4 p.
18
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TABLE 3
SUMMARY OF RAINFALL AT AGANA NAVAL AIR STATION, GUAM, 1952-62
(Inches)
Month
January
February
March
Apr! 1
May
June
July
August
September
October
November
December
Annual
Average
3.83
2.73
1 .90
2.87
3.68
4.48
9.10
12.68
14.71
13.06
10.18
5.46
84.70
Max imum
8.07
9-53
4.08
7-35
6.09
9-38
18.03
23-49
18.93
26.48
13-75
8.25
112.76
M i n imum
13.40
0.31
0.58
0.66
0.66
1.20
4.74
7-37
9.82
9.36
6.78
2.14
63.57
Med i an
2.53
2. 10
1.78
2.45
2.91
4.48
7.47
11 .58
15.14
11 .29
10.32
5.14
84.71
Source: Ward, P.E., S.H. Hoffard, and D.A. Davis. Hydrology of
Guam. Geological Survey Professional Paper 403~H. Washington, U.S.
Government Printing Office, 1965- 28 p.
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Most of the civilian population is supported directly or indirectly
by the activities of the Armed Forces. About kO percent of the
civilian labor force is employed by the Territorial and Federal
governments. The remaining force is engaged largely in con-
struction, trade, transportation, and other services. About 5
percent work in manufacturing and agriculture.
Agana is the center of civil government and of much of the com-
mercial activity of the island. Commercial ships dock at Apra
Harbor, and commercial airlines land at the Naval Air Station.
A hard-surface road system covers the northern and central parts
of the island. Light-surface roads run along the east coast from
Pago Bay around the southern end to Umatac and along the west
coast from Agat almost to Umatac.
Guam is currently undergoing rapid economic growth. New construction
is evident everywhere, and construction of several new hotels to accom-
modate the developing tourist trade has begun. Pan American Airlines
and Air Micronesia (Continental Air Lines) are presently serving the
area. Trans World Airlines has been awarded a transpacific route to
Guam that should further stimulate the tourist industry, and several
shipping lines have begun stopovers in Guam that will very likely in-
crease as the new commercial port is completed.
Because of the economic boom, there is difficulty in obtaining
qualified individuals to fill vacant jobs. The problem is evident in
the various departments of the Government of Guam, where many positions
have not been filled for months or years after their creation.
Most of the island's population is concentrated in the central
area. There are 19 villages, ranging in size from 982 to 6,7*18 inhabi-
tants (Table k), The total civilian area population is now estimated
at 61,283 by the Department of Public Works.
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TABLE 4
POPULATION OF GUAM
(C i vi 1i an areas only)
Vi 1 lage January 1 , 1969*
Agana
Agana Heights
Agat
Asan
Barr igada
Chalan Pago-Ordot
Dededo
1 narajan
Mangi lao
Her i zo
Mongmong-Toto-Ma i te
Pi ti
Santa Rita
S i najana
Talofofo
Tamun i ng
Umatac
Yigo
Yona
Total
2,419
3,729
4,904
2,545
5,431
2,340
5,749
2,253
3,518
1,852
2,604
1,322
2,525
5,283
1 ,840
6,748
982
2,150
3,089
61,283
Apr! 1 1 , 1968f Apri 1 1 , 196?
2,356
3,612
4,737
2,450
5,240
2,233
5,332
2,183
3,417
1,807
2,469
1,252
2,440
5,159
1,779
6,320
912
1,929
2,971
58,598
2,200
3,328
4,260
2,307
2,307
2,058
4,240
2,098
2,968
1,732
2,420
1,188
2,333
4,813
1,739
5,508
882
1,685
2,919
53,744
••[Data from Department of Public Works, Guam.
Data from Department of Health and Social Services, Guam.
21
-------
-------
STUDY PROCEDURE
Before the arrival of the study team on Guam, personnel of the
Department of Public Works collected information on the number of
dwelling units, schools, businesses, government buildings, industries,
hotels, and labor camps on the island. Included was information on
village populations, school enrollments, and capacities of the labor
camps. These data were used in the preparation of this report.
The study team also gathered data on the amount of solid waste
collected by the Government of Guam. Volumes of solid waste were es-
timated by accompanying a collection truck and recording the volume
of waste collected at each service. The total number of items, which
was defined as the number of containers, bundles, or other objects
collected, was also recorded for each service. The team collected data
on 7 days for a total of 683 services in six villages. Residences,
schools, businesses, and parks were included.
To determine the density of the waste in the storage containers
(Appendix B), 110 items for collection were weighed with a platform
balance carrier, on a pickup truck. Such weights were recorded for
residential waste in two of the villages. To check the reliability
of the individual weighings, loaded collection vehicles were weighed
on a commercial scale.
Collected residential waste was separated in order to predict the
impact of changing present methods of waste preparation and storage
23
-------
by residents. Waste samples of approximately 200 Ib were hand separated
into nine components (Appendix C) and subjected to moisture content
determinations so that the amount of water in the solid waste could
be calculated.
Time studies of collection crews at work were done to formulate
predictive equations of collection times for packer trucks and clump
trucks (Appendix F).
Surveys of solid waste storage practices and abandoned vehicles
were also conducted. Actual counts of abandoned vehicles and storage
containers were made in nine of the 19 villages on the island.
The study team visited and inspected possible future sanitary land-
fill sites with government officials in an effort to evaluate their
availability and acceptability. United States Navy and Air Force in-
stallations were also visited to determine their methods of solid waste
management and to evaluate the feasibility of their possible adoption
by the Government of Guam.
-------
RESULTS AND DISCUSSION
Solid Waste Generation
Res i denti al. According to information obtained from the Department
of Public Works, there are a total of 12,693 residential dwelling units
on the island of Guam (Table 5)- During the period of the study, the
average amount of residential solid waste collected was found to be
7.30 cu ft per dwelling per week and the average number of items
collected was 1.82 (Table 6).
Analysis of the 110 weighings indicated that the average density
of the residential waste was 4.9 Ib per cu ft (standard deviation of
0.33). Data obtained from the weighing of loaded trucks gave densities
under storage conditions of 5-8 and 4.9 Ib per cu ft. The similarity
of these three figures increases confidence in the use of 4.9 Ib per
cu ft.
Moisture content determinations on the residential solid waste
samples (Appendix D) showed an average moisture content of 15-4 percent
on a wet-weight basis. Since the study took place during the dry
season, it is felt that both the moisture content and the weight of
the waste will increase during periods of heavy rain because of the
use of open storage containers.
An analysis of the effect of rainfall on the moisture content of
solid waste (Appendix E) develops a relationship between weekly rainfall
25
-------
TABLE 5
DISTRIBUTION OF RESIDENTIAL DWELLING UNITS
ON GUAM, MARCH 1, 1969
Village
Agana
Agana Heights
Agat
Asan
Barr igada
ChaJan Pago-Ordot
Dededo
1 narajan
Mangi lao
Merizo
Mongmong-Toto-Mai te
Pi ti
Santa Rita
S i najana
Talofofo
Tamuni ng
Umatac
Yigo
Yona
Total
Single-fami ly
uni ts
170
590
720
365
969
450
1,372
300
675
294
585
223
440
686
334
1,829
117
562
679
11,360
Mul t iple-fami ly
uni ts
148
81
101
76
107
13
49
38
112
2
98
34
29
69
36
304
0
14
22
1,333
Total
318
671
821
441
1,076
463
1 ,421
338
787
296
683
257
469
755
370
2,133
117
576
701
12,693
Source: Department of Public Works, Guam.
26
-------
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and the unit weight of the residential solid waste. The results of
this analysis give an average annual unit weight of 9.8 Ib per cu
ft. The density would change with the season, as mentioned; but for
the purposes of this report, it is felt that the average density of
9.8 Ib/cu ft is a conservative estimate and will give acceptable results
Use of this average density and the data presented in Table 6
allows the calculation of the total tons of solid waste collected
each year from residences (Table 7).
Residential solid waste amounts to an estimated 178,460 cu yd, or
23,600 tons per year (Table 7). Using a civilian area population of
61,283, this amount becomes 2.1 Ib of residential solid waste per
capita per day, or about 770 Ib per capita per year.
During the period of the study, five separations of residential
solid waste were made to determine composition. Samples were hand
separated into nine categories (Appendix C), and the results are shown
in Table 8.
Similar separations of residential solid waste have been made
in the continental United States (Table 9)-2 A recently completed
national survey of solid waste in the continental United States3 es-
timates that a daily average of 3 Ib of residential solid waste per
capita is collected.
The daily per capita amount of each waste component is then found
by multiplying the total average per capita (3 Ib) by the average per-
cent of each component by weight (Table 9)- A similar analysis was
28
-------
TABLE 7
ESTIMATED VOLUME AND WEIGHT OF RESIDENTIAL SOLID WASTE COLLECTED
Vi 1 lage
Agana
Agana Heights
Agat
Asan
Barr igada
Chalan Pago-Ordot
Dededo
1 narajan
Mang i 1 ao
Mer izo
Mongmong-Toto-Ma i te
Piti
Santa Rita
S i najana
Talofofo
Tamuni ng
Umatac
Yigo
Yona
Total
Total dwel 1 i ng
u n i t s »
318
671
821
441
1,076
463
1,421
338
787
296
683
257
469
755
370
2,133
117
576
701
12,693
Cubic yards
per yeart
4,470
9,430
11,540
6,200
15,130
6,510
19,980
4,750
11,070
4,160
9,600
3,610
6,590
10,620
5,200
29,990
1,650
8,100
9,860
178,460
Tons per
yearf
590
1,250
1,530
820
2,000
860
2,640
630
1 ,460
550
1,270
480
870
1 ,400
690
3,970
220
1,070
1,300
23,600
'-From Table IV,
t(No. of Dwellings)x(7.3)x(52)f(27).
f(Cubic Yards per Year)x(27)x(9.8)*(2000).
29
-------
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made for Guam based on the average percentages given in Table 8 and a
per-capita waste amount of 2.1 Ib per day (Table 9)•
By comparing the percentage compositions of waste for the con-
tinental United States and Guam (Table 9) it is seen that Guam has
higher percentages of garden waste and noncombustibles than the con-
tinent, and lower percentages of food waste and paper products. A
comparison of the per-capita amount of each waste component collected
points out further differences between Guam and the continental United
States.
The present practice of feeding food waste to poultry and swine
is probably responsible for removing large amounts of this component
from the collected residential waste. If this practice were stopped,
the amount of food waste collected would increase and perhaps would
reach those levels estimated for the continental United States.
Burning of combustibles by private individuals is partially re-
sponsible for the low quantities of paper products collected. If such
household burning of waste were eliminated, the amount of paper waste
collected would of course increase. It would not be expected to reach
the quantities encountered on the mainland, however, because of the
extensive use of metal packaging materials and the high local cost of
paper convenience items such as plates, tablecloths, and other similar
i terns.
If the household burning of combustibles and the feeding of food
waste to poultry and swine were stopped in the near future, the amounts
32
-------
of paper products and food waste collected daily could be expected to
increase by about 0.7 and 0.5 lb per capita, respectively. This increase
would result in an estimated 3-3 lb of residential waste collected
da ily per cap i ta.
Commerc i al. The waste-generation rate for commercial activities
is usually related to gross sales, number of employees, floor area, or
some other similar measurement. Accurate information of this type could
not be obtained by the study team in the time permitted. Areas of com-
mercial operations were identified, however, throughout the island (Table
10). It was beyond the magnitude of this study to categorize each ac-
tivity, but it was observed that most commercial establishments were
either grocery stores, laundries, electronics shops, or other similar
types of small businesses characteristic of any community. Most of
the commercial waste is generated in those areas with the highest
concentration of such activities, primarily in the villages of Agana
and Tamuning and the adjacent areas.
Previous studies of commercial waste in the continental United
States have defined an average amount of waste collected as about 1
lb per person daily.3 Using this figure as a base, a reasonable
estimate of the amount of commercial waste collected is about 30.6
tons per day, or 11 ,180 tons per year.
The unit weight would be about 150 lb per cu yd or 5-6 lb per cu
ft.1* This would mean that commercial wastes would amount to about
1^9,000 cu yd per year.
33
-------
TABLE 10
DISTRIBUTION OF COMMERCIAL AND GOVERNMENT ACTIVITIES IN GUAM
Village
Agana
Agana Heights
Agat
Asan
Barr igada
Chalan Pago-Ordot
Dededo
1 narajan
Mangi lao
Meri zo
Mongmong-Toto-Mai te
Pi ti
Santa Rita
S i najana
Talofofo
Tamuni ng
Umatac
Yigo
Yona
Total
Number of
commerci al
es tab 1 i shments*
149
16
36
17
42
8
21
11
10
13
34
10
5
32
10
104
6
11
12
547
Number of
government
bui Id i ngs*
8
1
3
3
1
1
1
3
4
2
1
2
1
2
1
3
1
1
1
40
"Data from Department of Public Works, March 1, 1969.
34
-------
Government. Government buildings on Guam were also tabulated by
the study team (Table 10). The amount of waste generated by government
office activities is small and is assumed to be included in the figures
for commercial wastes.
Hote 1 s and Motel s . The number of hotel and motel rooms on Guam
total ^5 (Table 11). Past studies5 have indicated that the amount of
waste generated by hotels and motels is about 0.6 Ib per occupant daily.
If it is assumed that two people occupy each room, there will be an
estimated 100 tons of waste generated per year from these sources.
Composition of waste from hotels and motels would be expected to
be about 80 percent combustibles (including 5 percent food waste), and
20 percent noncombus t ib les .
Parks . Parks were not studied directly in this survey. The amount
of waste generated in the parks on Guam is small in relation to other
sources, and their omission here is not serious. Studies in other areas,
however, have shown that a picnicker can be expected to generate about
1 Ib of waste per meal.5
Composition of park waste in the continental United States is about
kS percent food waste, 30 percent other combustibles, and 25 percent
noncombus t ib les . 5 The composition is expected to be somewhat different
on Guam because of packaging methods—about 40 percent food waste,
25 percent other combustibles, and 35 percent noncombust ib les .
I ndust r ial . Industrial activity in the civilian areas on Guam
is very light. Therefore, no estimation of industrial waste was made.
35
-------
TABLE 11
ESTIMATED AMOUNTS OF SOLID WASTE GENERATED ANNUALLY
BY HOTELS AND MOTELS ON GUAM
Vi 1 lage
Agana
Agana Heights
Agat
Asan
Barrigada
Chalan Pago-Ordot
Dededo
1 narajan
Mangi 1 ao
Meri zo
Mongmong-Toto-Mai te
Pit!
Santa Rita
S i najana
Talofofo
Tamuni ng
Umatac
Yigo
Yona
Total
Number of
rooms-
33
249
0
0
0
0
0
0
0
9
101
0
0
0
0
62
0
0
0
445
Tons of waste
per year"f
7
55
0
0
0
0
0
0
0
2
22
0
0
0
0
14
0
0
0
100
"Data from Department of Public Works, March 1, 1969.
^(No. of Rooms) x (2) x (0.65) * (365) * (2000).
36
-------
Agr i cu1tural. There is very little agriculture on Guam. For
this reason, the contribution of agriculture to the solid waste prob-
lem is small and is not considered in this report.
Hospitals and Clinics. Guam has one civilian hospital and 27
clinics of various sizes. Most of the clinics are offices, and their
wastes are assumed to be included in the total amount of commercial
waste.
Hospital solid waste is estimated at 7 to 8i Ib, or 0.7 cu ft
per patient daily.6 Guam Memorial Hospital treats about 235 patients
per day. Therefore, using a figure of 7-7 Ib per patient per day,
the annual contribution of the hospital would be approximately 330
tons, or 2,200 cu yd of solid waste per year.
Schools. The Government of Guam operates junior and senior high
schools, elementary schools, head start projects, and the University
of Guam. The Catholic Church is also quite active in education and
operates both elementary and high schools. There are also several
other parochial schools, private schools, and academies.
Data gathered during the period of the study in a similar manner
as for residential waste indicate that each student generates an average
of 0.11 cu ft of solid waste per school day (Table 12). The amount of
school waste collected by village has been estimated by assuming a den-
sity of k.k Ib per cu ft (Table 33). School waste totals about 1,170
tons per year and is generated primarily during the 9 months from
September through May. The school waste was composed mostly of paper
37
-------
TABLE 12
NUMBER AND VOLUME OF SOLID WASTE SAMPLES FROM SELECTED SCHOOLS
ON GUAM, FEBRUARY 25 TO MARCH 7, 1969
Number of
i tems
col lected
School da i ly
Brodie School
Brodie School
St. Francis
7th Day Adventists
Talofofo
Talofofo Publ ic
Notre Dame School
Inarajan Junior and Elementary
Mer izo
Merizo Elementary
Adelup School
Old Pit!
New Piti
Piti Head Start
Total
7
6
20
2
2
8
3
28
3
14
8
5
12
2
120
Vol ume
(cu ft)
33
2k
Ik
2
3
51
19
108
15
30
60
30
57
9
515
Number of
students*
120
120
702
103
40
364
105
948
98
297
701
385
545
39
4,567
cData from Department of Public Works, March 1, 1969.
38
-------
TABLE 13
ESTIMATED WEIGHT OF SOLID WASTE GENERATED
BY ALL SCHOOLS ON GUAM
Vil lage
Agana
Agana Heights
Agat
Asan
Barr igada
Chalan Pago-Ordot
Dededo
1 narajan
Mangi lao
Merizo
Mongmong-Toto-Ma i te
Piti
Santa Rita
S i najana
Ta lofofo
Tamun ing
Umatac
Yigo
Yona
Total
Total Number
of students*
902
506
2,606
758
2,744
1,327
3,841
948
3,277
395
58
969
379
1,193
612
3,032
147
2,172
913
26,779
Es t imated
tons of waste
per day"*"
0.22
0.12
0.63
0.18
0.66
0.32
0.93
0.23
0.79
0.10
0.01
0.23
0.09
0.29
0.15
0.73
0.04
0.53
0.22
6.48
Est imated
tons of waste
per yearf
39
22
114
33
120
58
168
41
143
17
3
42
17
52
27
133
6
95
40
1,170
>From Department of Public Works.
t(No. of Students)x(0.11)x(4.4)x(l80)v(2000).
^Calendar year (based on 180 school days per year).
39
-------
and food wastes, with noncombustibles making up only a small portion
of the total. Because of its composition, the density used was a little
less than that for commercial waste.
Labor Camps. A number of labor camps are operated by construc-
tion companies and other contractors to house imported Philippine
workers. These camps normally consist of barracks for the workers and
associated kitchen, dining, and recreational areas. Information gathered
on Job Corps Camps in the United States indicates that about 2.5 lb
of kitchen waste and 0.7 lb of waste from the dormitories are generated
by each corpsman daily.5 This total of 3-2 lb of waste per corpsman
per day should be valid for estimating waste loads from labor camps.
By using the 3.2-Ib-per-capita figure, it is estimated that 1,090 tons
of waste per year will be generated in labor camps (Table 14).
The composition of the kitchen waste is mostly food scraps, wet
paper, and noncombustibles. Dormitory waste is mainly paper by volume
but noncombustibles by weight.
Abandoned Automobiles. A survey of abandoned vehicles was made
in different areas of the island. Organized junk or car lots were ex-
cluded from the survey. Along the 32.5 miles of main arteries surveyed
there were found to be 6.3 abandoned vehicles per mile. On the 12 miles
of residential streets studied, this ratio was 15-1 vehicles per mile.
The total average was 10.7 vehicles per mile.
There are over 200 miles of road on the island of Guam. Using the
average figure of 10.7 vehicles per mile, it is estimated that there
-------
TABLE 14
AMOUNT OF SOLID WASTE GENERATED BY LABOR CAMPS ON GUAM
Labor camp
Agana
Agana Heights
Agat
Ani gva
Asan
Barri gada
Chalan Pago-Ordot
Dededo
Harmon
Harmon Field
1 narajan
Mangi lao
Meri zo
Mongmong-Toto-Ma i te
Pit!
Santa Rita
S i najana
Talofofo
Tamun i ng
Umatac
Yigo
Yona
Total
Number of
workers*
73
140
0
108
10
50
7
35
46
81
0
50
0
98
0
0
22
28
1,117
0
0
0
1,865
Es t imated
tons of waste
per year^
43
82
0
63
6
29
4
20
27
47
0
29
0
57
0
0
13
16
653
0
0
0
1,090
-Data from Department of Public Works, March 1, 1969.
+(No. of Workers) x (3.2) x (365) ^ (2000).
41
-------
are approximately 2,000 abandoned vehicles on the island that should
be collected and disposed of by the Government of Guam. An effort should
be made to find a market for these abandoned vehicles as scrap steel.
If they are found to have no salvage value they could be disposed of at
sea as has been the practice in the past.
Solid Waste Storage
Res ident ial. As part of the total study, a survey was made of
residential solid waste storage practices in nine of the 19 villages
on Guam. Included were 384 homes, or 3 percent of the civilian
dwelling units on Guam.
Of those residences surveyed, 79 percent stored solid waste in
55~gal drums only, 3 percent used nothing but 32-gal containers, 3
percent used only some other type of containers, and 15 percent used
a combination of different types of containers (Figure 3)- In addi-
tion, 9 percent of the residences had some wastes that were not stored
in any type of container (Figures 4 and 5).
The homes that used only 55~gal drums exhibited the following
distribution: 58 percent had only one drum, 36 percent had two drums,
5 percent had three drums, and 1 percent had four or more drums (Figure
6).
The 13 homes in the sample using only 32-gal containers showed
the following distribution: 46 percent had only one can, 15 percent
had two cans, 23 percent had three cans, and 16 percent had four or
more cans (Figure 7) •
-------
55-gal drums only
32-gcl drums only
Other types only
Combination of containers
10
10
TYPE OF CONTAINER USED
Figure 3- Distribution of residences on Guam,
by type of waste-storage container.
-------
Figure k. Solid waste ready for collect!
on.
Figure 5. Solid waste storage area before collection.
-------
Residences using one drum
| Residences using Two drums
J Residences using three drums
[ Residences using more than
Three drums
15
Figure 6. Distribution of residences on Guam
using 55~gal waste-storage drums, by
number of drums.
-------
LU
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or
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Residences using one container | Residences using three containers
Residences using two containers
| Residences using more than
three containers
10
0
^.
Figure 7- Distribution of residences on Guam
using 32-gal waste-storage containers.,
by number of containers.
-------
600-
55-gal containers
CO
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66
TYPE OF CONTAINER USED
Figure 8. Distribution of waste-storage containers
used on Guam, by container volume.
A total of 659 storage containers were observed during the survey,
Of these, 80 percent were 55~gal drums, 10 percent were 32-gal con-
tainers, and 10 percent were different types (Figure 8). Seven percent
of the 175 residences having only one 55~gal drum exhibited debris
outside the containers. Ten percent of the 111 homes with two 55~gal
drums had debris. One of the 14 residences with three 55~gal drums
also had such debris. Therefore, it appears that the incidence of
litter or debris is not really related to the number of containers
available for storage.
Storage containers are generally kept at curbside (Figure 9),
supposedly because of the unpredictability of collection, but also
-------
Figure 9. Residential storage-container locations.
because 55-gal drums, which are the predominant storage containers,
cannot be easily set out for collection. If smaller containers were
used, solid waste could be stored out of sight at the rear of the
houses and carried out for collection by the individual homeowner.
Storage at the rear would also limit the access of children, clogs, and
chickens to the stored waste.
Most containers are stored on racks that vary in height from
a few inches to about 3 ft. Many are in need of repair, and some
should be eliminated entirely because of their height and unsafe con-
dition. Storage racks improve the sanitation of the storage area, but
they should be limited from 12 to 18 in. in height and be soundly
constructed in an acceptable manner. Use of racks would also allow
lids to be tied to them to prevent loss in high winds.
-------
Open burning is common both in and around cans (Figure 10). Such
burning results in discoloration and rapid deterioration of the cans
and contributes to air pollution. It also creates ashes that are
blown when the container is emptied, thereby hindering the perfor-
mance of the collection crews. If a fire is not completely out when
a can is collected, it poses the additional problem of starting a fire
in the collection vehicle.
Some residents have made an effort to improve storage practices
by purchasing 32-gal containers. Both galvanized steel and plastic
containers were observed. Many of the galvanized cans were of the
heavy-duty, reinforced type used by the military. The use of these
heavy cans should be discouraged because of their excessive weight
(30-35 Ib when empty).
Many of the residents using 32-gal containers also had 55~gal
drums in the storage areas (Figure 11). It appeared to be common prac-
tice to fill the 55-gal drums with waste first and then to use the
32-gal containers for the excess.
The Government of Guam has made an effort to upgrade storage area
appearances by selling painted drums through the Guam Rehabilitation
Center. This approach does not consider the more important problems
involved in collecting the 55~gal drums or the problems created by
the 1ack of lids.
If solid waste handling and disposal is to be improved on Guam,
one of the first steps must be the elimination of unsuitable storage
contai ners.
-------
i.X ' '**»*
Figure 10. Burning in storage containers.
Figure 11. Two 32-gal containers on rack (note 55"
gal drums also present).
50
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Acceptable containers should be enclosable to prevent insect and
rodent infestation. To achieve this goal, containers should have
tight-fitting lids and be free of holes. They should be cleanable
and free from corners and edges where material may accumulate. Con-
tainers should be durable, capable of withstanding handling, and man-
ageable. Their full weight should not exceed 75 lb. They should
be equipped with handles and of a size that can be handled by one
man.
The 55~gal drums do not meet any of these criteria and should be
prohibited. Similarly, use of undersized containers (under 20-gal
capacity) should be limited because of the excess handling involved
in their use. Efforts should be made to encourage or require residents
to use lightweight containers of 20- to 30~gal capacity.
Containers that do meet these criteria include galvanized steel
cans and high impact plastic cans. If containers of sufficient dura-
bility were obtained, plastic containers would seem to be advantageous
in the humid climate of Guam because of their resistance to corrosion.
Commercial and Institutional. Solid waste storage practices at
commercial and institutional locations do not vary greatly from those
at residences. The 55~gal drums are the predominant storage containers,
with some locations having up to a dozen. All of the drawbacks of
55~gal drums discussed in the residential-storage section apply to
commercial and institutional situations. The problems are amplified,
however, by the necessity of using a larger number of containers per
servi ce.
51
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Because of the large amounts of waste generated per day at com-
mercial and institutional locations, large, bulk containers could
be used. These usually vary from I to about 8 cu yd and are mechanically
emptied into packer trucks.
Solid Waste Collection
Collection of solid waste on Guam is the responsibility of the
Department of Public Works. To carry out this assignment they use
three 20-cu-yd packer trucks, two 18-cu-yd top-loading packer trucks,
and five 3~cu-yd dump trucks (the capacity of which has been increased
to about 12 cu yd by providing side boards of wire mesh) (Figures
12-14).
One driver and two loaders work with each truck. On the dump
trucks the driver also acts as a loader, so that two men lift the
container onto the truck, and the other man, stationed on the truck,
unloads the containers.
Solid waste is collected on a weekly basis from all residences
and businesses. Commercial establishments can pay to have waste re-
moved more frequently, if desired, or they can haul their own to the
dumps. The hospital, schools, and government offices have their waste
collected daily.
Normal collection operations are carried out between 7 a.m.
and 3:30 p.m., with three trucks operating on a second shift from
3:30 p.m. to 12 midnight. Crews work six days a week with holidays
off.
52
-------
Figure 12. A 20-cu-yd packer truck.
53
-------
Figure 13. An 18-cu-yd, top-loading packer truck.
Figure 14. A 12-cu-yd dump truck.
-------
Studies were made of collection-vehicle productivity (Appendix F).
Productive time (Table 15) is defined as the time actually spent
handling the items for collection. (Waiting time is that time when
handling of waste stops to allow for moving the truck or packing the
load. The off-route, or other time is avoidable delay time which can
usually be decreased by closer supervision).
An examination of the data reveals several interesting items. The
number of miles per minute, for example, does not show any significant
variation from village to village or by type of collection truck. The
number of services per mile, services per minute, and items per minute
do, however, show definite differences between dump trucks and enclosed
packing vehi cles .
A regression analysis of the observed distances, numbers of ser-
vices, and numbers of items was run against the productive times. This
analysis allowed the determination of the relative effects that the
three factors had upon the response variable. The results of the re-
gressions are in the form of equations in which the productive times
are expressed as functions of the route distance, the number of services,
and the number of items for collection. It was found that the number
of items for collection was the variable with the greatest effect on
the productive time. The number of services was the next most impor-
tant, and the number of miles traveled was the least.
A preliminary analysis of the data indicated that all of the infor-
mation gathered on packer trucks (including the top-loader) could be
55
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grouped and used to define a genera] equation for packer-truck productive
times. Similarly, all of the data for dump trucks were combined, and
one equation was determined. These two equations are shown below:
Packer: Productive time (minutes) = 2.8*4 x (miles) + 0.09 x
(No. of services) + 0.21 x
(No. of i terns) + 0.38
Dump: Productive time (minutes) = 8.63 x (miles) - 1.29 x
(No. of services) + 1.40 x
(No. of i terns) + 0.99
where
Productive time equals the time elapsed to collect a given area,
multiplied by the fraction of productive time;
Miles equals the number of street miles that the collection vehicle
travels in the area;
Number of services equals the number of waste sources collected
from within the area; and
Number of items equals the total number of containers, bundles, or
other objects that must be collected from the waste sources.
The equation for packer trucks explained 88 percent of the varia-
tion in the data, with a standard deviation of 23 percent of the
response mean. Eighty-six percent of the variation was explained for
dump trucks, with a standard deviation of 24 percent of the response
mean.
If the physical characteristics (miles, services, and items) of
the collection area are known, these equations can be used to predict
the productive time necessary for collection.
57
-------
During the period of study, it was found that an average of 1.82
items were collected per service (Table 6), and that there were approx-
imately 65 services per mile (Table 15)- A packer truck would therefore
take 33.91 productive minutes and a dump truck 91-39 productive minutes
to collect from a "typical" mile.
In addition to productive times, the waiting times and other
daily times involved with collection were recorded (Appendix F). It
was found that for packer trucks, productive time was 60.9 percent of
the total time. Waiting time was 34.8 percent, and other time accounted
for 4.3 percent of the total. The productive time for dump trucks was
69-0 percent, with 26.3 percent classed as waiting time and 4.7 percent
as other time.
In order to calculate the total time for collection, it is necessary
to add waiting time and other time to the productive time. For packer
trucks, the waiting time is 57 percent of the productive time, and other
time is 7 percent. Therefore, the total collection time for packer
trucks is:
Collection Time = 1.64 x (Productive Time)
Similarly, for dump trucks, the waiting time is 38 percent and the
other time is 7 percent of the productive time. The collection time
can be calculated as:
Collection Time = 1.45 x (Productive Time)
58
-------
The total collection time per "typical" mile, using a packer truck,
is therefore 55-61 min. A dump truck will take 132.52 min. to collect
the same mile--76.9' min. longer than a packer truck, or 238 percent
as much time to collect each mile. The difference is principally due
to the increased loading height of the dump trucks and the longer time
necessary to unload each can.
Times to empty individual storage containers were recorded. Timing
was begun when the can was lifted from the ground or stand and was
terminated when the container was returned. The results show that the
average time to empty a 55~gal drum into a packer truck was 0.18 min.
The 32-gal containers were emptied into packer trucks in an average
of 0.14 min--a time savings of 22 percent over the 55~gal containers.
Since it was found that the average 55~gal drum contained only ^ cu ft
of waste (Table 6), which is comparable to the volume of a 32-gal
container, it must be assumed that the shorter emptying time is prin-
cipally due to the fact that 32-gal containers are more maneuverable
and easier to handle than 55~gal drums.
The normal practice of collection crews is to get the truck as
close as possible to the storage containers. Such practice is a direct
outgrowth of the use of the large, difficu1t-to-handle, 55"§al drums.
If 32-gal containers could be used exclusively, it would be possible
for the truck to proceed down the middle or one side of the road, stopping
where necessary for the containers to be carried to it. The time-consuming
practice of backing the truck to get near containers would then be
elimirated.
59
-------
Although no clear cut picture of the savings involved can be
drawn, an attempt was made to measure the decrease in collection
time that would result from eliminating truck backups. Over a dis-
tance of 0.2 miles with 19 services, two backups were made by the
collection truck. The driving time involved was 3-0 min. When the
truck was driven down the center of the street, stopping at all
services but not attempting to get close to the containers, the
driving time was 2.0 min. This is a saving of 33 percent in collec-
tion time.
The weighing of residential waste showed that the average item
set out for collection weighed 59 lb, with a low reading of k lb
and a high of 158 lb. The average weight of loaded containers was
65 lb. The average empty weight of these same containers was L\2 lb.
Thus the waste (23 lb per container) weighed only 35 percent of the
weight of the full containers.
The loading height of the Garwood* packers is 2.9 ft (Figure 15).
The top-loading packer trucks have a loading height of 3-0 ft (Figure
16). The Chevrolet" dump trucks have a loading height of 3-8 ft with
the tailgate down (Figure 17), 5-0 ft with the tailgate up, and 7-8
ft when loaded over the side (Figure 18). Therefore, the work (weight
multiplied by distance moved) involved in loading a container into
a dump truck is either 30, 70, or 170 percent greater than the work
in loading a packer truck, depending on where the containers are
loaded into the dump trucks.
-''Mention of commercial products does not imply endorsement by the
U.S. Public Health Service.
60
-------
Figure 15- Loading a packer truck (note yard wastes).
Figure 16. Loading a top-loading packer truck.
61
-------
Figure 17. Loading a dump truck (tailgate down).
Figure 18. Loading a dump truck over the side.
62
-------
The 32-gal galvanized containers commonly used for home storage
have an average empty weight of about 10 lb. Their use would reduce
the effort of the refuse collectors by 32 lb per container, or 49
percent. Plastic 32-gal containers weigh about 4 lb apiece. Their
use would eliminate 38 lb of excess container weight, or 58 percent
of the present full weight. Paper or plastic bags weigh practically
nothing and would eliminate container weight entirely. They would
result in a work savings of 65 percent over 55~gal drums.
Sol id Waste Disposal
The solid waste collection crews dispose of the collected waste
at five open dumps (located on the map of Guam in Figure 19).
The Yigo Dump (Figure 20) receives the waste from Yigo, Dededo,
and Tamuning. It is located within sight of the highway to Andersen
Air Force Base. There is no operational equipment at this dump, nor
is there an operator or caretaker. Fires burn continually, and the
smoke is generally carried into the village of Yigo.
Near Ordot is the largest of the five dumps (Figures 21-22). The
Ordot Dump receives the waste from the populous middle section of the
island. One bulldozer is at this site and an operator is on duty
8 hr a day. The operator directs the trucks to the dumping area, and
the dozer pushes the waste to the edge of the filled area, where it
is burned.
63
-------
Andersen
Air Force Bo
0 12 3 4Miles
H e 1 Z3
DISPOSAL SITE
1NARAJAN
Figure 19- Solid waste disposal sites on Guam.
-------
Figure 20. Yigo Dump.
Figure 21. Ordot Dump.
65
-------
Figure 22. Filled area of Or dot Dump.
Figure 23. Agat Dump.,
66
-------
The dump at Agat (Figure 23) receives waste from Agat and Santa
Rita, and like the other dumps, it is usually burning. A caretaker
is on duty to direct trucks to the dumping area.
Overlooking picturesque Umatac Bay is the Umatac Dump, which
receives waste from both Umatac and Merizo. Because of the small quan-
tities of waste, burning is not usually practiced. Instead, the paper
is allowed to blow away.
The Inarajan Dump is located adjacent to the Inarajan water storage
tank and receives waste from Inarajan and Talofofo. Burning is not
common but does occur at times.
In addition to the waste hauled by the collection crews, many
businesses haul their own waste to the dumps. The Ordot, Yigo, and
Agat dumps receive most of these commercial wastes.
Scavenging is prohibited by law, but is practiced at all dumps.
Ordot and Yigo were the two dumps where this was most evident.
The Government of Guam has proposed the closing of all five dumps
and the establishment of one or possibly two sanitary landfills. It
is recommended that this measure be undertaken as soon as possible. Aside
from the health problems that burning dumps encourage by allowing rodents
and insects access to the waste, by possibly polluting water supplies
with runoff from the dump, and by polluting the air with burning mate-
rials, there is also the esthetic offensiveness of litter and smoke.
It would be difficult, however, to eliminate the outlying dis-
posal sites until the present dump trucks could be replaced by packer
67
-------
trucks. The smaller capacity of the dump trucks limits their effec-
tiveness as collection vehicles if they must travel long distances
to disposal sites. This consideration adds extra emphasis to the
acquisition of high-capacity collection vehicles.
Management of Solid Waste^ Collection and Disposal
Organizat ion. Solid waste collection and disposal is the respon-
sibility of the Department of Public Works. Since the Department is
undergoing a series of organizational changes at the present time, it
is difficult to state what its structure is or will be. At the time
of the study, however, the Refuse Division was organized with the col-
lection crews under the direction of three area supervisors. The super-
visors, who were new to the position and had no previous experience
in solid waste management, were directly responsible to the Chief En-
gineer, who in turn was responsible to the Director of the Department
of Public Works. Since the time of the study, one of the supervisors
has become head of the Refuse Division and now has charge of the
collect ion crews.
The operator and bulldozer at the Ordot Dump are loaned to the
Refuse Division by the Highway Division. The operator's salary and
the equipment costs are borne by the Division of Highways, and there-
fore, are not shown as part of the budget of the Refuse Division.
Equipment maintenance is performed by the Equipment Shop of the
Department of Public Works. No obtainable records are kept that
would allow the assignment of a vehicle operating cost to collection
trucks .
68
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Considerable delay is often experienced in obtaining equipment
repairs, primarily because of the low priority given collection ve-
hicles (below school buses and police cars). There are about 1 40
school buses and only 10 operational collection trucks. It is easy
to see how repairs on a collection vehicle could be delayed quite
a while with such a ratio.
Another cause for delay in obtaining repairs is the time that
it takes to order spare parts from the U.S. mainland. Because of
the long order time, one of the top-loading trucks is slowly being
cannibalized to keep the other two running.
Manpower. Three men are assigned to each collection truck. The
10 operational trucks thus require 10 drivers and 20 collectors. Nine
additional men work the second shift.
Drivers are usually paid a beginning salary of $3,588 and col-
lectors, $3,172 (Table 16). Pay increases have been proposed in the
fiscal year 1970 budget; the new level is to be set by the Legislature.
Crews report for work at 7 a.m. and leave on their routes as soon
as possible. Quitting time is 3:30 p.m., and the crews are allowed
a half hour for lunch. If a member is absent, many crews do not leave
the Public Works compound until 7:30 a.m. or later because they must
wait until a new man is assigned to them. Absenteeism reportedly is
high. Second shift operation begins at 3:30 p.m. and stops at 12
midnight. Crews are usually kept intact as a unit — that is, they
work on the same truck and collect the same routes weekly.
69
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70
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Leg i s lat ion. Solid waste collection and disposal on Guam is
governed by Subchapter Q of the Government Code of Guam, entitled
"Garbage and Rubbish" (Appendix H), and by Chapter 55 of Title XXXII,
entitled "Housing Code." These acts provide that:
1. Garbage should be stored in durable, metal containers.
2. Waste receptacles must be tightly covered while stored.
3. Rubbish may be bundled.
4. No waste can be disposed of except in authorized public dumps,
5. No open burning can be done within i mile of any urban area.
6. The Department of Public Works will collect and dispose of
soli d waste.
7. Solid waste cannot be transported in open vehicles unless pro-
visions are made to keep waste in the vehicle.
8. The Director of Public Works has the authority to prescribe
additional regulations concerning storage containers.
9. No persons except those having material to dump shall be per-
mitted on any public dump.
10. Collection shall be furnished in all village and urban areas
without charge to private residences.
Budget. The proposed budget for the Refuse Division for fiscal
year 1970 is $520,312--about 9 percent of the total proposed budget
of the Department of Public Works. It ranks behind schools, whose
allotment has been set at $3>1^6»939> anc' highways, whose budget is
at $863,512.
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The Refuse Division's budget for fiscal year 1969 is $259,197,
or 5-5 percent of the total for the Department. The fiscal year 1968
budget was $217,^75, or 6.6 percent of the total. These figures show
not only the monetary increase in the Division's budget, but also the
increase in awareness of the importance of solid waste management as
reflected in the percentage increase from about 6 percent in 1968 and
1969 to 9 percent for FY 1970.
Resources for the Refuse Division are primarily obtained from
tax funds. No charges are made for residential clients. Businesses
desiring collection more frequently than once a week can contract with
the Department and pay for additional collection.
Solid Waste Management on Military Bases
The United States Navy and Air Force are the largest employers
on Guam. There is also a sizeable population of military personnel
and dependents on the island. Solid waste on the bases is collected
and disposed of by the respective commands. Agana Naval Station and
Andersen Air Force Base are the two largest installations and, there-
fore, produce the largest amounts of waste.
Naval Operat ions. The Navy uses four collection systems:
1. Dempster Dumpster* units are used at the port area and other
work areas and are emptied on call when full.
2. Dempster Dumpmaster* units are used in housing and office areas
(Figures 2k and 25). One bulk container is used for four
"Mention of commercial products does not imply endorsement by
the U.S. Public Health Service.
72
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Figure 24. Bulk containers (Naval Station).
Figure 25- Large bulk container (Naval Station)
73
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houses, and each is situated on a concrete pad. They are
serviced with front-loading packer trucks and are regularly
cleaned and periodically repaired. Specially built trailers
are used to transport the containers to a central repair
and cleaning site. Cleaning is done with hot water and
detergent. Each unit can be tilted by hand while on the
trailer and can therefore be cleaned without being removed.
In an effort to extend the life of the containers, each
new one is reinforced and painted inside with an epoxy coating.
Observation of the Navy system indicates that maintenance
and cleaning are important aspects of using bulk containers
in residential areas.
3. Galvanized can storage is used in the Commissioned Officer's
housing area. Two cans are provided per house, and they are
serviced by rear-loading packer trucks,
4. Transfer trailers with self-contained compacting mechanisms
are used at two sites: (a) at the commissary (Figure 26) where
large amounts of cardboard packaging waste is produced and
(b) near the port area and other work areas where some of the
Dempster Dumpster* units are emptied into the transfer trailer.
A disposal method once used by the Navy was a "shark pit." Food
waste from the dining areas was dumped down a chute into the sea
(Figure 21}. Now, however, a sanitary landfill is operated on the Naval
Station (Figure 28), and a new landfill has recently been opened on the
"Mention of commercial products does not imply endorsement by
the U.S. Public Health Service.
7**
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Figure 26. Stationary compactor (Naval Station).
Figure 27. "Shark pit" disposal site (Naval Station)
75
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Figure 28. Sanitary landfill (Naval Station).
Figure 29. Disposal of waste oils (Naval Station)
76
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Naval Air Station. Galley wastes are disposed of by contract to a pig
farmer.
Waste oils are disposed of by burning whenever the need arises.
This practice contributes to air pollution and is esthetically objec-
tionable (Figure 29).
The Navy reportedly disposed of 650,000 cu yd of solid waste per
year. If the density of commercial waste of 5-6 Ib per cu ft is
assumed for this waste, this volume is equivalent to about 48,000 tons
per year. Of this amount, 83 percent goes to the Naval Station land-
fill, and 17 percent goes to the landfill at the Naval Air Station.
Andersen Air Force Base. The Air Force uses bulk containers
(Figure 30) for waste storage in work areas and on the flight line.
Individual cans and rear-loading packers are used in housing areas.
The containers are carried to the dump and emptied into a previously
dug trench (Figure 30- Waste in the trenches is burned and the
trenches are covered when filled with the noncombustible materials
and ash (Figure 32). Bulky wastes, including packaging materials,
are hauled to a different site and burned (Figure 33).
The Air Force estimates its yearly waste production at 390,8^0 cu
yd. At a density of 5-6 Ib per cu ft, this becomes about 30,000 tons
per year. Figures for both the Navy and Air Force are based on the
assumption that all containers are full when collected. It is there-
fore reasonable to assume that the actual amounts of waste are some-
what lower than reported.
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Figure 30. Storage containers (Andersen Air Force Base)
Figure 31. Trench landfill operation (Andersen Air Force Base)
78
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Figure 32. Burned waste (Andersen Air Force Base)
Figure 33. Dump for bomb cartons (Andersen Air Force Base)
79
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REFERENCES
1. Ward, P. E., S. H. Hoffard, and D. A. Davis. Hydrology of Guam.
Geological Survey Professional Paper 403~H. Washington, U.S.
Government Printing Office, 1965. 28 p.
2. Bureau of Solid Waste Management, Division of Technical Operations.
Unpub1ished data.
3. Black, R. J., A. J. Munich, A. J. Klee, H. L. Hickman, Jr., and
R. D. Vaughan. The national solid wastes survey; an interim
report. [Cincinnati], U.S. Department of Health, Education,
and Welfare, [1968]. 53 p.
k. A technical services report; comprehensive solid waste study, Johnson
City, Tennessee. Cincinnati, U.S. Department of Health, Educa-
tion, and Welfare, 1968. 63 p. [Restricted distribution.]
5. Spooner, C. S. Study of recreation solid wastes for the U.S. De-
partment of Agriculture Forest Service. Public Health Service
Publication No. 1991. Washington, U.S. Government Printing
Office, 1969. 131* p. (In press.)
6. Black, R. J. Solid wastes handling. Jhn_ Envi ronmental aspects of
the hospital, v. 2. Supportive departments. Public Health
Service Publication No. 930-C-16. Washington, U.S. Government
Printing Office, 196?. p. 20-27. Reprinted as Solid wastes
handling in hospitals. Cincinnati, U.S. Department of Health,
Education, and Welfare, 1968. 9 P-
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ACKNOWLEDGMENTS
This study required the cooperation of many people and organi-
zations. The Division of Technical Operations extends sincere appre-
ciation to the personnel of the Department of Public Works, to the
Department of Health and Social Services, and to the village commis-
sioners for their help and encouragement during the course of the study,
Our thanks go also to Mr. Denver Dickerson, Secretary of Guam and
Acting Governor during the period of the study, for his assistance and
interest.
In particular, we wish to acknowledge the cooperation of Richard
A. Coddington, Environmental Health Administrator, and Thomas Yamamoto,
Chief Engineer, Department of Public Works. Special thanks go to
Jose C. Guerrero and Benny Perez for their help during the study.
Jesus G. Soriano and Gangalo A. Garcia also provided needed assistance.
The personnel of the Division of Technical Operations and the
Bureau of Solid Waste Management who have helped in the preparation of
this report are also gratefully acknowledged.
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APPENDI CES
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APPENDIX A
REPORT OF OBSERVATIONS ON
SOLID WASTE MANAGEMENT PRACTICES
ISLAND OF GUAM, NOVEMBER 1968
by Dona 1d M. Keagy-
and Jack DeMarccr
I. Introduction
In August, 1967, the Department of Public Health and Welfare,
Government of Guam, submitted an application to the Public Health Ser-
vice for a solid waste disposal demonstration project grant. Since
that time a number of written and verbal exchanges of communication
occurred between members of the two agencies relative to the problem
in general and the application in particular. Although the application
was disapproved, there was a mutual recognition of the need for tech-
nical consultation to the Government of Guam by the Solid Wastes
Program, Environmental Control Administration, Public Health Service,
Department of Health, Education, and Welfare. Accordingly, the Regional
Program Chief, Region 9, and the Deputy Chief, Technical Services,
authors of this report, made a field visit to Guam August 4-7, 1968,
for the purpose of making a general assessment of the solid waste situ-
ation on the Island. At the conclusion of the visit, we promised to
provide a report of our findings and recommendations.
We were accompanied the entire time by Mr. Richard Coddington, En-
vironmental Health Administrator, Department of Public Health and Welfare.
A tour of the Island was made which afforded views of representative
storage conditions of all five of the open-dump disposal sites for the
civilian population. Although study of the Navy and Air Force solid
waste disposal systems was not originally scheduled or planned, ad-
vantage was taken of the opportunity afforded to visit and become
acquainted with the situation at Andersen Air Force Base and the Navy
base. Interviews were held with key officials in the Department of
Public Works, but regrettably, the weather precluded a planned direct
observation of collection practices employed by that Department. A
--At the time of the report Mr. Keagy was serving as Regional
Program Chief, Region IX, Solid Wastes Program. He is currently
the special assistant to the Commissioner for Regional Operations,
Region IX.
^Mr. DeMarco was formerly Deputy Chief, Technical Services, Solid
Wastes Program. He is now serving as Deputy Director, Division of
Technical Operations, Bureau of Solid Waste Management.
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significant amount of time for dialogue was kindly made available from
time to time by the Acting Director of Public Health and Welfare. Ad-
vantage was taken of an opportunity to meet with 10 of the District
Commissioners for about 1 hr at the time of one of their regular meet-
ings. Lastly, the visitors accompanied Mr. Sanchez, Mr. Coddington,
and Mr. Perez, and were afforded the opportunity to have a l?-hr
conversation with Governor Manuel Guerrero on this subject. All of
the persons contacted were most generous with their time, coopera-
tion, and sharing of information and data.
This report is the product of not only first-hand observations
but also a rather careful later analysis of the volume of data and
information collected during the visit, including the January 1966
report of Eldon P. Savage and the September 1967 "Reorganization
Plan—Solid Waste Disposal" prepared by Albert E. Bertram.
In general, it can be said that the Public Health Service team
concluded that the 1966 and 1967 reports of Savage and Bertram pro-
vided basic and useful data and information to the extent feasible
under the circumstances.
This report should be viewed as an amplification of and supple-
ment to those two reports.
II. Fi ndi ngs
A. GOVERNMENT OF GUAM
Storage
The general condition of solid wastes storage on the Island
of Guam is highly unsatisfactory. The following observations
were made during our brief visit.
1. The prevalent type of residential storage container ob-
served was the 55~gal drum, without cover. In our dis-
cussions we were informed that holes were routinely
punched in the bottom of the drums to prevent water from
collect i ng in them.
2. Only in the community of Merizo did we observe any wide-
spread attempts to provide covers for the 55~gal drums.
Although this was an indication of a willingness to up-
grade conditions, the 55~gal drum is not amenable to the
type of tight-fitting cover required for a satisfactory
storage container.
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3. The container showed evidence that frequent cleaning
was not a general practice. The size and shape of the
55~gal containers do not lend themselves to easy cleaning.
it. In addition to the 55~gal drums, make-shift containers,
such as cardboard cartons, were observed in use.
5. The 55-gal storage containers provided a difficult situ-
ation for handling by the householder and the collection
crew.
6. The storage areas observed at some residences and com-
mercial districts frequently amounted to open dumping.
7. Large numbers of flies were observed at many storage
areas .
8. Evidence was observed that open burning was practiced at
some storage areas.
9. The location of residential storage containers at the
curb line of streets does not provide an aesthetic
attraction to the Island of Guam. Unsightly solid waste
storage areas provide an incongruous and demoralizing
effect where residents are attempting to improve the
beauty of thei r homes and overal1 appearance of the!r com-
muni t ies .
Col lection
The collection service provided by the Public Works
Department was the object of island-wide complaints. The
complaints seemed to be well founded on the basis of the
lack of adequate planning, supervision, and equipment nec-
essary to provide a satisfactory system. The following
observations were made:
1. The personnel were reported to have a high amount of
absenteeism. This amounts to approximately 20 percent
of the work force being absent each day. Personnel with
medical dispensations were employed because of difficul-
ties in securing people for the vacancies posted.
2. The lack of supervision of employees is evidenced by the
vacancy existing in the full-time superintendent position
for the garbage and trash division. Employee orientation
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and safety programs cannot be adequately carried on with-
out the supervisory personnel required.
3. The three 18-cu-yd, front-end-loading packer trucks
were reported to be in poor condition. Only one or
two were reported to be kept in service because of
maintenance requirements. The packer type of equip-
ment is acceptable for a collection system, but the
number available should be sufficient so that a proper
maintenance and service program will not interfere
with the normal operations of the system. The two
additional packer trucks reported to have been ordered
will not likely satisfy the requirements for an adequate
number of vehi cles.
b. The five to seven open body trucks in use are not a
suitable type for collecting solid wastes with an
organic fraction. In addition to the objection from
a public health viewpoint, these vehicles pose problems
to the safe and efficient handling of solid wastes.
5. The daily records of the collection system operation.,
although helpful, were not adequate for evaluating its
effectiveness, nor for use in revising the present col-
lection system to meet future needs.
6. An evaluation of the routes and methods used was not
available. It seemed evident that no attempt was made
to evaluate or re-evaluate the efficiency of the present
system for the purpose of optimizing its operation, even
with its known deficiencies such as lack of equipment.
7. A route map of the collection system was not available.
A route map, along with daily operation records and a
periodic evaluation serves as an operational method of
maintaining a proper collection system.
8. The present collection system is not responsible to the
justifiable complaints of the public. The District
Commissioners reported that solid waste collection was
the subject of their most frequent complaints. They ad-
vised that in their opinion, the public is willing to
pay a fee to receive proper collection service. An im-
proved system would have to be put into effect before
such a fee could be assessed.
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9- The frequency of collection of residential solid wastes,
although planned for once a week, was reported to be
irregular and less than once a week in actual practice.
It was reported that one 55~gal drum per week is the
amount that collectors are instructed to collect.
The amount of solid wastes noted at the residences in
many instances was more than could be contained in one
55~gal drum or an equivalent number of smaller containers,
This would indicate that the current frequency of collec-
tion and/or limitation on the amount collected is inade-
quate for the needs of the public.
D isposal
The five land disposal sites visited all classify as
open-burning dumps. These sites are the classical type at
which nuisances, vectors, obnoxious smoke and odors, are
insults to the general public. Also they are needless deg-
radations of the environment. Roadside dumping was observed
at various locations on the Island. Junked automobiles were
also prevalent in many locations. Solid waste disposal prac-
tices on the Island of Guam are in need of major improvement.
Management
A proper solid waste system requires supervision of each
facet of the system along with overall supervision to insure
that the component parts are integrated into an efficient
solid waste management system. Thus, the key to starting
and maintaining an efficient solid waste storage, collection,
and disposal system is good management. This lack of manage-
ment is one of the major causes for the poor solid waste
practices on the Island of Guam.
B. MILITARY
A brief visit to the Naval Air Station and Andersen Air
Force Base was made to observe their solid waste management
pract ices .
Naval Ai r Station
In general, their collection system seemed adequate and
the storage areas appeared neat and sanitary on the day of our
visit. Front-end, container-loading packer vehicles are used.
There seemed to be adequate supervision to maintain a con-
stant check on their system.
-------
The previous ocean-dumping practice (shark pit) is re-
ported to have been discontinued, and sanitary landfilling is
their current disposal method. Discussions and a brief visit
to their operation indicated that daily cover, no open burning,
and other proper sanitary landfill techniques were being utilized.
The site has reportedly been operated as a sanitary landfill for
approximately k months with the purpose of reclaiming low-lying
lands .
Andersen Air Force Base
Our brief visit to this Air Force installation resulted in
the following observations:
1. Records of the collection system operation are kept.
2. Rear-end loaders are used.
3. Backyard collection is provided.
k. Twice-weekly collection is provided for housing units.
5. Garbage from dining halls is collected daily.
6. Dempster Dumpster* storage containers are placed at other
locations and are collected using a "call system."
7. Dempster Dumpster* containers are scheduled for weekly
clean!ng.
8. An entomology unit conducts a cleaning program for con-
tainers, collection vehicles, and storage areas.
9. The disposal operations were carried on at several
locations, with open burning practiced at each. One site
was a trench-type operation, where the burned solid wastes
were covered periodically.
III. Discussion of Findings
A. GENERAL
The most significant conclusion we have drawn from our
observations and findings is that there is insufficient data
available to properly develop a comprehensive solid waste
management plan for Guam. This is not to say that a number
-Mention of commercial products does not imply endorsement by
the U.S. Public Health Service.
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of significant activities cannot be initiated immediately
to ameliorate the problem but that sooner or later consider-
ably more data will need to have been collected before the
Government of Guam can achieve an optimum solid waste man-
agement system.
Many of the observations pointed out in the previous sec-
tion have been brought to the attention of the Government of
Guam in both a study conducted by the Public Health Service by
Mr. Eldon Savage (1966) and also in a proposed reorganization
plan for Guam's Solid Wastes Disposal Program prepared by
Mr. Albert E. Bertram, Sr., Sanitary Engineer on assignment
with the Government of Guam. The consensus of these pre-
vious two reports is in general agreement with our observa-
tions, in that all phases of solid waste management on the
Island of Guam indicate a lack of adequate planning, super-
vision, and financial resources to appropriately cope with
the solid waste problems on Guam. This situation should not
be allowed to continue. Continuing study of the problems will
not result in an upgrading of general conditions, unless
these studies are backed to every degree possible by an
action program.
B. SPECIFIC
1 . Government of Guam
Storage
The obvious result of the poor storage practices
being followed on Guam is the unsightly conditions present
in most storage areas observed. The not so obvious, but
yet more important results of these poor storage prac-
tices, are the influences that they may have on public
health and also the efficiency of the collection system.
It is common knowledge that flies and other vectors
are attracted to and proliferate in solid wastes. The
function of proper storage is to minimize these breeding
grounds in every way possible so as to prevent nuisances
and potential health hazards to the public. Open storage
containers, containers with holes, open dumping of solid
wastes, make-shift containers, and unclean or uncleanable
storage containers are all conditions which directly
oppose the achievement of the goals of good storage prac-
tices. Since all of the improper conditions exist in the
present system, there should be little doubt as to the need
for rectifying the situation.
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A further consideration of proper storage is the
effect that it has on the efficiency of the collection
system. If more than one proper storage practice can be
followed, it is only good planning to select that method
which most aptly aids the proper collection of solid
wastes. The 55~gal storage container, as well as the other
storage practices present in Guam, do not aid collection
efficiency, but rather deter it. Thus, the unmanageable
55~gal storage containers, along with aiding and abetting
nuisance problems, etc., promotes an inefficient collection
system on Guam.
To promote a more aesthetic appearing community,
many communities keep their containers at locations other
than the curb line in front of houses. This entails either
the homeowner placing the container at the collection
point on the assigned day or that a set-out and set-back,
or backyard-carry collection system be provided. Before
Guam can change the location of its storage containers,
it must carefully consider the impact it will have on the
collection system. It would seem that until the 55-gal
containers can be abolished and a regular frequency of
collection can be established, the current storage con-
tainer location should be maintained. The environmental
health group could institute a program of educating the
public on effective ways of maintaining proper storage
areas. This would include information on topics such
as storage racks, methods and materials for cleaning
containers, and the need for wrapping putrescible frac-
tions such as food wastes. The sanitarians on Guam
would seem to be capable of providing the guidance re-
qu i red.
Collect ion
The interrelationship between proper storage and col-
lection was pointed out in the reports by Savage and
Bertram. We would strongly remind the Government of Guam
that no amount of effort to upgrade storage areas and
practices will succeed without a proper collection ser-
vice. Thus, the suggested improvements in storage prac-
tices will not prevent environmental health problems if
the solid wastes are not routinely collected from these
areas. The current collection system on Guam must be
considered as a major obstacle in upgrading solid waste
management on the Island. The previously stated findings
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indicate some of the shortcomings observed during our brief
visit. It is not the purpose here to attempt to design
an adequate system, but rather to emphasize the gross ne-
glect observed during our visit. An efficiently run collec-
tion system cannot be initiatsd or maintained with only a
token gesture of interest in its success. Consequently,
adequate supervision in all phases of the collection system
as well as storage and disposal is a fundamental require-
ment that must be resolved by the Government of Guam. Upon
providing adequate supervision for a collection system, it
can undertake the maximum use of the existing resources and
che development of required additional resources. Even if
che maximum use could be made of the existing equipment,
it is doubtful that proper collection service could be
provided. It is apparent that the collection equipment
currently used on Guam is not sufficient to accomplish
proper collection. Additional appropriate type packer
vehicles will be required as was pointed out in previous
reports. These collection vehicles, along with appropriate
containers, should help to reduce the problems of excessive
absenteeism now experienced. Proper loading heights help
to reduce unnecessary strain on the collection crew and
can help to maintain a happier work force.
Other items of an effective collection system will
also have to be initiated. This includes items such as
routing maps and periodic evaluations, daily records,
maintenance programs, safety and training programs, and
established collection frequencies. The routing of col-
lection vehicles will depend on what decision is made as
to the disposal site or sites that Guam is to utilize.
Disposal
An unsatisfactory method of using land for disposal
on Guam was prevalent. All of the classical problems
previously mentioned in the findings can be minimized by
following proper sanitary landfill practices. The use of
five proper sanitary landfill disposal sites would not
be necessary if one central site could be located. Pre-
vious reports seem in conflict as to whether transfer op-
erations are necessary or not. Nevertheless, the reports
are in agreement that one central disposal site near Ordot
would be appropriate. Proper equipment and procedures must
be utilized so that satisfactory and even exemplary oper-
ations can be insured. Selection of a disposal site will
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have an impact on the collection system. Therefore, con-
sideration of the collection and disposal system should
not be performed independently of one another.
Management
Good management cannot be over-stressed in correcting
the evils of poor solid waste storage, collection, and
disposal practices. If one component of the overall solid
waste management system receives little attention, the
operation of the other components may well face problems
that raise cost and decrease effectiveness. This was
pointed out for the storage-collection operations, but
can be equally true of the collection-disposal operations.
Therefore, the overall system of storage, collection, and
disposal should be kept in mind when improvements are in-
itiated.
2. Military
The results of site visits to the Federal facilities
indicated that the Government of Guam could benefit from a
liaison with the solid waste management personnel located
at these installations. The storage, collection, and dis-
posal practices in general on the military establishments
were superior to those observed elsewhere on the Island.
The Navy sanitary landfill operation observed could serve
as an illustration of what the Government of Guam could
accomplish with the proper motivation. Similar in-
stances of an improved storage collection practice
could also be observed on the military installations.
There seemed to be a willingness on the part of all
concerned to cooperate in discussions of their mutual
problems.
IV. Recommendations
It is recommended that the Government of Guam:
1. Assign a high priority to resolution of its solid waste
management problem.
2. Provide the necessary increase in personnel, facilities,
and funds to accomplish proper solid waste management
practices in Guam which includes:
a. Achievement of the long range goal of development of
a comprehensive solid waste management plan, and
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b. Achievement of short range goals of improvements of
current practices.
3. Initiate action as soon as possible to achieve the long
range goal of development of a comprehensive solid waste
management plan by either:
a. Contracting with one of several consulting engineering
firms currently available in the U.S., or
b. Utilizing the staff of Guam's solid waste management
agency with whatever assistance the Solid Wastes Pro-
gram can provide within the limit of its resources.
k. Initiate action as soon as possible to achieve the
following short range goals toward improvement of
current practices:
a. Abolish use of 55~gal containers in favor of con-
tainers that are totally enclosed, easily cleanable
(or one-time use), durably constructed, and easily
handled by one man.
b. Promulgate instructions or regulations for the
propef cleaning of reuseable containers.
c. Promulgate instructions or regulations for the
proper support of containers or suitable racks or
storage posts.
d. Permit an adequate number of containers so as to allow
storage of all solid waste in proper containers at
each collection point.
e. Exert a concerted effort to fill the vacancy of
supervisor of the collection crews.
f. Identify on a large scale map each source of solid
waste (point of generation) on the Island identified
as to type of source (i.e. household, commercial, ed-
ucational institution, public building, industry, gov-
ernment building, hospital, recreation area, airport,
agriculture, etc.) and as to whether collection, if
provided, is by private or public collector.
g. Identify on a transparent overlay of this map the
current daily route of each collection vehicle.
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h. On the basis of this map, evaluate collection ser-
vices currently being provided and revise collection
routes so as to provide reasonable and uniform ser-
vices—putrescible wastes should be collected at
least twice a week whenever and wherever possible.
i. Explore the feasibility of augmenting the currently
insufficient collection equipment and manpower through
the utilization of private collection services.
j. Exert a concerted effort to identify the cause of
delay in delivery of the (three) new packer trucks
ordered in FY 1968 and to expedite their delivery.
k. Select a central disposal site and operate it as a
sanitary landfill.
1. Discontinue the practice of using the existing open-
burning dumps, and initiate proper dump-closing
procedures, which include a vector elimination pro-
gram, compaction and grading of the waste material,
and application of at least 2 ft of compacted earth
cover graded to promote good drainage.
m. Outlaw open burning and indiscriminate dumping.
n. Review and amend, as necessary, existing statutes
and regulations so as to be consistent with these
recommendations.
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APPENDIX B
SAMPLE SIZE TO DETERMINE SOLID WASTE DENSITIES
This analysis is related to the mathematical concepts and tech-
niques used to develop the suggested number of samples for determination
of solid waste densities.
Based upon the exact formula for constructing a confidence interval
about an average ratio, the following approximation is considered appli-
cable to solid waste studies:
t2 V(A)
n = a
B262
where n = sample size
ta = constant obtained from a t-table at an a.% risk level
V(A) = variance of the numerator of the ratio involved (ib)
B = the average of the denominator of the ratio involved (cu yd)
(S = required sensitivity (& = one-half the maximum confidence
interval desired about the average ratio)
It is recognized that few investigators will have an adequate
estimate of either V(A) or B. Studies in the Cincinnati area have
found, however, that in almost 90 percent of all cases, the quantity
V(A)/B2 was less than or equal to 25X, where X is the mean density of
the wastes. At a risk level of 10 percent, an acceptable value for
ta is 1.645. Thus, equation 1 simplifies to:
(2)
Equation 2 can now be used to determine the sample size required
to make an estimate of any generation variable if (a) an estimate of
the mean is made and (b) the desired sensitivity is stipulated.
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From the same Cincinnati tests, the value of X was found to be
about 160 Ib per cu yd. If we desire the density within 10 Ib per cu
yd, then:
68 (160)
(10)2
n = 108.8
Therefore, 109 samples must be taken to determine the density of
the waste.
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APPENDIX C
SOLID WASTE SEPARATION
Five separations of residential solid waste were performed in an
effort to determine the composition. Samples of approximately 200 lb
were dumped onto a tarpaulin directly from a filled collection vehicle.
These samples were then hand-separated into the following categories:
Food waste—Waste resulting from food preparation, primarily
putrescibles.
Garden waste--Yard trimmings, leaves, and brush (twigs and branches
are included in this category if they have diameters of less
than 1 in.).
Paper products—Wrappi ng paper, newspaper, cardboard, and other
similar i terns.
Plastics, rubber, leather — Pi astic film, packaging, and rubber and
leather i terns.
Text i1es— Natural and synthetic fabrics.
Wood--Wood or wood products with diameters in excess of 1 in.
Metals--Both ferrous and nonferrous metals (primarily cans, with
some wire, metal foil, and heavy, bulky items).
Glass and cerami cs--Host1y bottles and jars with some noncombus-
tible ceramic materials.
Ash, rocks, dirt--Noncombustible items that are too small to be
separated into another category.
The guiding principle behind the separation was to obtain groups of
materials having similar physical and chemical properties. Appropriate
care was taken to place each item into the correct category, but it
was not worthwhile to attempt to separate labels from cans or to make
other similarly minute divisions. Such materials were placed in the
category that most closely fit their major weight classification.
After the waste was separated into the nine components, each com-
ponent was weighed. The percentage composition on a weight basis was
then calculated for each component (Text Table 8).
99
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APPENDIX D
MOISTURE-CONTENT DETERMINATION
Solid waste moisture-content determinations were obtained for
separated waste on 4 different days. Samples of food waste, garden
waste, paper products, and textiles were extracted from the separated
components. Metals, glass and ceramics, and ash, rock, and dirt con-
tain negligible moisture and were therefore excluded. Since a laboratory
grinder was not available, it was not possible to include plastics,
rubber, leather, and wood in the moisture sample. Moisture calculations
were adjusted for the omission of these materials by using data obtained
in previous studies. '
The laboratory procedure for determining moisture content was to
place the sample and its container in a drying oven at 70 C for approxi-
mately 24 hr. The first sample was dried in the combined form, and
subsequent samples were dried by individual categories.
Table D-l gives the percentage moisture content for each sample.
The moisture contents of the samples were then combined with the
weight of the contributing component, or components, to calculate ,
the moisture content of the residential solid waste as shown below. '
2/26/69 M.C. = (0.294) (4.5 + 22.5 + 36.0 + 3-5) + 0.080 (6.0) +
0.070 (3.0) + 0-0 (152.0)
227.5
M 19.6 + 0.5 + 0.2 = 20.3 = 0.089 = 8.9%
227.5 227.5
2/28/69 M.C. = 0.617 (17.0) + 0.165 (6.0) + 0.232 (31-5) + 0.329 (4.5) +
O.Q8Q (1.5) + 0.070 (5-0)
180.5
M r - 2Q-7 = 0.115 = H.5%
M'L- ~ 180.5
3/4/69 M.C. = 0.594 (36.0) + 0.567 (46.0) + 0.299 (45.0) + 0.090 (25-0) +
0.080 (7-0) + 0.070 (3-5)
64.0 = 0.242 = 24.:
~ 264.0
100
-------
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3/5/69 M.C. = 0.688 (20.5) + 0.337 (22.0) + 0.196 (29.5) + 0.386
Q.080 (2.5) + 0.070 (7.0)
33.6 = 0.169 = 16.
T9B75
Average moisture content = 0.15^ =
REFERENCES
a. Kaiser, E. R. Chemical analyses of refuse components. j_n_ Proceed-
ings; 1966 National Incinerator Conference. New York, American
Society of Mechanical Engineers, 1966. p. 8^-88.
b. Fryling, G. F. Combustion Engineering. New York, Combustion
Engineering, Inc., 1966. [883 p.]
102
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APPENDIX E
EFFECT OF RAINFALL ON MOISTURE CONTENT OF SOLID WASTE
Solid waste stored in open containers (the common practice on
Guam) will absorb water in relation to the amount of rain that falls
on it up to the moisture-holding capacity of the waste. (Most of the
containers on Guam have perforated bottoms and will not therefore
retain more water than the holding capacity of the waste.) Previous
studies have shown that this moisture-holding capacity is about 213
percent on a dry basis or 68 percent on a wet basis.
Residential waste on Guam had a density of 4.9 lb per cu ft with a
moisture content of 15*4 percent (wet-weight). The corresponding dry
density would be 4.1 lb per cu ft.
If we assume that a typical container has a diameter of "D" feet,
its base area will be rrD^/4. Rainfall will enter the container in the
total volume of TrD^R/48 cu ft, where R is the amount of rain in inches.
The weight of the rain will be 62.4 -rrD2R/48 lb.
The moisture content of the waste on a dry basis would then be:
u . . ^ to. , \ pounds of rain + pounds of natural moisture ._.„
Moisture content (% dry) = r ^-j r—, x 100
' pounds of dry waste
The average volume of waste in each container surveyed on Guam was
found to be 4.0 cu ft, which is equivalent to a dry weight of waste of
16.4 lb per container.
An analysis of separation data for Guam and reported moisture con-
tent of components under laboratory conditions ' indicates that the
lowest expected moisture content would be 11.5 percent on a wet basis,
or 130 percent on a dry basis. Natural moisture, at 13.0 percent of
dry weight, would be 2.2 lb per container.
The 55-gal drums encountered on Guam had an average diameter of
1.85 ft. The weight of rain entering these containers would then be
equal to 14.0 R lb, where R is the amount of rain in inches.
103
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Expressed as a function of rainfall, the dry weight moisture con-
tent of the residential waste on Guam would be:
Moisture content (%) = ,/ I 2'2 x 100
I b. H
= 85.4 R + 13
The average monthly rainfall for Guam is shown on Table E-l.
Using the developed equation, the relationship between rainfall and
the moisture content of the waste (Figure E-l) was calculated by assuming
that one-quarter of the monthly rainfall would fall during the 7 days be-
tween collections.
The total weight of the waste is the sum of dry weight and the
weight of the moisture in it. As the moisture content increases, the
unit weight of the waste will also increase according to the following
relat ionsh i p:
Unit weight (wet basis) = dry weight + weight of water
= dry weight + (dry weight) x (fraction of water)
= (dry weight) x (1 + fraction of water)
The dry unit weight of waste on Guam was found to be 4.1 1b per cu
ft. Substituting this figure into the above equation the following is
obtained:
Unit weight (wet basis) = 4.1 (l + fraction of water)
This relationship was then used to calculate the unit weight of
waste for the expected moisture contents.
For the average moisture content of 140 percent, the unit weight
of residential solid waste is about 9-8 Ib per cu ft.
Although an analysis of this type is not as good an engineering
practice as more frequent sampling of the waste, it is felt that this
will yield conservative results that can be used in a report of this
type to estimate the magnitude of the solid waste problem on Guam.
Additional sampling during both wet and dry seasons should be con-
ducted before detailed plans for solid waste management are designed
and implemented.
104
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TABLE E-l
AVERAGE RAINFALL AT AGANA NAVAL AIR STATION, GUAM, 1952-62
(Inches)
Month
January
February
March
Apri 1
May
June
July
August
September
October
November
December
Average monthly
rainfal 1 *
3.85
2.73
1.90
2.87
3.68
4.48
9.10
12.68
14.71
13.06
10.18
5.46
Assumed average
weekly rai nf al 1
0.96
0.68
0.47
0.71
0.92
1.12
2.27
3-17
3-67
3.26
2.54
1.36
-Data from Ward, P.E., S.H. Hoffard, and D.A. Davis. Hydrology of
Guam. Geological Survey Professional Paper 403-H. Washington, U.S.
Government Printing Office, 19^5. 28 p.
105
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240-
- 14.0
- 13.0
1.0 2.0 3.0 4.0
ASSUMED WEEKLY RAINFALL (INCHES)
5.0
Figure E-l. Relation between rainfall, moisture con-
tent, and unit weight of solid waste.
REFERENCES
a. Solid wastes landfill stabilization; second annual report. Los
Angeles, Ralph Stone and Co., Inc., 1969. mimeo. 1^7 p.
b. Kaiser, E. R. Chemical analyses of refuse components. In Proceedings;
1966 National Incinerator Conference, New York, May 1-57" 1966.
American Society of Mechanical Engineers, p. 84-88.
c. Fryling, G. F. Combustion engineering. New York, Combustion Engi-
neering, Inc., 1966. [883 p.3
106
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APPENDIX F
COLLECTION TIMES AND TIME-STUDY PROCEDURE
Seven of the solid waste collection trucks were followed during
the study to tabulate the number of miles traveled, services and items
collected, and the amount of time necessary for collection (Figure F-1).
Rather than collecting information on a total trip basis, data
were recorded for short distance intervals, either a block or a similar
distance. This practice resulted in a number of data points that were
applicable to evaluation by multiple regression.
The last four columns in Figure F-1 were used for work sampling
of the collection process. Fifty randomly spaced observations were
made of each of the three crew members over a 2i hr period. At the
time of observation it was recorded if the crew member was walking,
carrying, loading, riding, waiting, or doing some other operation.
The total number of observations of walking, carrying, loading, and
riding was divided by the total number of observations (150) to ob-
tain the fraction of productive time for a particular crew. Similarly,
the fraction of "waiting" time and of "other" time was also calculated.
The elapsed time for each data point recorded in the field was
then multiplied by the productive fraction to obtain the productive
time. This operation was carried out to reduce the variation between
crews so that the data from similar vehicles could be combined for
analysis.
Multiple regressions were run of distance, number of services, and
number of items against productive time. The distance from the truck
to the items for collection was not included because of the lack of
variation in the data. These regressions were first run for each
individual truck; the data for packer trucks and for dump trucks were
then combined into two groups. The resulting equations for these two
types of vehicles are:
Packer: Productive time = 2.84 x (miles) + 0.09 x (No. of services) + 0.21
x (No. of items) + 0.38
Dump: Productive time = 8.63 x (miles) - 1.29 x (No. of services) + 1.40
x (No. of items) + 0.99
107
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No.
;ity
Residential Collection Data Sheet
Date
^oute Weather
Vehicle No Data hy
Tvoe
Capncity r.y
Location
Distance
(feet)
Elapsed
Time
Number of
Services
Number of
Items
S = wa
C - co
L = IOC
R = ric
W= we
0 = ot
Avg Distance
to items(Ft)
Iking
Page A of
for "/,.
ina fnr o/*
her fnr o/.
Time
(0= )
Man One
Man Two
Man Three
Figure F-l. Field survey collection-time data sheet.
108
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The equation for packer trucks explained 88 percent of the
variation in the data with a standard deviation of 23 percent of
the response mean. Eighty-six percent of the variation was explained
for dump trucks with a standard deviation of 24 percent of the
response mean.
Although the "waiting" time was removed for the purpose of analy-
sis, it is a function of the equipment used and the skill of the crew
and will always be present to some degree. It must therefore be con-
sidered when calculating the total collection time.
Similarly, the "other" time will always be present because a crew
cannot be expected to work 8 hr without breaks or rest periods. The
"waiting" and "other" times were added to the calculated productive
time to get the collection time--1.64 times the productive time for
packers and 1.45 times the productive time for dump trucks.
log
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APPENDIX G
EQUIPMENT NEEDS
Assume that twice weekly collection of waste will be provided
for residences, businesses, industries, and labor camps, and daily
collection for schools, hospitals, and government offices. There
are 12,693 residential dwelling units that must be collected twice
weekly, thus making a total of 25,386 services. The daily collection
(5 days per week) would include 5,080 residences. With an average
of 1.82 items per service, this would be 9>240 items per day.
There are 5^7 commercial establishments, 13 hotels, 32 parks, 15
industries, 27 clinics, 16 alien labor camps, and 58 churches that
must be collected twice weekly for a total of 1,416 services or 280
units per day. With three items per service, this is 840 items per
day.
There are 40 government offices on the island, 65 schools, and one
hospital. Assume that there are 10 items at each of these services;
the result is 106 services and 1,060 items per day.
This is a total of 5,466 services and 11,]40 items per day. If
there are 60 services per mile, daily collection will cover about 90
miles. By making use of the equation for packer trucks presented in
Appendix F, the following results:
Productive time = 2.84 (miles) + 0.09 (No. of services) +
0.21 (No. of items) + 0.38
= 2.84 (90) + 0.09 (5,466) + 0.21 (11,140) + 0,38
= 256 + 492 + 2,339
= 3,087 min
The total daily collection time is therefore:
Collection time = 1.64 (productive time)
Collection time = 1.64 (3,08?) = 5,063 min = 84 hr
10
-------
We must further assume that, of the 8-hr collection day, 2 hr
are spent traveling to and from the route and disposal site and at
the disposal site. This leaves 6 hr for collection. The number of
necessary packer trucks is then:
Number of trucks = total collection time v collection time per truck
= 84 v 6 = 14 trucks
It has been shown that a change to 32-gal containers and the
elimination of 55~gal drums would result in a time savings of 22 per-
cent. If this savings is applied to the time associated with the number
of items (2,339). the productive time would then be:
Productive time = 256 + 492 + 0.?8 (2,339)
=748+1,824 = 2,572 min
Collection time = 1.64 (2,572)
= 4,218 min = 70 hr
Number of trucks = 70 * 6 = 12 trucks
Further time savings could be achieved by the use of disposable
bags (either plastic or paper) and bulk containers at sources with
large numbers of cans. Other factors should be examined, however,
before adoption of these systems. These include the use of special
collection equipment, cleaning of containers for the bulk container
system, the cost of bags, racks, and animal-attraction problems
associated with bag storage of solid waste.
11
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APPENDIX H
PRESENT LEGISLATION*
SUBCHAPTER Q
Garbage and Rubbish
§9660 Definitions.
§9660.1 Prohibition.
§9660.2 Garbage on Premises.
§9660.3 Rubbish on Premises.
§9660.4 Edible Garbage.
§9660.5 Removal of Construction Debris.
§9660.6 Disposition.
§9660.7 Burning Garbage.
§9660.8 Department of Public Works to Collect.
§9660.9 Transportation.
§9660.10 Vehicles Not to be Used for Food Transportation.
§9660.11 Regulations.
§9660.12 Director to Supervise Sanitation of Dumps.
§9660.13 Acquisition of Property for Dump Purposes.
§9660.14 Operation of Dumps.
§9660.15 Contract.
§9660.16 Persons Prohibited from Dumps.
§9660. Definitions. The following definitions shall apply in
the interpretation and enforcement of this chapter:
(a) "Garbage" means any offal, swill, leavings of food aban-
doned, spoiled, condemned, or decayed meat, fish, animal,
or vegetable matter, including offal from the slaughter-
ing of animals.
(b) "Rubbish" means any waste, refuse, broken or rejected
matter, trash, junk, debris, not including garbage, whether
combustible or noncombustible.
(Added by P.L. 109 3 3rd G.L.3 approved August 133 l9563 to be
effective at 12:01 A.M. on the sixtieth day foil-owing its approval.)
"Reprinted from the Government Code of Guam.
112
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§9660.1. Prohibition. No person shall have on his premises any
garbage or rubbish except as herein provided.
(Added by P.L. 109, 3rd G.L. 3 approved August 13, 1956, to be
effective at 12:01 A.M. on the sixtieth day following its approval.)
§9660.2. Garbage on Premises. Garbage shall be stored in durable,
metal receptacles which shall have close-fitting covers. Such recep-
tacles shall be kept covered except while being filled or emptied.
(Added by P.L. 109, 3rd G.L., approved August IS, 1956, to be
effective at 12:01 A.M. on the sixtieth day following its approval.)
§9660.3. Rubbish on Premises. Rubbish shall be stored in durable
receptacles with close-fitting covers, except that bulky rubbish such
as branches, weeds, or boxes may be bundled.
(Added by P.L. 109, 3rd G.L.3 approved August IS, 1956, to be
effective at 12:01 A.M. on the sixtieth day following its approval.)
§9660.4. Edible Garbage. The Director is authorized to prescribe
by regulation such processing and limitations with respect to the use
of garbage as animal feed or other use as he may deem necessary for the
public health. No garbage shall be sold or disposed of as food for
human consumption.
(Added by P.L. 109, 3rd G.L., approved August IS, 1956, to be
effective at 12:01 A.M. on the sixtieth day following its approval.)
§9660.5. Removal of Construction Debris. Removal of rubbish,
debris, and earth incident to construction or excavation work, or
grading of land, shall be the responsibility of the owner of the build-
ing or land.
(Added by P.L. 109, 3rd G.L., approved August 13, 1956, to be
effective at 12:01 A.M. on the sixtieth day following its approval.)
§9660.6. Disposition. No person shall dispose of any garbage,
rubbish, or other offensive substances, including dead animals and
offal, into any river, creek, pond, reservoir, stream, well, or spring,
13
-------
or any collection of fresh water, into or upon any public or private
driveway, alley, street, highway or road, beach, or any public place,
or any public property except in an authorized public dump or recep-
tacle furnished for such purpose, or other place as may be authorized
by the Director, or on any other private property except with the
consent of the owner and in conformity with law.
(Added by P.L. 1093 3rd G.L., approved August 13, 1956, to be
effective at 12:01 A.M. on the sixtieth day following its approval.)
§9660.7. Burning Garbage. No person shall destroy or attempt to
destroy by burning, except in an incinerator the construction and opera-
tion of which is approved by the Director, or as may otherwise be
authorized by the Director, any garbage, dead animals, or other offen-
sive substances the burning of which may give off foul and noisome
odors, in, or within one fourth (?) mile, of Agana, any village, or
any other urban area.
(Added by P.L. 109, 3rd G.L., approved August 13, l9563 to be
effective at 12:01 A.M. on the sixtieth day following its approval.)
§9660.8. Department of Public Works to Collect. The Department
of Public Works shall collect and dispose of garbage and rubbish,
except where the Governor, by executive order, places this respon-
sibility upon a Commissioner. Such collection and disposal service
shall be furnished in Agana and all villages and urban area, and may
be extended to further areas by administrative action. No fee or
assessment shall be levied or charged for the collection and disposal
of such garbage and rubbish from premises or portion of premises
used exclusively for residential purposes. As to all other premises,
fees shall be charged. The Director of Public Works shall establish
a schedule of reasonable fees and a procedure for payment thereof by
regu1 at ion.
(Added by P.L. 109, Srd G.L., approved August 13, 1956, to be
effective at 12:01 A.M. on the sixtieth day following its approval.)
§9660.9. Transportation. No person shall transport any garbage
or rubbish in any vehicle in any street or highway unless adequate
precautions are taken to prevent such garbage or rubbish from falling
from or being dislodged from such vehicle during such transportation.
If any such garbage or rubbish falls from or is dislodged from any
-------
such vehicle upon any street, highway, or any other public or private
property, it shall be the obligation of the operator of such vehicle
immediately to pick up and remove such garbage or rubbish.
(Added by P.L. 109, 3rd G.L., approved August IS, 1956, to be
effective at 12:01 A.M. on the sixtieth day following its approval.)
§9660.10. Vehicles Not to be Used for Food Transportation. Ve-
hicles used for conveying garbage or rubbish shall not be used for
the transportation or conveyance of any food or drink, including any
meat, fish, vegetables, or other food stuff which are to be used for
human consumption.
(Added by P.L. 109, 3rd G.L., approved August 13, 1956, to be
effective at 12:01 A.M. on the sixtieth day following its approval.)
§9660.11. Regulations. The Director of Public Works may by
regulation prescribe additional requirements with regard to garbage
and rubbish receptacles and collection of garbage and rubbish.
(Added by P.L. 109, 3rd G.L., approved August 13, 1956, to be
effective at 12:01 A.M. on~ the sixtieth day following its approval.)
§9660.12. Director to Supervise Sanitation of Dumps. The Director
shall have cognizance for health and sanitation purposes of all public
and private dumps or sites used for the dumping, incineration, or other
disposition of garbage, rubbish, and other offensive substances. He
may in his discretion order that any such dump or site be closed, aban-
doned, filled in, or otherwise terminated, in whole or in part, or
limited in its operations, in the interests of the public health.
(Added by P.L. 109, 3rd G.L., approved August 13, 1956, to be
effective at 12:01 A.M. on the sixtieth day following its approval.)
§9660.13. Acquisition of Property for Dump Purposes. In accord-
ance with provisions of law such public land may be set aside or
acquired as may be needed as public dumps or sites for the dumping,
incineration or other disposition of garbage, rubbish and other offen-
sive substances. No such land shall be set aside or acquired for
such purpose without the prior approval of the Director.
(Added by P.L. 109, 3rd G.L., approved August 13, 1956, to be
effective at 12:01 A.M. on the sixtieth day following its approval.)
15
-------
§9660.14. Operation of Dumps. Public dumps shall be estab-
lished, operated and maintained by the Department of Public Works,
except where the Governor, by executive order, places this responsi-
bility upon a Commissioner.
(Added by P.L. 1093 3rd G.L., approved August 13, 1956, to be
effective at 12:01 A.M. on the sixtieth day following its approval.)
§9660.15. Contract. The Department of Public Works, with the
approval of the Governor, may execute a contract after public bid
with a private person for the collection and disposal of any garbage,
rubbish, or other offensive substances, or separate items thereof.
(Added by P.L. 109, 3rd G.L., approved August 13, 1956, to be
effective at 12:01 A.M. on the sixtieth day following its approval.)
§9660.16. Persons Prohibited from Dumps. No person shall be
permitted on any public dump except persons having material to clump
and other authorized persons.
(Added by P.L. 109, 3rd G.L., approved August 13, 1956, to be
effective at 12:01 A.M. on the sixtieth day following its approval.)
116
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