-------
5. Type of Vehicle
6. Type of Hauler.
7. Volume of Material.
8. Condition, of Material.
9. Location of Source of Load.
10. Coordinate of Source of Load.
1 1. Governmental Subdivision of Source of Load.
12. Type of Material.
13. Percent of Each Type of Material.
The landfill surveys were scheduled to avoid unusual condi-
tions. Weeks containing holidays were avoided. Where a holiday fell on or near
a weekend the surveys were delayed beyond the weekend to avoid recording accu-
mulations due to the holiday. Similarly, weather conditions were considered.
Where rain and wet weather became a possible factor, one survey in progress
was abandoned and restarted after the weather and site conditions had improved.
Each survey covered a seven consecutive day period free of disruptive conditions.
2. Computer Programs.
a. General. In all of the programs, certain termino-
logy is used which must be understood. The reader is cautioned to be certain the
right data is selected and the right conditions and units are used. The termino-
logy is not difficult or profound; it is tedious. Reference will be made to compu-
ter programs by program designations A through I. These programs are further
designated by sortings. For example, Program A, "Quantities of Materials by
Disposal Process and by Hours of the Day" was produced in 49 varieties by sort-
ing the data into 49 different groups or combinations. There were 8 sorts for
each of the six sites representing the seven individual days and the summation
of the entire week, and one additional sort which produced the sum of all days
and all sites. Where the sorting was by days, the totals are per day, and when
sorted by the entire week, the totals are per week. The week or day may be
seasonally adjusted to convert the raw data to a typical day or typical week,
but in each case it is labeled to reflect the true conditions. There are certain
cases where this procedureis changed; however, the data is properly marked
to reflect the true conditions.
Before any programs •were run, all of the data
was tested in specific test programs to find potential errors. These test pro-
grams are described in the Appendix Exhibit 2-8. In total there were 49 sorts
for each of the Programs A through D; nine sorts each for Programs E, F and
G; plus one each for Programs H and I, for a total of 225 sets of data. All of
the data is not reproduced in this report because of the volume of material.
Certain portions have been reproduced where appropriate. The entire data is
available for interested persons.
Not all of the data was used in the analysis of
the problems peculiar to this Study Area. In some cases the data was pro-
duced for the benefit of researchers who may have use for the data not pre-
viously available. The various combinations of data in some cases were the
2-28
-------
result of simply leaving a computer subprogram in a main program, and ac-
quiring basic data as a byproduct while obtaining certain required information.
We have tried to describe the data, how and under what conditions it was ga-
thered, and how it was adjusted, to make this information as useful as possible
to others with similar problems. We have attempted to produce data and re-
port exactly the source and conditions both for our use and for the use of others
as it may apply.
The data was processed on an IBM 360/65 com-
puter with a 262K memory. The data was established on cards and then con-
verted to magnetic tape for processing.
The terms which are common to several programs
are explained as follows:
(1) Cubic Yards as Received. These are the
cubic yards of material appearing in Columns 33-36 of the survey form. They
are not adjusted for seasonal or compaction factors. They are adjusted for
Condition of Material as indicated in Column 49 of the survey form. They are
also adjusted for packer trucks.
(Z) Packer Truck Adjustment. Where the ma-
terial was delivered in a packer truck, it was considered pre-compacted to the
extent that if it had been delivered loose, it would have occupied three times
the volume actually measured in the truck. Since each material has been assigned
a compaction factor, a seasonal factor, and a unit weight based on a loose "as
received" condition, materials delivered in a packer truck use the same factors,
but the volume is automatically multiplied by three. Quantities shown as "As
Received, " include the material brought in packer trucks, but is reported as the
larger volume which would have been received if a non-packer truck has been
used.
(3) Pounds as Received. The same as "Cubic
Yards as Received" except the volume of each material on each load was multi-
plied by the appropriate unit weight for that particular material to convert from
cubic yards to pounds. The unit weights used are shown in Table 2-7.
(4) Vehicles, or Vehicles this Hour are simply
a count of the vehicles for the appropriate unit of time.
2-29
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Table 2-7
Materials
1. Demolition-Mixed, Non-Combust.
2. Demolition-Mixed, Combust.
3. Dirt, Sand or Gravel
4. Rock
5. Broken Pavement or Sidewalk
6. Construction Mixed
7. Street Sweepings
10. Logs & Stumps 10" dia. and g
11. Logs •• Stumps less than 10" dia.
12. Limbs and Leaves chipped
13. Limbs and leaves not chipped
14. Brush
15. Grass k garden
20. Paunch manure
21. Pen sweepings
22. Other meat packing wastes
23. Poultry Processing wastes
25. Tires & rubber products - new
26. Tires & rubber products - used
27. Rubber mfg. wastes
28. Oil, tars & asphalts (liquid)
30. Bean or grain wastes
31. Potato Processing Wastes
32. Other food processing waste
33. Fruits and vegetables
35. Ashes and cinders
36. Fly ash
37. Cement industry waste
38. Other fine particles
40. Garbage & kitchen waste, dom.
41. Garbage & kitchen waste, com.
42. Mixed trash & refuse (inc. garb.
43. Mixed trash & refuse (no garb.)
44. Incinerator Residue Domestic
45. Incinerator residue com. & ind.
50. Paper & cardboard
51. Cans
52. Furniture Combust.
53. Furniture non-combust.
54. Major appliances
55. Heavy metal scrap
56. Light metal scrap
57. Wood crates
58. Glass and bottles
59. Battery cases and automotive
60. Automobile bodies
61. Wire
62. Chemical waste, dry
(3. Chemical waste, liquid or wet
70. Sewage sludge solids
71. Sewage grit
72. Sewage screenings
73. Sewage grease skimmings
>action Factors and
Seasonal
Factor
st. . 6
.6
.6
.6
.6
.6
. 7
jater .9
a. .9
.6
.6
.6
.6
1.0
1.5
1.0
1.0
1.0
I 1.0
1.0
.8
1.0
1.0
1.0
0.8
2.0
1.0
1.0
1.0
.9
.9
a.) .9
) -9
1.0
1.0
1.0
1.0
1.0
1.0
1.0
1.0
1.0
1.0
1.0
1.0
1.0
1.0
1.0
1.0
1.0
1.0
1.0
1.0
Unit Weights
Compaction
Factor
.8
. 7
.8
.6
. 7
. 7
.9
. 5
.5
.4
. 3
. 1
.2
.8
.6
.8
.8
. 2
. 2
. 3
. 1
.8
.8
.6
. 5
.9
1.0
1.0
.9
. 3
. 3
. 2
.2
. 7
. 7
.2
. 2
. 2
. 2
. 2
.9
. 3
. 5
.9
.9
. 3
. 2
.9
. 1
.9
.9
.9
.9
Unit Wt.
#/CF
90
22
90
90
95
60
85
25
25
12
10
2
5
64
40
64
64
15
15
55
60
48
42
20
35
45
80
90
60
6. 2
6.2
5.2
5.2
30
30
4. 5
6
3
3
11
150
50
11
26
45
8
20
40
60
65
80
60
60
Unit Wt.
#/CY
2400
600
2430
2430
2560
1620
2300
675
675
320
270
54
135
1730
1090
1730
1730
400
400
1500
1620
1300
1130
540
950
1220
2160
2400
1620
167
167
140
140
810
810
120
160
80
80
300
4050
1350
300
700
1200
216
540
1080
1620
1750
2200
1600
1600
2-30
-------
(5) Seasonal Factor Adjustment. A factor was
assigned to each material which would adjust the amount of material received
during the day or week to the average daily or 7-day rate which would be ex-
perienced over the entire year. The factors are shown in Table 2-7.
(6) Compaction Factor Adjustment. A fac-
tor was assigned to each material which would adjust the material received dur-
ing the day or week to reduce its volume "as received" to the volume which it
would occupy when mixed with other materials and was compacted into a land-
fill. Cover dirt is not included. See Table 2-7.
(7) Other terms are explained in the program
description where they are used.
b. Computer Program A - Quantity of Refuse by
Disposal Process and by Hours of the Day. In this program the materials were
sorted by hours of the day and by potential disposal process. The hours started
at midnight and ran through the 24-hour day. Five potential disposal processes
were considered. Each load was examined by the computer and compared to a
set of instructions which determined if that load could be accepted by the process.
If it could, the load was recorded for the process. If it could not, the load was
recorded in the space next to that process marked "To Land Fill" or "Not for
" as appropriate. For example, a load of broken pavement would be
accepted at a sanitary landfill and so recorded. When considered for incinera-
tion it was rejected and sent "To Landfill. " When considered for composting it
would be rejected and sent "To Landfill. " As soon as one potential process was
completed, the next process was considered. The load is included in all five
processes.
The Sanitary Landfill Process would accept all
materials and is the same "As Received CY" and "As Received Pounds" except
the cubic yards have been adjusted for compaction and seasonal variation, and
the pounds have been adjusted for seasonal variation only.
The Incineration Process - All loads and each ma-
terial content of a load were checked to determine if the load could be accepted
at an incinerator or should be diverted to a sanitary landfill. Loads consisting
of materials 2, 6, 12 through 26, 30 through 33, 40 through 43, 50, 51, 52,
57 and 70 through 74 would be accepted. Other loads containing less than 25%
of the materials not listed above would be accepted. All other loads would be
diverted from the incinerator to a sanitary landfill. On this basis, two sets
of data were determined, i. e. "To Incinerator" and "To Landfill. " In each of
these two main classifications, the material is shown in cubic yards and pounds.
They are adjusted for seasonal factor and for compaction factor where appro-
priate.
The Composting Process - All loads and each
material content of a load were checked to determine if the load could be
accepted at a composting plant or should be diverted to a sanitary landfill.
2-31
-------
Loads consisting of materials 12 through 23, 30 through 33, 40 through 43, 50,
70, 71 and 72 would be accepted. Other loads containing less than 10% of the
materials not listed above would be accepted. All other loads would be diverted
from a composting plant to a sanitary landfill. On this basis, two sets of data
were determined, i. e. "To Composting" and "To Landfill. " In each of these
two main classifications the material is shown in cubic yards and pounds. They
are adjusted for seasonal factor and for compaction factor, where appropriate.
The Dry Land Fill - All loads and each material
content of a load were checked to determine if the load could be dumped in a dry
landfill site. This site would be similar to a sanitary landfill but would be one
which would not require the same degree of care in handling and covering to
protect the community from rats, odors, gases, unsightly refuse and insects.
It could be a gulley or low area in town where filling was desired. Material
which could not be dumped in a dry landfill would be diverted to a sanitary land-
fill site for disposal. Loads consisting of materials 1 through 5 and 35 through
37 would be accepted. All other loads would be diverted to a sanitary landfill.
On this basis, two sets of data were determined, i. e. "To Dry Landfill" and
"Not to Dry Landfill. " This latter set would be to Sanitary Landfill. In each of
these two main classifications, the material is shown in cubic yards and pounds.
They are adjusted for seasonal factor and for compaction factor, where appro-
priate.
The Wet Land Fill - All loads and each material
content of a load were checked to determine if the load could be dumped in a
wet landfill site. This site would be similar to a worked out quarry where there
was standing water or any other site subject to ground water inundation where
contamination of ground water through leaching could occur. Material which
could not be dumped into such a wet landfill would be diverted to a sanitary
landfill for disposal. Loads consisting of Materials 1, 3, 4 and 5 would be
accepted. All other loads would be diverted to a sanitary landfill. On this
basis, two sets of data were determined, i. e. "To Wet Landfill" and "Not
to Wet Landfill. " In each of these two main classifications, the material is
shown in cubic yards and pounds. They are adjusted for seasonal factors and
compaction factors where appropriate.
Program A was run for each day, for each site;
for the totals for each site; and the totals for all days, all sites. The totals
for each site and totals for all days, all sites are shown in Exhibits 2-9
through 2-15.
c. Computer Program B - Quantities of Refuse
by Disposal Process and by Type of Vehicle. This program is the same as
Program A except the type of vehicle has been substituted for the hours of
the day. The vehicle types are those recorded in column 15 of the survey
form.
Program B was run for the same days, sites
and totals as Program A. Only the run containing all days, all sites is
shown in Exhibit 2-16.
2-32
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d. Computer Program C - Quantity of Refuse by
Disposal Process and Type of Hauler, This program is the same as Program
A except the type of hauler is substituted for the hours of the day. The types
of haulers are those shown in columns 17 and 18, of the survey form and ex-
plained in Exhibit 2-7. The number of vehicles for each hauler type will not
add up to the total shown. The total is correct and represents the actual num-
ber of vehicles during the day or week; however, where a hauler type 4, 5,
or 6 was involved, the vehicle was counted each time the 4, 5 or 6 appeared.
A single vehicle with part 4, part 5 and part 6 loads would be recorded in all
three places.
Program C was run for the same days, sites and
totals as Program A. Only the run containing all days for all sites is shown
in Exhibit 2-17.
e. Computer Program D - "As Received" Quantities
of Refuse by Type of Vehicle and by Hours of the Day. In this program the "As
Received" quantities are sorted by type of vehicle and by hours of the day. The
program is self-explanatory except to note that the quantities in both cubic
yards and pounds are not adjusted for seasonal or compaction factors.
Program D was run for the same days, sites, and
totals as Program A. Only the run containing all days for all sites is shown in
Exhibit 2-18.
f. Computer Program E - Quantities of Refuse and
Adjustment Factors by Material Classification. In this program all loads were
examined and each material in a load was sorted by material classification.
The quantity of material in each classification was adjusted for seasonal and
compaction factors for each material, one at a time.
The several columns of data produced are ex-
plained as follows:
(1) Material Received: The cubic yards
and pounds are as received but added are the percent of each material to the
total.
(2) Compaction Factor: The factors used
to adjust "as received" loose quantities to "compacted in place" quantities.
(3) Compacted C. Y. : These are the as
received cubic yards multiplied by the compaction factor expressed as C. Y.
and as % of total.
(4) Seasonal Adjustments: The factor used
to adjust the quantities measured during the survey •week to make these quan-
tities representative of the entire year. COMPCYisthe cubic yards as re-
ceived and adjusted Tor compaction factor multiplied by the seasonal factor.
2-33
453-956 O - 72 - 6
-------
The % CY which follows COMP CY is the % of this material to the total after ad-
justment for compacting and seasonal factor. The POUNDS and % POUNDS are
as received quantities adjusted for seasonal factor only. (Pounds cannot be com-
pacted). CUBIC YARDS are the as received cubic yards adjusted for seasonal
factor only. They are not compacted.
Program E was run for the totals for each site,
and for the totals of all days for all sites. These programs are shown in Ex-
hibit 2-19 through 2-25.
g. Computer Program F - Centroids of Refuse by
Material Classification. This program is primarily for the purpose of deter-
mining the centroids of materials which will be explained below; however, a
summation of volumes and weights was included for convenience. This summa-
tion is the volume and weight of material normally stated in cubic yards and
pounds per week, or per day. In this case, the volumes and weights have been
increased to represent an annual quantity. The volume is acre feet per year
adjusted for seasonal and compaction factors. The weight is tons per year ad-
justed for seasonal factor only.
Centroids were computed for both south and west
coordinates. They were computed by dividing, the sum of all of the products
of coordinates times the load by the sum of the load, where the load was ex-
pressed in both seasonally adjusted cubic yards and seasonally adjusted pounds.
pjECoordinate X CY also _ C Coordinate X Pounds
CY Pounds
The coordinates are those recorded in columns
38 through 44 of the survey form. The cubic yards and pounds are "as received".
The centroids represent the single theoretical lo-
cation of all of the material within a sort. This may be the centroid of a ma-
terial, a site, or the entire study area, as appropriate.
In the typeout, the columns reproduced are marked
CY SUM or LB SUM. These are the summation of CY X Coordinate or POUNDS
X Coordinate as appropriate. The columns marked CY CORD and LB CORD are
the coordinates of a point on a map. They represent the distance south or west
of base lines expressed in feet x 1000.
Program F was run for the total of each site and
the total of all sites for all days. These programs are shown in Exhibit 2-26
through 2-32.
h. Computer Program G - Centroids of Refuse by
Material Classification Sorted by a Time Line into Two Sanitary Landfill Zones.
This program is the same as Program F except the loads were sorted into two
zones as described in Part IV, Section 1-2. The information is the same and
2-34
-------
in the same units as in Program F but the quantities are for each of two sanitary
landfill sites instead of for a site or for all sites.
With all loads combined in one deck, the coordi-
nates for each load were compared to the coordinates of a line which was drawn
through the StudyArea. The line represented the locus of points, each of which
was an equal driving time from the two future landfill site areas or zones.
The computer sorted each load into the zone in
which it was located. The program was then run exactly as Program F. The
results represent the loads in each of the two zones and indicated tke centroids
and quantity of material which could be expected to be received at each of the
two sites.
The computer runs are shown in Exhibit 2-33 and
2-34.
i. Computer Program H - Quantities of Refuse by
Political Subdivision. This program determined the cubic yards and pounds,
and percent cubic yards and pounds on an as received basis for each political
(governmental) subdivision found in columns 46 and 47 of the survey form. The
code is explained in the Appendix Exhibit 2-35.
j Computer Program I - Quantities of Refuse by
County Vehicle Registrations. This program determined the cubic yards and
pounds, and percent cubic yards and pounds on an as received basis for each
county vehicle registration code found in columns 12 and 13 of the survey form.
The codes are identified in Section G-1 , Table 2-8.
F. Volume, Weight and Vehicle Analysis
1. General. Computer programs A through D are the princi-
pal source of information concerning volumes and weights of waste material.
They indicate when and by whom the materials were delivered, other informa-
tion concerning vehicle types and the relative amount of material disposed of
at the several landfill sites surveyed. This information will be of value in
making detailed plans for operation of the two new sanitary landfill sites rec-
ommended in Part Four of this report. Much of this information was used in
developing the recommendations and preliminary planning shown in Part Four.
The following explanations show what are believed to be
the items of greatest significance concerning the study area.
2. Comparing the Several Sites for Waste Quantities and
Vehicular Traffic. Figure 2-5 shows the percentage by volume and weight of
material, and vehicular traffic at each of the six major landfill sites surveyed.
This information was taken from the summary of all days for each site, as re-
ceived. This figure graphically illustrates that most of the material is being
brought to the two Des Moines sites.
2-35
-------
50
?
0
45
40
35
30
w 25
h
Z
UJ
0 20
(T
y
Q.
15
10
D
B
B
CUBIC YARDS
TONS
VEHICLES
DISPOSAL SITES
k.-WEST DES MOINES-(Operates seven days, from O90O to 2000hours)
B- POLK COUNTY-(Operates five days, from 0900tol730 closed Sun.a Mon.J
C- AN'KENY-(Operates six days, from 09OOto /70Ohours,closed Sun.)
D- EUCLID- (Private operator seven days, fromOBOOto 1730 hours)
E- DES MOINES fff I-(Operates seven days, 24 hours)
F - DES MOINES #2-(Operates six days, fromOSOO to22OOhours, closed Sun.)
For quantities and weights see Exhibits 2-9 thru 2-14 for individual sites
and 2-15 for the total. One hundred percent equals 47353 CY./Wk.;
11,400 Tons/Wk.; 9OI2 Veh./Wk., as received.
COMPARING THE SEVERAL. SITES
FOR
WASTE QUANTITIES a VEHICULAR TRAFFIC
FIGURE 2-5
-------
The Des Moines Site No. 2 has a higher tonnage than Site
No. 1. This is explained in the fact that this site receives the heavy building
demolition material and the logs from the Dutch Elm removal program. Site
No. 1 has large quantities of paper which accounts for the high volume and low
weight.
The Euclid Avenue Site has a higher vehicle count than
one would expect with the relatively low quantities. This is due to a large num-
ber of automobiles which use this site. Each automobile brings only a small
load.
Reasons for any unusual pattern can be found by examining
the detailed computer programs.
3. Comparing the Several Vehicle Types for Waste Quantities
and Vehicular Traffic. Figure 2-6 shows the percentage by volume and weight
of materials, and vehicular traffic for the nine different types of vehicles. It
might be expected that most of the material going to a landfill site would be
brought in packer trucks hauling waste from the residential dwellings in the
community. This is incorrect. Such waste is a major category and a signifi-
cant quantity as shown in the figure, but the other waste in the community far
exceed the domestic waste. The largest volume is brought in flat bed trucks;
principally Dutch Elm tree waste. They also carry the second highest percent-
age of the tonnage although they do not represent a large traffic count.
The highest tonnage is brought in dump trucks. Approxi-
mately 12% of all tonnage was comprised of dirt, sand and rock. These materi-
als are normally transported in dump trucks. They also represented a low traf-
fic count.
The largest traffic is in pick-up trucks and automobiles.
These vehicles bring a negligable tonnage and only a medium volume. This vol-
ume is "as received" and usually very loose.
The automobile is a high traffic and low quantity category.
In another section, it is recommended that the automobile be excluded from the
main landfill areas. They add to the traffic but deposit only a small amount of
material. The recommendation suggests that automobiles be given a free and
highly accessible special place to deposit their material near the entrance to
the landfill site.
4. Comparing the Several Hauler Types for Waste Quantities
and Vehicular Traffic. Figure 2-7 shows the percentage by volume and weight
of materials, and vehicular traffic for the eleven different types of haulers. In
this figure the largest volume appears in the Private Commercial Type G. This
includes the haulers with Dutch Elm tree disease wastes, which has a major in-
fluence on the category.
2-36
-------
50
45
40
J
<
h
0
u.
0
35
30
25
1-
U
U 20
or
UJ
Q.
15
10
B
B
C_
H
I
EH
CUBIC YARDS
TONS
VEHICLES
VE HICLE TYPES
A - PACKER TRUCKS
B-DL/MP TRUCKS
C- MA/ TRUCKS
D - LIGHT TRAILERS
E - HEAVY TRAILERS
F - FLAT BED TRUCKS
G - PICKUP TRUCKS
H - AUTOMOBILES
I - OTHER
(See Figure 2-5 for numerical totals for Cubic Yards, Tons and Vehicles.)
COMPARING THE
SEVERAL VEHICLE TYPES
FOR WASTE QUANTITIES
AND VEHICULAR TRAFFIC
FIGUR E 2 - 6
-------
50-
45-
40-
35-
30-
25-
h
U
0 20-
C
Ul
Q.
15-
10-
-K-
B
B
CUBIC VARDS
TONS
VEHICLES
HAULER TYPES
A-GENERAL CONTRACTOR- (General construction wastes)
B-WRECKING CONTRACTOR-(General demolition wastes)
C-PAVING CONTRACTOR-(General allied paving wastes)
^-COMMERCIAL-DOMESTIC-(Commercial route system, residential portion')
^.-COMMERCIAL-COMMERCIAL-(Commercial route system, commercial portion)
F-COMMERCIAL-INDUSTRIAL-(Commercial route .system, industrial portion)
G-PRIVATE'-COMMERCIAL-('Private single source, commercial establishments)
\\-PRIVATE-INDUSTRIAL-(Private single source, industrial establishments)
\-CITY REFUSE-(Resident!I route system, general kitchen and domestic wastes)
\-OTHER CITY VEHICLE-(General city and street wastes)
^-PRIVATE CITIZEN-(General extraneous domestic wastes)
(See Figure 2-5 for numerical totals for Cubic Yards, Tons and Vehicles.)
COMPARING THE
SEVERAL HAULER TYPES
FOR WASTE QUANTITIES
AND VEHICULAR TRAFFIC
FIGURE 2-7
-------
Again, the automobile appears as the high traffic and low
quantity category.
5. Comparing the Seven Days of the Week for Waste Quanti-
ties and Vehicular Traffic. Figure 2-8 shows that the quantities and traffic are
reasonably uniform from Monday through Friday with Monday being slightly
greater. Saturday shows a reduced volume and tonnage but increased vehicular
count. This can be explained by the reduced commercial, industrial and muni-
cipal activity and an increase in personal hauling. Reference to the detailed data
shows that a high percentage of the Saturday and Sunday traffic is automobiles.
The recommendations for operation of new landfill sites
include closing the new site on Sunday; however, the special facilities tor auto-
mobiles can be left open to the public on Sunday.
6. Comparing the Hours of the Day ior Waste Quantities and
Vehicular Traffic. Figure 2-9 shows that the peak hour ior volume, tonnage
and vehicle count is 1500 hours (3:00 P. M. ). The second highest peak is 1100
hours.
The quantity and traffic are low prior to 0800 and after
1800 hours. Some of the sites are not open before 0800 and close before 1800
hours; however, this chart indicates no large demand for service during these
late hours
Notice there is no large backlog waiting at 0800. If there
was such a backlog tnere probably would be a dropback between 0700 and 0800
or 0800 and 0900. Instead there is a continuing increase until 0900 before the
rate slackens, but even then continues to increase. Similarly the rate begins to
slacken at the peak of 1500 and continues down through the 2000 hours.
Our recommended hours for landfill sites are from 0800
to 1700 hours. Special arrangements can be made for haulers inconvenienced
by this schedule similar to the arrangements now in existence at several sites.
7. Comparing the Hours of the Day and the Vehicular Count
for the Several Types of Vehicles. Figure 2-10 shows the traffic pattern
throughout the day by vehicle type.
With the exception of the packer trucks, most vehicle pat-
terns are typical. There is a gradual buildup, a relatively constant rate and
gradual reduction. The peak for packer trucks can be explained by the fact that
most city packers take their last load to the site at approximately 1500 hours
(3:00 P.M. ).
8. Comparing the Various Material Classifications, one with
another for Volume and Weight. Exhibits 2-19 thru 2-25 show the volumes,
weights and percentage for each material classification. The first six exhibits
are for one site each, the seventh, Exhibit 2-25, is lor all sites, all days. The
key to the material classifications numbering system is shown in Table 2-7.
2-37
-------
50
45
40
35
0
30
U.
0 25
I-
Z
lil
U 20
or
ui
Q.
15
10
M
W T
-M-
W T
E2Z5
CUBIC YARDS
TONS
VEHICLES
DAILY TRAFFIC
(See Fig 2-5 for numerical totals for Cubic Yards, Tons and Vehicles.)
COMPARING THE
SEVEN DAVS OF THE WEEK
FOR WASTE QUANTITIES
AND VEHICULAR TRAFFIC
FIGURE 2- B
-------
2 4 6 8 10 12 14 16 18 20 22
(OOOOHRS. TO 2300HRS.)
CUBIC VARDS
0 2 4 6 8 10 12 14 16 18 20 22
(OOOOHRS. TO 2300HRS.)
TONS
HOURLY TRAFFIC
2 4 6 8 10 12 14 16 18 20 22
(OOOOHRS. TO 2300HRS.)
VEHICLES
(See Figure 2-5 for numerical totals for Cubic Yards, Tons and Vehicles.)
COMPARING THE
HOURS OF THE DAV
FOR WASTE QUANT IT 11
AND VEHICULAR TRAFFIC
FIGURE 2-9
-------
VEHICLE TOTALS
AND TYPES
450
PACKER TRUCKS
(5.0%)
O3--OO
(HOURS)
0*00 07-00 09'00 11-00 I3'OO 15-00 17:00 19:00
21:00
23-OO
983
DUMP TRUCKS
(10.9%)
517
VAN TRUCKS
(5.7%)
395
LIGHT TRAILERS
(4.3%)
40
HEAVY TRAILERS
(.4%)
1153
FLATBED TRUCKS
(12.8%)
2855
PICKUP TRUCKS
(31.7%)
2556
AUTOMOBILES
(28.9%)
63
OTHERS
(.7%)
ALL TYPES-' 9012
1000 1200 1400
(HOURS)
1600
2000
2200
COMPARING THE HOURS OF THE
DAY AND VEHICULAR COUNT FOR
THE SEVERAL TVPES OF VEHICLES
FIGURE 2 - IO
-------
G. Origin of Landfill Wastes
1. Centroids. Computer Program G determined the centroid of
waste for each material classification, the sum of all days for each site and for
all days at all sites. The centroid is the theoretical point from which the materi-
al originated. These centroid are platted on the map in Figure 4-1. The cen-
troid for the sum of all days and all sites, which includes all material brought to
the six sites surveyed, was found to be located near the intersection of Seventh
Street and Laurel Ave.
2. Vehicle License Registration. Computer Program I deter-
mined the amount of material brought to the sites surveyed, according to the
county in which each vehicle was licensed. This information is shown in Table
2-8. Approximately 97% of the volume and 95% of the tonnage was delivered to
the site in vehicles registered in Polk County. The next largest amount was
Warren County registered vehicles with . 8% and 2. 8% respectively.
3. Political Subdivision as Origins of Waste. Computer Pro-
gram G determined the political subdivision from which each load originated as
determined by the coordinates representing the address of origin recorded dur-
ing the site surveys. This information is shown in Table 2-9-
Table 2-8
Comparison of Wastes as Received from Vehicle Registration Data
Vehicle
License
Code
00
25
27
77
82
85
91
--
County
Non- resident
Dallas
Decatur
Polk
Scott
Story
Warren
(42 Others)
Computer
Cubic
Yards
732
51
37
45, 749
77
53
383
269
Program I
% of
Total
1. 5
. 1
. 1
96. 6
. 2
. 1
. 8
. 6
Tons
185
13
9
10, 863
10
21
317
18
% of
Total
1. 6
. 1
. 1
94.6
. 1
. 2
2. 8
. 5
Totals 47,351 100.0 11,480 100.0
2-38
-------
Table 2-9
Comparison of Wastes as Received from Political Sub-Divisions
Computer Program G
Political
Cubic
Sub-Division Yards
1
2
3
4
6
9
10
13
Totals
Des Moines
West Des Moines
Altoona
Ankeny
Clive
Urbandale
Windsor Heights
Polk County (unincorp)
(18 Others)
39,965
3, 344
76
1,207
154
634
415
1, 341
215
47, 351
% of
Total
84. 4
7. 1
. 2
2. 5
. 3
1. 3
. 9
2. 8
. 5
100. 0
Tons
9,524
1,074
12
284
35
136
75
293
47
11,480
% of
Total
83. 0
9. 3
. 1
2. 4
. 3
1. 2
. 7
2.6
. 4
100. 0
H. Present Quantities
1. General. The present quantities of solid waste consist
of those materials now being disposed of at public landfill sites which were
measured during the landfill surveys, and those materials being accumulated
or disposed of at the source. The latter quantities are referred to as "on site"
disposal materials.
In Table 2-10 "Annual Quantities and Accumulations of
Refuse for Study Area, Adjusted for Compaction and Seasonal Variations", the
materials measured at public landfill sites are shown in line a. The on site
disposal has been evaluated and those materials which will probably be disposed
of at public facilities in the future are shown in line b. The sum of lines a and
b represent the 1967 estimated annual rate of disposal of materials which can
be expected to be disposed of at public landfill sites. The volumes are ad-
justed for seasonal variations and compaction factors and are equal to the vol-
ume of material compacted in place in a sanitary landfill. Cover earth is not
included. The tonnage has been adjusted for seasonal variation.
In this table, all of the waste for the study area has been
placed in one of four categories: Municipal Wastes, Domestic Wastes, Special
Tree Wastes, and Commercial and Industrial Wastes. This was done to facili-
tate future projection which are discussed in Paragraph I.
2. Municipal Wastes. The wastes included in this category
are those which vary directly with the size of the city and the number of people,
and are not likely to have a per capita increase. People waste materials at an
increasing rate per person; however, the materials which are included in this
category are likely to increase at a straight line rate in direct proportion to
the population.
2-39
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Included in the Municipal Waste category are the materi-
als shown in Table 2-11. Part A is the total material as measured during the
landfill surveys less the special tree waste. Part B is the additional material
now being disposed of on-site which should be included in the tota 1 materials to
be expected at a public sanitary landfill facility.
Table 2-11
A.
Municipal Wastes
Materials as Measured at Public Landfill Site
Mat'l***
Class
1
2
3
4
5
6
7
Sub Total
10
11
12
13
Sub Total
70
71
72
73
Sub Total
CY**
348
1,484
541
6
132
378
52
2,941
1, 350
682
78
1,590
3,700
3
--
--
5
8
Per Week Per Year
LBS* CY** LBS*
1,043,611
1, 272,297
1,643,282
23, 204
483,717
875, 091
132, 994
5,474,196 153,000 285, 000, 0(
1,823, 131
920,468
62, 340
1,430, 875
4,236,814 192,000 220,000,0(
5,862
--
8,224
14,086 416 730, 0(
Less Special Tree Waste -165, OOP
Total Municipal Waste as Measured at
Public Landfill Sites 180,000
B. Material Disposed on Site to be Included in
Public Site
Total Sewage Solids 55, OOP
C. Total Municipal Wastes 1967 Rates 235,000
''-Adjusted for seasonal variation.
**Adjusted for seasonal variation and compaction
***See Figure 2-4 for material types.
-189,000, OOP
317,POO,000
159, 000 tons
51,500 tons
210,500 tons
2-40
-------
3. Domestic Waste. The waste in this category includes
garbage, rubbish and yard waste from the dwellings in the Study Area. These
wastes are shown in Table Z-1Q. The quantities measured at the landfill site
were 173,000 cubic yards or 59,000 tons. The on ~lte disposal estimates were
80,000 cubic yards or 15, 000 tons, for a total 1967 disposal rate of 253,000
cubic yards or 74,000 tons. These quantities were previously explained in
Section C of this Part.
4. Special Tree Waste. The Dutch Elm disease has killed
many American Elm trees in the Study Area and will probably continue until
most of the remainder have been killed. The quantities of waste wood which are
the result, are developed and discussed in Section D of this Part.
Special Tree Waste was considered a separate category
in Table 2-10 because of the large quantities involved and because the quantities
will last for a relatively few years. It is estimated that almost all of the Ameri-
can Elm trees will be killed by 1970 and that because of the hazard of standing
dead trees, most of them will have been disposed of by 1973.
Special tree waste and normal tree waste were not con-
sidered separately during the landfill surveys. The total tree wastes were;
however, measured. From the special tree waste study.it is estimated that
94, 300 tons or 165, 000 cubic yards were hauled to landfill sites in 1967. This
quantity was subtracted from the total tree waste as measured at landfill sites
during surveys to determine the amount of normal tree waste to be included in
the Municipal Waste Category. It was also estimated that 92, 000 tons or
lo,200CY of this special tree waste was burned on site. The amount of materi-
al measured at the landfill sites and the amount of material burned on site equal
a total of 103, 500 tons or 181, 200 cubic yards.
5. Commercial and Industrial Waste. This category of
waste includes all waste not included in the previous three categories of: Muni-
cipal, Domestic and Special Tree Wastes. The quantities are shown in Table 2-12.
That portion of the total measured during the landfill sur-
veys is shown in line C.
In the Commercial and Industrial Surveys described in
Section B of this Part, it was estimated that the 1967 on site disposal which
can be expected to be sent to public facilities was equal to 9% of the present
quantities which were being disposed of at public facilities. These quantities
are shown in line D. The on site disposal of meat packing waste as discussed
in Section D of Part Two must also be added to the on site total. These are
shown in line D.
The Total Commercial and Industrial Waste for 1967 was
346,900 CY or 173,000 Tons.
2-41
-------
Table 2-12
Commercial and Industrial Wastes
Item C. Y. per Year** Tons per Year*
A. Total Waste measured at
landfill sites during sur-
veys
15, 881 CY per wk x 52 826,000
17, 719, 824 Ibs per wk x 52 461,000
2000
B. Deducting Non Comm. & Ind.
Municipal 180,000 159,000
Domestic 173,000 59,000
Special Tree 165,OOP 94,OOP
-518,000 -312,000
C. Total Comm. & Ind. as measured
during Landfill Surveys 308,000 149,000
D. On siteDisposal of Comm.
& Ind. @ 9% 27, 700 13,400
Packing House Waste 11, 200 11, 300
38,900 24,700
E. Total 1967 Public Site Waste 346,900 173,700
^Adjusted for seasonal variation.
**Adjusted for seasonal variation and compaction.
6. Total Present Waste Quantities.
The sum of the wastes by major categories is shown in
Table 2-3. This represents the total solid waste of the community which can
be expected to be disposed of at public facilities, at the 1967 rate.
The total quantities are 1,016,000 cubic yards adjusted
for compaction and seasonal variation or 562,000 tons adjusted for seasonal
variation.
I. Future Quantities
1. General. Future quantities are estimated based on annual
increases in the present quantities. The major categories of present waste and
the annual estimated increase are as follows:
2-42
453-956 O - 72 - 7
-------
Municipal - 2%
Residential - 4%
Special Trees - Fixed Quantity
Commercial &
Industrial - 4%
The annual quantities and accumulated quantities of waste
for 1967 through 1990 are shown in Table 2-10.
2. Municipal Wastes. The wastes in this category are those
which vary directly as the size of the community, which is estimated to vary
directly with the population. Therefore, the increase in this category is esti-
mated to be 2% per year which is the same as the annual increase in population.
3. Residential Waste. Residential wastes will increase di-
rectly as the population increases plus an annual increase in the per capita rate
of waste. There are various estimates which predict the rate of increase in per
capita waste generation. One such prediction estimates the per capita waste
will increase 50% from I960 to 1985. This is approximately equal to 2% per
year.
Long term data are difficult to find and when found are
difficult to use, because the conditions under which the data were collected, and
exactly what is included is usually unknown. Two percent per year increase
appears reasonable; therefore,we have used this rate.
The total increase in annual quantities for residential
waste is 2% for population increase and 2% for the per capita rate increase for
a total of 4% per year.
4. Special Tree Waste. In the special study of tree waste
in Part Two, Section D, it was estimated that 236, 000 trees would be removed
in the five years after 1967. These trees contained 186,000 tons or 1,520,000
CY of waste. We have arbitrarily estimated that the annual rate of removal
would be equal to 20% of the total each year for 5 years. On that basis for each
year from 1968 through 1972 we have included 304,000 cubic yards and 174,000
tons.
5. Commercial and Industrial Waste. We have estimated these
wastes will increase at a rate which is equal to 4% per year. This is the same
rate of increase and is based on the same reasoning given in the preceding
paragraph concerning Domestic Waste.
6. Total Waste. The total wastes for future years are
shown from the present through 1990, in Table 2-10.
2-43
-------
PART THREE - COLLECTION OF SOLID WASTES
A. General. Solid waste collection is a responsibility of trje public,
along with •water supply, sewage disposal, streets, fire and police protection.
These services are usually provided by local government, and paid for through
taxation or 3. service charge. It is recognized that a government can provide
these services for the public more efficiently and economically than the indi-
vidual. This part of the report is concerned with collection service as a ne-
cessary and desirable element of the community welfare. This service should
be as adequate and economical as possible, consistent with current health and
aesthetic standards.
B. Basic Collection Systems
1. General. Providing collection service to the domestic
customer is the basic consideration. With a Study Area population of approxi-
mately 288, 000 people, it is estimated that there are approximately 90, 000
dwelling units. Each dwelling unit will generate small and reasonably uniform
quantities of waste each day, week and year.
Three types of collection systems are presently in use in
the Study Area; municipal, contract and private. The three largest cities in
the Study Area: Des Moines, West Des Moines and Urbandale operate with
the municipal system. Pleasant Hill provides a contract system. The other
cities in the area do not provide a direct service, but rely on private system
collection service.
2. Municipal and Contract Systems. The municipal and con-
tract systems mentioned are similar. Both are under the control of the munici-
pality. They operate on established routes serving the entire residential areas
on a scheduled basis. Under these systems the community receives regular
collection of its domestic -waste. The system is planned, organized and super-
vised by the municipal government. The results are an efficient collection ser-
vice at a reasonable cost to the community.
The basic difference between the two systems is that the
municipal system operates the service using its own manpower, equipment and
facilities, whereas the contract system uses the manpower, equipment and
facilities of a private contractor to operate the system under an agreement be-
tween the contractor and the municipality.
The municipality capable of operating its own system effi-
ciently, usually has a lower unit collection cost than the community contracting
with private haulers. The municipality can operate the system without a re-
quired profit whereas the private contractor cannot. There are other cost fac-
tors in favor of a system owned and operated by a municipal government. Tax
savings in the purchase of equipment and supplies arid in the operational cost
of equipment, lower collection costs. A municipally controlled collection sys-
tem, properly planned and supervised, will provide satisfactory service lo
3-1
-------
the public, whether the system is municipally owned or contracted with a pri-
vate hauler. The cost to the public is the principal consideration.
3. Private System. With a private system the municipality
has a minimum involvement with the collection of waste, limited to controlling
ordinances and the licensing of collectors. Some communities do not require
either of these items. Private collectors contract directly with the property
owner for an agreed fee.
When collections are left entirely to an agreement between
the property owner and the private hauler, the service is generally not as effi-
cient as the other systems. The private system places the responsibility for
the collection of waste with the individual property owner who may, or may not
have a conscientious concern for the problem. Usually several private haulers
will compete within a community to provide service. This competition will tend
to keep the charges uniform; however it will prevent any one private collector
from establishing an efficient route where he can collect from each property
in a given area. As a result, the cost to the individual is usually higher than
either the municipal or the contract system. A comparison of costs within the
Study Area shows this to be true.
4. Recommended System. It is recommended that a municipal
type system be provided for all communities in the Study Area. The form of
municipal system recommended in the following sections of this report is a new
Metropolitan Solid Waste Agency providing collection service to all municipalities
in the Study Area using the manpower, equipment and facilities of the Agency.
C. Scope of Collection Service
1. General. The scope of collection service concerns: (1)
the customers to be served, (2) the nature of materials to be collected, (3) the
frequency of collection, and (4) the point of collection.
Basically it is recommended that: (1) service be provided
to all single family residences and certain multiple family dwelling units; (2) all
domestic solid waste be collected from these customers; (3) service be offered
on a weekly basis; (4) crews collect waste from the place of normal storage
of the containers on the customers' premises. These recommendations are
discussed in the following paragraphs.
2. Customers to be Served. It is recommended that service
be provided to all single family dwellings and small multiple family dwellings
only. Commercial and industrial waste generally require special collection
service. This waste varies considerably in quantity and characteristics.
Private haulers have satisfactorily provided this service in the past and are
equipped to do so in the future. However, in the future, when the Agency has
been established and has acquired the necessary operating skills and manage-
ment techniques, the municipalities may wish to consider this service. For
the immediate future, it is recommended that private contractors continue
to provide commercial and industrial service.
3-2
-------
The recommended collection from single family resi-
dences and small multiple family dwellings only, was arrived at arbitrarily.
The single family residence must be included and represents the largest
number of customers. A duplex, fourplex or sixplex, although not as nu-
merous, require similar collection service. Jwi'-y multiple family dwellings
larger than sixplexes do not have adequate storage space when service is
offered on a once-a-week basis. Also, many do not -want to be burdened -with
the many refuse cans required for municipal service which does not offer
container service. Thus ma /large units shun public collection and hire
private collectors to provide more frequent and/or container service.
It is not a matter of receiving free service. In a later
section of this report, it is recommended that the municipalities charge a fee
for collection service from those being served. It is basically a matter of •who
can be served in the most efficient manner along with the single family resi-
dence which represents the fundamental reason for a municipal collection ser-
vice.
Some municipalities do provide complete collection ser-
vice to any customer who •wants the service and is willing to pay a proper fee.
However, the task of forming and operating an efficient residential type ser-
vice for the Study Area, which is a necessity, is a large undertaking for the
present. In the future, the Agency when fully operational, may wish to expand
service to include more than -what is recommended at this time.
3. Material to be Collected. It is recommended that all do-
mestic solid waste be collected subject to certain limitations. This includes
all household and yard -waste placed in approved containers regardless of the
quantity.
The present practice throughout the Study Area is to col-
lect kitchen -waste only. This is an old custom which has been abandoned in
many communities. This is practical only because combustible rubbish is
burned on site, usually in back yard burning barrels. This burning is no
longer acceptable in many parts of the country and is often forbidden by or-
dinance. It is recommended that it be prohibited in the Study Area in a
model disposal ordinance included in Appendix Exhibit 5-2.
Burning barrels and inadequate commercial incinerators
are a source of smoke, odor and air pollution and often a breeding place for
rats and insects. They are not restricted to combustibles such as paper and
cardboard but are often fed anything which is not carried away -with the kitchen
-waste collection. There is ample evidence of this through observation of the
burned residue in and around these burning devices.
The incidence of fires provide another reason to stop
this practice. In the years 1966 through May of 1967, the Des Moines Fire
Department fought more than 1900 fires which were directly attributed to
burning rubbish. The property damage amounted to $103,000 plus the cost
of fire fighting. The potential loss could be considerably greater. There is
3-3
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no estimate of the injuries sustained each year but one can believe it is
significant.
There appears to be no reason to allow open burning
and inadequate incinerators, once all of the waste from residences is col-
lected along with kitchen waste.
It is estimated that the additional cost of collecting all
domestic waste rather than kitchen waste alone, will increase the cost of
collection by approximately one-sixth. However, it is believed that improve-
ments in the efficiency of the existing service will result in this cost being
absorbed into the existing budget with no increase in funds.
4. Frequency of Collection Service. It is recommended
that the frequency of the collection service should be one collection each
week on a five day week schedule. This system will provide the Study Area
with regular collections with approximately 20% of the area collected each
day on a Monday through Friday schedule utilizing the 8 hour work day. This
type of schedule is presently employed by most of the collection services in
the area. It appears to be acceptable to the householders. Approximately
one-half of the communities in the Nation with populations in excess of 5, 000
provide this level of service.
In some areas of the country this frequency of service
is considered insufficient because of health hazards caused by flies and other
insects. It is believed that this problem can be kept at a minimum with a
strong program of public education regarding the sanitation requirements for
containers and household storage areas. Such a program should be under-
taken regardless of the frequency of collections. The cost of a successful
program would be much less to the community than the cost of additional
collections.
Several studies have been conducted concerning the in-
sect and fly breeding problem. Most of these studies have concluded that
the garbage container, and the immediate adjacent storage area is responsi-
ble for the majority of the large accumulations of larvae and pupae life of
the fly, and that this general unsanitary condition has great bearing on the
overall problem.
Proper containers and lids, the cleaning of such con-
tainers and the housekeeping of the container storage area, are reasonable
requirements to place upon the public. These requirements can be made
known to the public by printed instructions along with a public relations
program for the entire collection and disposal service. (See Figure 3-1).
It is possible that a twice weekly collection service
could be desired and necessary during the summer months if an effective
education and enforcement program is not conducted. This service could
be coordinated with the once per week schedule during the remaining part
3-4
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The elimination of burning barrels and the enforce-
ment of reasonable container standards, together
with a proper public relations and education program
encouraging community clean-up participation, will
produce important health and aesthetic dividends for
all, as indicated by these picture comparisons.
FIGU RE 3- i
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of the year. The change from a once to twice per week collection and the
return, represent a major change in routes, crews and equipment. How-
ever, it can be accomplished and is in many parts of the country. This
would require an increase in the collection cost but not to the extent that
a full year, twice weekly service would require.
5. Point of Collection. It is recommended that the pre-
sent method of collecting from the waste storage areas behind the custo-
mer's dwellings be retained. Collectors convey the waste from the storage
area to the vehicle by means of a large capacity, lightweight tote container.
This method usually requires only a single trip onto the dwelling premises,
and often more than one dwelling can be collected before returning to the
vehicle.
There are several other methods used throughout the
country other than the one recommended. The most common is the "custo-
mer set out and set back" method in which the customer places his contain-
ers at the curb or alley line on the scheduled day for collection. The collec-
tion cr_, rj dump the containers directly into the truck and return the con-
tainer to the curb or alley line, for the customer to return to the place of
normal storage.
This method is less expensive when considering only
the collection crew cost. However, the expense and annoyance to each cus-
tomer must be considered and is sufficient to make this method unattrac-
tive. The app>-_. - - ^1 rows of waste containers lining the streets and the
litter caused by wind, spillage and animals are additional disadvantages.
The current method of collecting from the customer's
point of storage is believed proper and is recommended to be continued.
D. Description of Existing Collection Systems
1. General. There are three collection systems operated
by municipalities in the Study Area; Des Moines, West Des Moines and
Urbandale. All three use their own manpower and equipment to collect
domestic kitchen waste from the dwellings within their city limits. Each
of the three systems is described in the following paragraphs for the pur-
pose of showing their present status.
It has been recommended that a new Agency be created
for future collection of solid waste in the Study Area. However, it is im-
portant to improve the existing systems to realize savings and improved
services prior to the creation of the new Agency, and to bring to this Agency
nr>re efficient organizations.
The three systems are not directly comparable nor
can they be organized, managed or operated in the same way. The City of
Des Moines is much larger with many crews and trucks. Its organizational
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structure must be more extensive than those of West Des Moines and Ur-
bandale who operate a two crew and one crew system respectively. The
descriptions and analysis which follow deal primarily with Des Moines,
with a separate analysis of the other two systems.
2. Description of Des Moines System.
a. Organization, Administration and Personnel.
Garbage collection is an activity of the Garbage and Street Cleaning Divi-
sion, organized under the Public Works Department, and financed from the
Sanitation Fund. This Division is under the administration of the Superin-
tendent of Garbage and Street Cleaning Division and under the supervision
of the Garbage Collection Supervisor.
The equipment used by the crews is under the
control of the supervisor, but is provided and maintained by the Equipment
Service Center referred to as "Central Garage" which is also under the
Public Works Department. The personnel regularly employed in this sys-
tem are as follows:
Function No.
1, Garbage and Street Cleaning Superintendent 1
2. Garbage Collection Supervisor 1
3. Public Works General Foreman 1
4. Public Works Foremen 2
5. Truck Drivers 31
6. Refuse Collectors 56
Sub-Total 92
7. Temporary Employees 6
Total 98
The employees work 8 hours per day, 5 days
per week, 2, 080 hours per year, with normal vacation, sick leave, holi-
days and similar benefits usually found in city employment. Compensa-
tion for overtime is granted for work in excess of 8 hours per day, 40
hours per •week and Saturdays after holidays, at the rate of one and one-
half hours off for each hour worked during the overtime situation; two
hours off per hour worked on Sundays and three hours off per hour worked
on holidays.
The normal work week is between 7:00 A. M.
and 3:30 P. M. , Monday through Friday. This schedule is interrupted
when the temperature is below zero degrees, except when the schedule is
two days behind; or when rain is encountered, and under other inclement
weather conditions as directed by the Superintendent.
There are no uniforms, protective clothing or
gloves issued to the employees. There are no lockers or clean-up facilities
available. The employees are represented by a union.
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b. Operations. Domestic kitchen waste is collected
once a week from the dwellings within the city limits. Collection does not in-
clude trash or rubbish. Service is not provided to industrial or commercial
establishments. Occasionally during spring clean-up campaigns the City
provides collection of all waste.
Crews operating from streets or alleys empty
customers' containers into tote baskets which they carry to the truck. With
certain limitations, customers may keep their containers at locations most
convenient for themselves. There are prescribed regulations concerning the
waste to be collected, wrapping and draining waste and type of container.
The City is divided into 27 collection routes. Each
route is divided into approximately 5 equal days work, one day each on Mon-
day through Friday. There are exceptions in many cases; however, most ex-
ceptions involve the Friday work where no Friday is scheduled in some routes,
or where scheduled, may be less than a day's work. It is intended to use
the Friday short routes to collect any problem areas which may have developed
in the week's work.
The exact current boundaries of each route are not
recorded on maps. The areas, however, are known to the crew involved,
some other crews, the area foreman and the Supervisor. The exact path to
be driven is left to the option of the driver. This path is not recorded and
may vary under normal operations.
Crews consisting of a driver and two collectors
start work at 7:00 A. M. at the garbage collection office. They are expected
to collect their day's assignment and if completed early, report for addi-
tional assignment to assist routes which are behind or give additional col-
lections to areas previously collected as time permits. The driver nor-
mally collects waste in addition to his driving duties. Collectors are allowed
to drive the truck when on the route. Only the driver is allowed to drive when
off the route.
The three foremen, each equipped with a two-way
radio between their automobile and the department office, direct the activi-
ties of the crews. The crews are permitted a 15 minute break in the morn-
ing and in the afternoon. They are also allotted a 30 minute lunch period.
Crews make one or more trips from their routes
to the landfill site as required. After their last load, the crews return to
the Central Garage where they fuel and park their vehicles. Each driver
is required to submit a daily report form recording his activity, time,
miles, crew members and collected quantities.
There are no formal programs for health and
safety, driver or collector training, or customer relationship. No written
"standard operating procedures" could be found. The department has many
3-7
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procedures which are established and generally followed through custom.
It is on the basis of these procedures that the department operates.
c. Equipment. Supervisory personnel, including
the foremen, are equipped •with late model sedan automobiles each with two-
way radio communication. The collection crews use single axle, gasoline
powered trucks with hydraulic packer type bodies, each with a capacity of
16 cubic yards. There are 31 trucks of this type in the current fleet. It is
the policy of the department to amortize the trucks over a 6-year period
and replace them with new equipment at the end of the six-years. Basically,
5 new units are purchased each year. The 10 packer bodies purchased in the
last two years have been of the hydraulic pushout type. Previous models
were of the hydraulic dump type.
Equipment is maintained and repaired by the Cen-
tral Garage. Garage personnel have custody of the vehicles and issue keys
to the drivers each morning and receive the keys back each afternoon. The
fleet of 31 packer trucks is adequate to accomplish the collection. Twenty-
seven vehicles are used for the 27 routes. Four of the oldest vehicles are
used as spares.
One additional truck is included in the collection
fleet. This truck is equipped with a container hoisting mechanism, and used
from time to time during the week to collect from a few apartments and
from the Central Garage.
The equipment used by the garbage collection de-
partment is purchased from budgeted sums when first needed. The equip-
ment is amortized over a prescribed period. The cost of maintenance, re-
pair and amortization is calculated into a rental rate. The garbage depart-
ment budget is charged a rental rate •which is credited to the Central Garage
Fund. Replacement equipment is purchased from amortization accruals in
the Garage Fund.
The cost of maintaining each vehicle is charged
to that particular vehicle. This information is maintained for the garage
by the Finance Department. Rental rates are established and are the same
for all equipment of a like kind. These rates are based on the costs of
similar equipment for the complete year preceding the year in which the
budget is made. The Garbage Department is responsible for the cleanli-
ness and sanitary conditions of the vehicles.
There is no formal direct liasion between the
Central Garage activity and the Garbage Collection Department. There is
no formal procedure for determining causes of reoccurring equipment
breakdowns except for accidents which are investigated through the police.
There is no formal instruction from the Central Garage in the operation of
trucks or packers.
3-8
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d. Costs. The revised budget for the 1967 calendar
year was $673, 434. Based on a population of 208, 000 people, the cost per
capita was $3. 24 per year. Using 3. 0 people per dwelling unit, the cost per
dwelling unit is $9. 72 per year. All funds budgeted for this service are
provided from property taxes. There are no special fees or other income.
3. Description of the West Des Moines System
a. Organization, Administration and Personnel. Gar-
bage collection is the responsibility of the Director of Public Works under the
overall direction of the City Manager. The system is small and does not re-
quire a detailed chain of command. The work is personally known to the Di-
rector of Public Works who takes an active part in conducting the affairs of
the collection department. A general foreman is available for daily supervision
and the follow-up of complaints and special problems.
There are six full time employees engaged in collec-
tion work plus the foreman who devotes part of his time to this activity. When
necessary, extra personnel or substitute personnel are supplied from the street
department. The employees work 8 hours per day, 40 hours per week, 2,080
hours per year with normal vacation, sick leave, holidays and similar benefits
usually found in city employment. Compensation for overtime is on the basis of
time and one-half and double time on Sundays. The crews are allowed to discon-
tinue collection during inclement weather at their discretion. They are required
to make up lost time at standard pay rate.
The employees are issued uniforms, coveralls and
gloves for winter use. Rain suits, lockers and clean-up facilities are available.
The employees are not represented by a union.
b. Operations. Domestic kitchen waste is collected
once a week from the dwellings within the city limits. Collection does not in-
clude trash or rubbish. Service is not provided to industrial or commercial
establishments. Occasional clean-up campaigns are conducted during -which
all waste is collected.
Crews operate from the streets and alleys collecting
from the containers stored on the customers' premises. There are prescribed
regulations for containers and the waste to be collected.
The City is divided into ten areas, each representing
approximately one day's work for a collection crew. Two crews of 3 men each
collect the ten routes in five working days, Monday through Friday. The dri-
ver collects waste in addition to his driving duties.
c. Equipment. The two collection crews use single axle
gasoline powered trucks with hydraulic packer bodies. The two trucks in active
service have late model, 16 C. Y. capacity, push-out type bodies. There is a
3-9
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spare truck with a 13 C. Y. side loading, dump type body which is adequate for
standby service. It is the policy of the department to amortize the truck chas-
sis on a 5-year basis and the packer body in 8 years. Maintenance is provided
by City forces at the City shop.
d. Costs. The cost of operation as determined by the
City includes part lump sum appropriations and part annual costs for the trucks.
These figures have been adjusted to place them on an annual basis. A figure of
$3, 000 per year per vehicle has been used as the total cost of owning and operat-
ing the trucks. Reconstructed personnel costs including certain overhead ex-
penses, are as follows: Personnel at $437 per month plus 18% for payroll ex-
pense plus 8. 3% for vacations, sick leave and holidays. New wage rate; $558
per month and for six men is equal to $40, ZOO per year. To this 10% has been
added for direct supervision for a total personnel cost of $44, ZOO.
The cost of operating the collection system for West
Des Moines is approximately as follows:
Personnel $44,200
Trucks, 2 @ $3,000 6,000
Supplies 300
Uniforms 1, OOP
Total Cost $51, 500
Based on a population of 14, 000 people, the cost per
capita is $3. 68 per year. Assuming 3. 5 people per dwelling unit, the cost per
dwelling unit is $1Z. 88 per year. All funds budgeted for this service are pro-
vided from property taxes. There are no special fees or other income.
4. Description of the Urbandale System
a. Organization, Administration and Personnel. Gar-
bage collection is a responsibility of the City Engineer who also serves as Di-
rector of Public Works under the over-all direction of the City Manager.
The system is very small consisting of one driver
and 3 collectors who work 4 days per week on this activity. The driver acts as
foreman and receives general supervision from the City Engineer.
The employees work 10 hours per day, 4 days per
week, plus 2 hours on the 5th day for equipment cleanup, and receive the nor-
mal vacation, sick leave, holidays and similar benefits usually found in City
employment. Compensation for overtime is on the basis of time off or pay
at straight time. Crews are allowed to discontinue collection during inclement
weather at the discretion of the foreman with the approval of the City Engineer.
Lost time is made up at a standard pay rate. The employees are furnished
uniforms and coveralls. The employees are not represented by a union.
3-10
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b. Operations. Domestic kitchen waste is collected once
a week from the dwellings within the City limits. There is no collection of trash
or rubbish. Service is not provided to industrial or commercial establishments.
Semi-annual clean-up campaigns are conducted during which all waste is collec-
ted.
Crews operating from streets collect waste from cans
stored on the customers' premises. There are prescribed regulations for con-
tainers and the waste to be collected.
The City is divided into 4 routes; one is collected
each day Monday through Thursday.
The crew consists of the driver and three collectors.
The driver helps pick up waste; however the truck is not left unattended. Of the
4 man crew only 3 collect at any one time.
c. Equipment. The one collection crew uses a late
model3 single axle, gasoline powered truck with a 16 C. Y. hydraulic push-out
type body. A standby truck is available from a local dealer -when required.
d. Costs. Truck depreciation has been estimated at
$1600 per year. Wage rates are reported on the basis of hourly rates. To
these rates 18% has been added for payroll expense and 8. 3% for vacation,
sick leave and holidays. The reestablished rates are as follows: foreman-
driver $3. 95 per hour, other crew members $2. 95 per hour. On the basis of
2, 184 hours per year, the direct personnel cost is $28, 000. Supervision has
been added at 15% of the direct labor.
The cost of operating the collection system for Ur-
bandale is approximately as follows:
Personnel $28,000
Supervision 4,200
Truck & Packer
Body Depreciation 1,600
Truck & Packer
Body Maintenance 500
Fuel and Other Supplies 1,500
Total Cost $35, 800
Based on a population of 12,500 people, the cost per
capita is $2. 86 per year. Assuming 3. 9 people per dwelling unit, the cost per
dwelling unit is $11. 15 per year.
All funds are budgeted for this service from property
taxes. There are no special fees or other income.
3-11
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E. Analysis and Recommendations for Existing Collection Systems.
1. General. It has been recommended that a Metropolitan
Solid Waste Agency be formed to collect all domestic waste in the Study Area.
This Agency would integrate into one system the existing collection depart-
ments of those municipalities who join the Agency and provide service to other
municipalities who join but do not have a system now in operation.
The existing systems have been analyzed to determine
•where improvements might be possible and appropriate, for two reasons: (1)
There are potential savings to be made and improved service to be enjoyed;
and (2) the improved systems will be more easily integrated into the new com-
bined effort.
Comments in this section apply and are based primarily
on the Des Moines collection department. This department now collects from
75% of the population that would be served by the new Agency, and because of
its size has all of the problems, required administration and operation that
would be found in the new Agency collection system.
West Des Moines and Urbandale may apply any of the sug-
gestions which they feel applicable to their collection services.
2. Records. Paper work in the form of reports and analy-
sis is a time consuming activity. The information recorded and analyzed must
have a need and be worth the trouble and expense. The daily production re-
ports of the Des Moines system, in use at the time this study was begun, were
found to be entirely inadequate for planning purposes or as a management tool.
Twenty-five hundred of these daily production reports entitled "Garbage -
Daily Report, " were selected and analyzed by a series of computer programs
to test the value of the existing data. The results indicated that much of the
information was inaccurately recorded or incomplete. It was determined that
the report forms were not designed to provide information necessary to evaluate
the system, and that the use of the forms was not properly understood by the
men and their supervisors.
To correct this situation, a series of reports and work
sheets have been designed and proposed to provide necessary information for
the three levels of management:
First Level: The District Foreman
Second Level: The Superintendent
Third Level: The City Executives, including the
City Manager and the Director
of Public Works
Basic data is recorded by the route driver on the "Dri-
vers Daily Report," which replaces the previously discussed form. This
form accounts for the crew activity throughout the day, with time and
3-12
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distances divided into three activities; (1) collection, (2) haul, (3) delay.
The driver must make an entry of his mileage reading and the time of day
each time he changes his activity. At the end of the day, he must make an
entry concerning what he collected, and add up the total. A sample of this
form and instructions are included in the Appendix as Exhibit 3-1.
An early version of the ''Drivers Daily Report" was de-
signed and proposed for use in June 1967. This report was intended to pro-
duce data that could not be obtained from the old report forms. This form was
designed to make the arithmetic and concepts easy to understand. The drivers
and supervisors were instructed in its use prior to being placed into service
as a replacement for the Garbage Daily Report. The information obtained from
this form, although better than that produced in the previous reports, was not
considered adequate to obtain the required data for this study. The use of this
form did provide the men with experience in calculating the time spent on
several types of activity and in doing arithmetic similar to that recommended
in the new Drivers Daily Report.
The data derived from the "Drivers Daily Report" is re-
corded on the "Foreman's Daily Recap Work Sheet. " There is one sheet for
each day of each route within the foreman's district. Each day the foreman
records the totals from the "Drivers Daily Report" on the appropriate work
sheet. If a driver has indicated on his report that he helped another route
that day, the time spent on the other route would be recorded on the work
sheet of the route which was helped, but not on the assisting crews work sheet.
In this way, the actual work spent on a route can be ascertained. At the end
of a month, the totals are calculated. Since some months have more days
than others, the months totals are reduced to averages based on the number
of collections made during the month.
In order for the foreman to determine the total perfor-
mance of his District, the recap work sheets for each route and each day are
summarized on the "Monthly District Refuse Collection Summary. " This
summary is coordinated with the recap work sheets and designed to receive
the totals from each work sheet.
Using averages per collection allows the foreman to
compare the collections each month with other months. A sample of the work
sheet and summary, with instructions, are included in the Appendix as Exhi-
bits 3-Z and 3-3.
The Superintendent is concerned with all districts. Totals
taken from the District Summaries are recorded on the "Monthly Refuse Col-
lection Summary - All Districts. " This is the same data, totals and averages
found on the District Sheets and Foreman's Recaps. However, at the bottom
of this summary is certain historical data for comparing the current month
to previous months. This data is available from previous months reporting. A
sample of this summary report for all Districts is included in the Appendix
as Exhibit 3-4.
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City executives normally are not concerned with the de-
tailed information regarding the performance of various individual routes or
districts. They are concerned with overall performance, and the costs of the
Division. The "Refuse Collection Report for the Month" is designed to pro-
vide this type of information.
Totals and averages from the "Monthly Summary of All
Districts" are reproduced for reference, arm i . «.uditic:i, total cost and unit cost
figures are included. Normally management will be concerned -with total cost
and unit costs, but may also wish to study the other items for background to
understand changes appearing in the cost columns. They may also wish to re-
ceive or refer to the reports and work sheets leading to the Monthly Report.
Although designed for the management level that normally needs or has the
data, any of the reports discussed here should be available to any others who
wish to see them. It is suggested that the reports summarizing the crew acti-
vities be posted for comparison of performance.
In order for the unit costs to be of value for comparison
purposes, it is necessary to charge for labor and equipment on a monthly or
hourly basis, rather than on infrequent lump sums. Equipment is charged as a
rental each month, based on the number of hours used that month. This is pro-
per and avoids loading any particular month due to large purchases. Rental
rates for an hourly or daily use covering purchase, amortization, maintenance;
repair and salvage over the life of the vehicle provide a true picture of unit
costs which is useful and proper.
Labor rates are not similarly treated. It is recommended
that current accounting practice be changed to facilitate the use of these reports.
Under the present practice, compensatory time is earned from time to time,
but is charged against the month in which it is taken. This is also true of va-
cations and sick leave. During the popular vacation months, and during the
time when casual labor is used, the labor costs appear unusually high. This
has nothing to do with the actual labor cost of collecting refuse from the com-
munity that month, but only an accounting procedure causing an apparent rise
in labor costs.
Employees actually earn vacation time, sick leave and
holidays as they -work throughout the year. These credits should be accrued
and charged against the month they were earned, as opposed to the month
expended. Casual labor should be charged against the month worked. In this
way, the accounting procedures will give a true indication of the labor cost of
work done, and when it is done.
To arrive at a cost of labor for the Monthly Report, pro-
visions have been made to compute the cost per production hour, at the bot-
tom of the report, and to include in this rate the labor and supervision, plus
accruals and payroll overheads. A sample of the "Report for the Month" is
included in the Appendix as Exhibit 3-5.
3-14
453-956 O - 72 - 8
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Production which is the prirr ary function of the Garbage
Collection Department must have properly managed and audited records to
operate a system of this size efficiently. A production system must have the
ability to acquire and use data in its every day operations.
3. Routes Followed and Observed. Basic data on the per-
formance of collection crews was obtained by placing a technician with the
crews to observe performance and record data. The technician followed each
crew by automobile during the entire working day. The technician's work was
explained to the crew. The men were shown the forms to be used to record
data and asked to assist the technican where necessary. During the coffee
breaks and at lunch, discussion of the data acquired was encouraged.
On the form shown in the Appendix as Exhibit 3-6, the
technician recorded information concerning the path of movement of the truck,
the side of the street or alley the crew was collecting, turning movements,
the number of stops the truck made, the containers emptied and the time re-
quired to collect each block. They also weighed each load brought to the land-
fill site. In addition, the technician recorded time and mileage information
on a Drivers Daily Report. In total, twenty-six full crew days were observed
from which performance data was determined.
4. Performance Measured and Analyzed.
a. Collection, Haul and Delay Time. The time spent by
each crew while being accompanied by a technician, is shown in Table 3-1.
Collection time is time spent while on route collecting waste and driving be-
tween stops on the route. An average of 290 minutes was spent in collection.
Haul time is the time spent driving from the garage
to the first stop in the morning, driving to and from the landfill site and driv-
ing from the landfill site back to the garage at the end of the working day. An
average of 65 minutes 'was spent in haul.
Delay time is the time during the day not spent in
either collection or haul. It includes lunch, rest and coffee breaks, mechani-
cal breakdown, waiting at landfill site, spare time at end of day, meetings,
etc. An average of 155 minutes per day •was spent in delay.
3-15
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TABLE 3-1
Collection* Haul and Delay Times
As Observed During F
Route No.
la
Ib
2
3
4
5
7
8
9
10
11
14
15
16
17
18
19a
19b
20
21
22
23
24
25
26
27
Total
Avg,
Avg, Min.
Survey Date
8/28
9/1
6/22
8/23
8/14
6/26
8/15
8/30
8/30
8/16
8/24
6/28
8/23
8/29
6/23
8/24
6/22
9/1
8/25
8/18
6/22
8/21
8 /28
6/2
8/22
6/22
Collection Time
4:47
4:30
5:15
5:15
5:19
5:15
4:11
3:52
5:09
5:12
3:23
5.17
5.24
4:01
5:42
4:25
4:26
4:23
4:20
4:11
5:30
5:10
5:11
5:06
5:30
5:10
125:54
4:50
290
3-16
Haul Time
1:31
1:40
1:20
1:25
:35
1:16
:45
:59
:33
:46
1:47
:50
:54
:33
:59
1:25
1:37
1:01
1:07
1:06
1:00
1:02
:33
1:26
1:05
1:00
28:15
1:05
65
Delay Time
2: 12
2:20
1.55
1:50
2:46
1:44
3:34
3:39
2:48
2:32
3:20
2:23
2:12
3:56
1:49
2:40
2:37
3:06
3:03
3:22
2:00
2:18
2:46
2:08
1:55
2:20
67:15
2:35
155
-------
b, Existing Routes Mapped. Maps were prepared show-
ing how each route was driven according to the usual practice. The base maps
were prepared by a technician with the aid of the driver and his foreman.
Each driver was requested to describe how the route was normally driven.
The technician recorded this information which indicated one side or two side
collections, all turns and movements, deadheading, lunch and coffee break
points and other pertinent information. The paths normally driven were worked
out on the ground without the benefit of maps. Numerous examples of unneces-
sary deadheading and side street collection became apparent by inspection.
There are situations that appear to be complicated
but are actually necessary. These are caused by one-way streets and alleys,
median strips and steep hills.
Prior to this study, the detailed routes had not been
mapped. The crews assigned to the route knew them and some crews were fa-
miliar with more than one route. Likewise, the supervisors were well ac-
quainted with most of the details of the routes. However, if necessary to assign
new men to a route, the instructions had to be given verbally or written down.
In the case of the loss of several of the crews, the replacement problem would
be very difficult. These maps are available to the supervisors for reference,
New routes have been laid out and are discussed in a following paragraph.
Skill in the use of maps is essential to maintain
route efficiency. It is recommended that supervisory personnel be trained
to use map techniques and see that they are used by the crews.
c° Routes as Observed, Compared to Mapped Routes.
The routes actually driven by each crew, as recorded by the technician accom-
panying the crew, were compared to the maps of the routes as the driver had
said they were normally driven. Sometimes they followed the routes very
closely. Frequently they did not. In most cases the crew, while being ob-
served, covered not only the scheduled day's route but parts of other days
as well. The average production of all routes followed was 127% of a sche-
duled day's work, A summary of each collection route is included in the
Appendix Exhibit 3-7.
d. Analysis of Routes Followed. The average crew
spent 290 minutes in collection, 65 minutes in haul and 155 minutes in delay
to collect their route, as shown in Table 3-1. In addition the average crew
not only finished what had been scheduled as a day's work but also collected
27% of another day's work. In doing so they spent 155 minutes in delays. It
is apparent that the routes as now laid out, assigned and manned, do not repre-
sent a day's work.
If the crews had stopped work as soon as one day's
work, as assigned, was completed and charged the remaining time to delay,
the delay would be much larger than it was. Together, the long delay and
the more than adequate collection time, represent a very significant potential
3-17
-------
saving. In later paragraphs, the possible reduction in crews and equipment
is discussed and estimated. It appears that the savings in crews and equipment
should be in the range of approximately one-third.
The information from the observations was analyzed
and recorded in the Appendix Exhibit 3-8, "Collection Survey, Sheets 1 thru 6. "
The information was first broken down into 4 major collection conditions:
1. From an alley on one side only.
2. From an alley on two sides.
3, From a street on one side only,
4. From a street on two sides.
The miles of each collection condition were determined
by measuring each block of each condition from maps and summarizing these dis-
tances by collection-condition. Miles determined in this manner are collection
miles excluding deadheading. New route layouts will have only minor amounts of
deadheading, therefore this influence was eliminated.
Time, stops, and containers were taken from obser-
vations for that block. The time excluded deadheading. The dwelling unit count
was taken from land use maps developed by the city. The weight of the day's
route was the weight of one or two loads as appropriate from actual weighings.
For each route, unit factors were determined as indi-
cated. These units were on a ''per mile, " "per stop, " and "per dwelling unit"
basis. The per mile factors were used in analyzing existing routes and setting
recommended standards. The per dwelling unit and per stop factors were not used.
5. New Work Rules. It is apparent that new work rules must
be established and enforced. It is recommended that the "incentive" or "task'1
system be used. This system, and the explanation of other terms mentioned
in this paragraph on work rules, is explained in a letter to the Director of
Public Works dated August 30, 1967, which is reproduced in the Appendix as
Exhibit 3-9.
The incentive system, which is in common use throughout
the United States is simply assigning the men a certain amount of work to be
accomplished each day. When they have completed the work they are permitted
to go home. The incentive for fast work is time off at the end of the day. We
have designed the recommended routes in District #1 to allow a 40 minute in-
centive at the end of the day, provided the men work steadily and at a reasonably
fast pace.
We have also allowed a 5 minute rest break each hour ex-
cept when a haul or lunch or other break occurs. See Exhibit 3-9 for a sample
day.
3-1;
-------
A scheduled lunch period is included in the day's work.
This period should be adequate to go to a place to wash and eat. Currently 30
minutes is scheduled and the crews are allowed to go to the nearest fire station
or City park to eat. This appears to be appropriate and popular with the men;
however the lunch periods are seldom restricted to 30 minutes. It should be
agreed that either 30 minutes are to be used and then limit the crews to this
time, or schedule a longer period for lunch and extend the work day to cover
this period.
The following is a summary of the work rules which are
explained in Exhibit 3-9:
SUGGESTED NEW WORK RULES
a. At the beginning of the day, collection crews shall proceed
directly from liie yard to the point of first collection where
they will begin collection of waste.
b. Crews shall remain on their routes and shall follow the
prescribed path at all times except when proceeding to
and from the place of disposal and the yard and except
for the lunch period.
c. One 30 minute lunch period, which starts when the crew
leaves their route and ends when they have returned to
their route, may be taken. Crews may leave their route
during this period and drive to the nearest City fire sta-
tion or City park.
d. At the end of any full hour's collection time the crew may
take, and they are encouraged to take, a 5 minute rest
break; except when it is time to go to lunch or the truck
is full and they should proceed to the place of disposal.
e. When the route has been collected the crew shall proceed
directly to the place of disposal and then directly to the
yard, "at which time they normally will be dismissed for
the day.
f. If one or more of the collection crews in the same district
have been delayed for any reason, the District Foreman
may direct one or more of the other crews in that District
to assist a delayed crew with the completion of the delayed
crews collection.
g. When a crew is required to work more than the 8 hours per
day plus lunch time, they shall receive compensatory time
off,at another time, at the rate of 1-1/2 hours of compen-
satory time for each one hour of time •worked in excess of
the 8 hours plus lunch time.
3-19
-------
6. New Standards. In order to lay out new routes and de-
termine the number of crews and trucks, certain standards of performance
must be determined. Standards are necessary for three types of activities;
collection, haul and delay.
a. Standards for Haul. The standards for haul include
the estimated time required to drive the following distances for each route:
(1) From garage to first stop on route in the
morning.
(2) From route to landfill site.
(3) From landfill site back to route.
(4) From landfill site to garage.
The foreman should determine the routes with the
shortest driving time and instruct his crews to use them.
b. Standards for Delay. Standards for delay consist
of the following:
(1) Rest break.
(Z) Lunch break.
(3) Incentive time.
(4) Unloading time at landfill site.
(5) Mechanical breakdown.
(6) Other stoppage of collection or haul.
Items (1) and (2) are based on the work rules, and
are scheduled into the day's activity.
Item (3), Incentive time, is estimated to be 40 min-
utes, but will vary with the crew and other influences.
Item (4) is estimated to be 5 minutes.
No special allowance is made for items (5) and (6).
They are unusual happenings, and if they occur they reduce the incentive time.
With an incentive system, the incidence of flat tires discovered in the morning,
which could have been discovered at the end of the previous day, will diminish
markedly. Similarly, the crews will be more alert to potential mechanical
3-20
-------
breakdown in their vehicles, and are likely to report them before a delaying
breakdown occurs. Standards for delay will be based on the new work rules
outlined previously.
c.
Standards for Collection. Standards for collection
are based on the average performances of the crews as measured. The stan-
dards are approximate because they are guides which must be applied to vary-
ing circumstances. They can be used to design routes which will be reasonably
correct on the average but will require adjustment to compensate for unusual
conditions. These unusual conditions could involve the type of street or alley,
frequency of fences, population density, difficult terrain and similar items.
The standards also must be reevaluated once the
recommended routes are established. How the standards were derived and the
reason for the required reevaluation are discussed in the following paragraphs.
The routes in their present condition are sufficiently
confused to make the measurement of performance difficult and unreliable ex-
cept for approximations. It was shown that normal routes were not always
followed; more than one day's work was collected when the crews were ob-
served; the path driven over a route had large amounts of deadheading; parts
of routes covered may have been collected less than a week before, resulting
in light collections, or more than one week before resulting in heavy collection
and the crews performance was probably influenced by the presence of the
observer. It is necessary to improve the routes and procedures before they
can be measured with any degree of reliability.
To develop temporary standards for the improved
routes, city-wide averages were used for the four collection conditions. These
averages and the temporary recommended standards are shown in Table 3-2.
Table 3-2
Collection Standards, Minutes Per Mile
1. Alleys, one side
2. Alleys, two sides
3. Streets, one side
4. Streets, two sides
City
Average
ide 45.1
ides 59.8
side 46. 2
sides 56. 8
Rec ornmended
(3 -man Crew)
50
63
48
65
Recommended
(2-man Crew)
82
103
79
106
3-21
-------
Prior to developing the temporary standards, trial
standards were set using the average minutes per mile observed for crews
operating in the northwest 1/3 of the City which is referred to as District I.
These standards and those for delay and haul were used and routes were de-
signed on a first trial basis to cover the area north of the freeway and west of
the Des Moines River. The resulting routes were compared to the present
routes in the area. The new trial routes required a total of 77 man-days as
compared to 136. 5 man-days for existing crews now covering the same area.
This comparison would inn' .ate that manpower re-
quirements could be reduced to 57% of the existing forces. However, it would
be unrealistic to say that the Des Moines system could reorganize into an effi-
cient system with a collection work force of only 57% of its present strength,
based on the averages for the routes observed in District I. The data is not
that exact. It is proper to say that the trial routes indicate that substantial
reductions can be made in the work forces.
New and liberal standards have been used for the
recommended routes. City-wide averages were used as a base as opposed to
averages in the District I area due to having more data available. Using city-
wide averages based on 26 routes, representing approximately 20% of the total
routes, the data is more representative.
Basing the standards on observed performance while
the men were actually collecting is realistic. The crews probably worked more
steadily and faster than normal; however, the principal of incentive time is
based on reward of time off for steady fast work. On the average, the produc-
tion accomplished when the men were collecting was considered adequate. Im-
provements can be made in production, not involving additional efforts by the
crew. These improvements are discussed elsewhere.
The production standards used for the recommended
routes are shown in Table 3-2. These standards were made more liberal than
the averages, by allowing more time per mile of collection. This was done for
the following reasons;
1. The scope of the reorganization and improvements is too
large to accomplish in one step.
2, The data is not sufficiently accurate to apply directly.
3. The new liberal standards will be only temporary. Once
the new routes and conditions have been installed and are functioning as an
efficient system, the routes should be remeasured and new standards applied
as appropriate. This procedure and other adjustments to standards are dis-
cussed in Section E-7. New crew requirements are shown in Section E-8.
Collection standards are shown for three-man crews
and two-man crews. A three-man crew will require two trips to the landfill
3-22
-------
site. A two-man crew, if equally efficient per man, would collect only 2/3 as
much material and make only one trip to the landfill site. This represents a
considerable savings because the time saved by eliminating a round trip will
be used for additional collection.
Additional equipment is necessary for two-man
crews. For each six men, the three-man crew requires 2 trucks and the two-
men crew requires 3 trucks. There is a driving time for the round trip to the
landfill site which represents a break-even point. The break-even time has
been determined to be 22. 5 minutes. The computations necessary to establish
this time are shown in Appendix Exhibit 3-10.
In District I routes, two-man crews were used
where the driving time was greater than 22. 5 minutes.
7. New Routes Established. New routes have been established
for approximately 1/3 of the City in the area west of the Des Moines River and
primarily north of the Freeway, referred to as District I. It extends below the
expressway only for a small area necessary to finish out the full 5 days of the
last route.
Starting in the northwest corner of District I a map was
drawn of an efficient driving path which, if followed, would lead the collection
crews along all of the streets and alleys required to provide collection of all
of the domestic solid waste area. The path has been designed and field checked
to eliminate unnecessary deadheading and takes into account one-way streets,
deadends, median strips and similar barriers. This map is shown as Figure
3-2. A description of the path is given in the District I Route Book. In this
book the 1490 city blocks from which collection is made in District I are de-
scribed. A sample page from the route book is shown as Figure 3-3.
The routes were designed using the standards and work
rules described in the preceding sections. The design is basically applying
collection time standards to the distances and conditions listed in the route
book and adding the haul and delay times, as appropriate, until a day's •work
has been accomplished.
Each route has been designed and recorded in a Route
Plan Book. The Route Plan Book for District I is complete and is available
for use. It is not reproduced in this report, but a sample of the first day's
route is included as Figure 3-4.
A summary of the routes in District I is given in Table 3. 3.
Each crew assigned to District I should be given a copy
of the Route Book for District I. Their assigned routes are given by block
numbers. For example, Route 1, Day 1 is from Block 01 through Block 14.
Route 1, Day 2 is from Block 15 through Block 38, etc.
3-23
-------
-------
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DISTRICT
TABLE 3-3
RECOMMENDED ROUTES
ROUTE
NO
1
2
3
4
5
6
DAY
1
2
3
4
5
ST.
1
2
3
4
5
ST
1
2
3
4
5
ST
FROM
BLOCK
01
15
39
69
99
13Z
162
197
233
260
280
305
337
379
4:25
1
2
3
4
5
ST
1
2
3
4
5
ST
1
2
3
4
5
ST.
7
TOTAL
AVERAGE
PER DAY
1
2
3
4
5
ST.
*
•
474
527
578
629
.,.:,.J£H,,,,
738
808
870
920
,v.v...,?-llW
1012
1047
1085
1132
1181
1235
1293
13-1-5
1404
1.4.41...
n^teg
TO
BLOCK
14
38
6»
98
131
161
196
232
259
279
mmm
304
336
378
-i2-±
-.73
$$$$&&&£
526
577
628
693
737
807
869
919
972
1011
1046
1084
1131
1180
1234
msmm
COLLECTION
MILES
3. 50
3. 64
3.42
3.45
3.42
17.43
3.42
3.39
3.69
3.50
3. 70
17. 71
4. 73
5.25
5. 30
5.26
5. 19
25. 73
5. 36
5.71
5. 57
5. 72
3.90
26. 26
COLLECTION
MINUTES
36,
358
341
358
342
1763
350
352
352
354
35-±
1762
300
327
317
317
318
1579
322
349
327
345
237
1579
5. 64
5. 84
5. 39
5. 89
5.49
28. 25
5.52
5. 35
5. 62
5.42
5. 67
27. 58
1292
1344
1403
1440
1490
5.90
6. 09
5. 65
5. 36
5. 46
28.46
171.42
4.89
335
335
±29
326
322
1747
322
319
326
316
320
1603
326
336
332
333
335
1662
11, 695
334
CREW
MEN
2
2
2
2
2
2
2
2
2
2
2
2
3
3
3
3
3
3
3
3
3
3
3
3
3
3
3
3
3
3
3
3
3
3
3
3
MAN
MINUTES
728
716
682
716
684
3526
700
704
704
708
708
3524
900
981
9'. 1
951
954
4737
976
1047
981
1035
711
4737
1005
1005
1287
978
966
5441
966
957
978
948
960
4809
3
3
3
3
3
3
95
978
1008
996
999
1005
4986
31, 760
907
HAUL
MINUTES
59
59
59
59
59
295
59
59
59
59
59
295
101
101
9^
vj 7
9V
493
97
89
85
73
73
417
79
85
87
89
89
-t29
93
93
93
93
93
465
DELAY
MINUTES
87
93
110
93
109
492
101
49
99
97
97
493
INCENTIVE
MINUTES
32
38
55
33
49
Avg 41
4l
39
39
37
37
Avg 39
109
82
96
96
95
478
91
92
98
92
100
473
96
90
99
93
99
477
95
98
91
101
97
482
87
81
81
81
81
•ill
2805
80
97
93
97
96
94
477
3372
96
54
27
41
41
40
Avg 43
JO
37
43
37
45
Avfi 39
41
35
44
38
44
40
40
43
36
46
42
Avg 41
42
38
42
41
39
Avg 40
1415
40
COLLECTION
2-MAN CREW
3-MAN CREW
AVERAGE
MINUTES PER DAY
352.. 5
326.8
334
COLLECTION MINUTES PER MILE:
2-MAN CREW 100
3-MAN CREW 60
AVERAGE 68
3-24
-------
If a route is delayed and other crews within the District
are assigned to assist the delayed crew, it is a simple matter to tell a crew
to collect from Blocks # to . By reference to their route book
they will know exactly how to drive the blocks and the foreman will know how
long it will take.
Supervisory personnel have been shown how the routes
are designed and how to prepare similar routes for the rest of the City. They
have also been provided with the necessary forms and sample calculations.
3-25
-------
8. New Crew Requirements
a. Collecting Kitchen Waste Only. Based on the recom-
mended new routes described previously, 95 man days per week are required
to collect the residential solid waste in District I. The crew requirements are
as follows:
Routes
Men Per Crew
Men Man Days Per Week
4 20
3 through 7
Total
15
75
19
95
The present effort under existing conditions required
to collect from District I is 139. 5 man days per week as shown in Table 3-4.
Table 3-4
Present Collection System, Time Spent Collecting In District I
Route No.
Days in
District I Area
Route No.
Days in
District I Area
1 4.
2 4.
3 1.
5 2.
6 5.
7 4.
5
0
5
0
0
0
9
10
11
12
13
27
1.
4.
3.
5.
4.
3.
0
0
0
0
5
5
4. 5
Total Crew Days per Week 46. 5
Men per Crew x 3
Man Days per Week
139. 5
The new required manpower will be 68% (95 -=- 139. 5)
of the existing forces working in the area. The new requirement for trucks in
District I will be 75% (35 -r 46. 5) of the existing trucks used in the area.
3-26
-------
To extend these requirements to include the entire
City, it is necessary to eliminate the 2-man crew influence. Add 2 men making
7 crews of 3 men each for 21 men. The part of the City represented by District
I requires 46. 5 crew days out of a total of 135 (27 x 5), or 34. 4%. New crew
requirements for the entire City collected kitchen waste is 61. 2 men (21 •*- . 344)
less 2, which is equal to 59. 2 men.
b. Collecting All Residential Waste. When collecting
all residential waste instead of kitchen waste only, more time will be required
per dwelling unit (DU).
Assume 330 min. per day collection, 2 1/2 men actually
collecting (1/2 man driving) and 650 DUs per day. Also assume one extra con-
tainer per DU and 8 seconds per extra container.
330x2.5x60 = 76 seconds per DU (kitchen waste)
650
Dwellings served at 84 seconds each = 76 x 650 =
84
590 DU per day, when collecting all residential
waste.
The crew requirements will increase by the ratio of
84 to 76 or 1.11. The manpower required to collect District I and to collect
the entire City is as follows:
District I All Residential waste - 19 x 1. 11 - 21 men
Entire City All Residential waste - 59. 2 x 1. 11 - 66 men
9. Procedure for Converting to New Routes. New routes in
District I will cover all of the area now served by eight routes and parts of
five others. The eight existing routes completely eliminated will free 24 men.
The routes partially covered by District I will free additional men. From this
number, 19 men should be selected for the crews of the new routes. The new
crews should be given their route books and maps and an explanation of how
they are used. They should be given time to become familiar with the area
and allowed to drive each day's work. This can be accomplished well before
the change-over is made. There will be parts of the new area that will need
an intermediate pick-up by the extra crews, due to changes in scheduled dates
of collection, if refuse accumulation and complaints are to be held to a mini-
mum. Complaints for skips can be promptly remedied by the extra crews.
After the second, or third week, the crews should be
able to carry the route without help from extra crews, except for remedial
complaint calls, even if they use their incentive time and possibly run into
overtime. Six or eight weeks may be required before crews can carry
3-27
-------
their routes in the minimum time, thus realizing the maximum incentive time.
Crews should be required to perform their routes as
shown in the route book, without modification, until well into the six or eight
week familiarization period. However, the foreman should allow the crews
to move their starting and stopping points within their week's work, to even
out any major imbalance in the individual day's work within the week. No change
in the path of the route, or exchange of territory between crews should be per-
mitted except where absolutely necessary.
At the end of six or eight weeks, the route should be adjusted
as necessary, based on whatever information is available and what appears rea-
sonable from the performance of the crews within a District. This can be done
simply by changing the start-stop points of the various days. This adjustment
cannot be based on any new standards, because no reliable new information will
be available, except what the crews report when they finish their work for
the day. At best, this first adjustment will even out a few imbalances. After the
first adjustment, a technician should follow each crew on each day's work, re-
cording the same information which was recorded by the technician during this
study. The foreman must oversee the crews work and compare the technicians
records -with the crews assigned route, to be absolutely certain that the crews
are following their routes and the work rules relative to rest breaks, lunch
periods and hauling procedures, exactly as assigned. Since each day in each
route will have been observed, it will be a simple matter to make adjustments
in the routes by moving the start-stop points which define the route. This adjust-
ment will be considered the final adjustment, at least for a considerable period
of time.
Since the standards -were set purposely easy, this adjust-
ment should result in the elimination of a few route days at the end of the Dis-
trict. It is possible that all or most of the last route will be absorbed into
the earlier route.
The data obtained from the technicians following the crews,
and the factors concerning time, distance, and quantities computed from this
data, can be used to establish routes in District II and III. The first balance
should be closer than for District I because of the data taken from well or-
ganized routes and experience gained in the first District established. The
procedure followed in establishing and adjusting District I should be repeated
for Districts II and III.
10. Gathering New Data. As soon as the new routes have
been adjusted as described in the preceding paragraph, new data gathering
should begin. Each load collected in District I should be weighed each day.
These weights and the other data required for the Drivers Daily Report
should be recorded. From weighing of full trucks a pounds per cubic yard
average can be computed. With such a unit weight, the cubic yards on partial
loads can be calculated with reasonable accuracy.
3-28
453-956 O - 72 - 9
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Thirty working days after the "Final" adjustment of Dis-
trict I, several days of the last route in District I should be converted to col-
lecting all domestic solid waste, in lieu of only kitchen waste. The end of the
District is chosen for this conversion because these routes can be adjusted
as required without readjusting the preceding routes. Similarly, the last few
days of Districts II and III should be converted after they have been established
on kitchen waste only. Records obtained showing increased quantities and time
required for collection, will be necessary information when all routes are con-
verted to collecting all domestic waste.
As part of the grant requirements under which this study
was made, it was agreed that when the routes were reorganized to the extent
that good data could be collected concerning all domestic waste such data would
be gathered, analyzed and made available to the granting agency. The City will
make the weighing and record the basic data. The consultant will assist in ana-
lyzing this data ai:d will comment on any application concerning conclusions
drawn in this report.
1 1 . Equipment
a. Number of Trucks Required. Based on the require-
ments previously determined, the following truck requirements have been es-
tablished:
Service District I Entire City
Kitchen Waste 7 20
All Residential Waste 7.75 22
Since there are now 27 active trucks and 3 standby
spares, there will be a surplus of vehicles as soon as all of the routes have
been reorganized, and no additional trucks will be required.
b. Size of Trucks Required. The calculations concern-
ing the trucks required and the optimum size of packer body, are based on the
data gathered when observing the collection crews. New data will be available
as the new routes are established and adjusted. The following calculations
and discussion based on the existing data should be repeated when the new
data is available.
From City-wide averages, the crews collected 32. 2
Ibs. per minute when collecting kitchen waste. Using an average of 330 minutes
for collection for the new standards, the average crew will collect 10,600 Ibs.
per day.
This yill exceed the normal capacity of a 16 C. Y.
packer truck which is 9,600 Ibs. and require two trips to the landfill site.
If one trip were made and the extra time due to the eliminated second trip
3-29
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was spent in collection, an additional 36 minutes would add 1, 160 Ibs. for a
total of 1 i, 760 Ibs. per day. This approaches the limit of a 20 C. Y. packer
body of 12, 000 Ibs. , and on heavy days would exceed it. Two trips would be
required.
When collecting all residential waste in lieu of just
kitchen waste the amcunt collected from each dwelling unit will be 40% greater
but fewer units will be collected. The average crew will collect 13. 500 ibs.
per day (10, 600 x 590 x 1. 4). This amount will normally exceed the single
650
load capacity of 16, 20 and 22 C. Y. packer bodies, the latter being 13, 400 Ibs.
On heavy days the capacity of a 24 C. Y. packer at 14,400 Ibs. can be exceeded.
Two trips will be required.
Two loads of a 16 C. Y. packer can haul 19, 200 Ibs.
It appears that there is no reason to purchase larger equipment than the pre-
sent 16 C. Y. fleet if the policy of collecting only kitchen waste is changed to
collecting all domestic waste, as recommended in this report.
Those responsible for sizing the equipment must
take into account the weight limitations for single axle truck chassis. A packer
body 20 C. Y. or larger will probably require a tandem axle chassis. The
packer body size and the point where tandem axles are required will depend on
the weight of the material as determined by the new data gathering program.
c. Conditicn of Present Fleet. The present fleet is
modern and adequately maintained except for appearance. The appearance of
the trucks and packer bodies does not reflect the standards which should be
set for a fleet of sanitation vehicles. These vehicles are advertising the de-
partment. They should be regularly cleaned inside and out and touched up
with paint at those points receiving wear and tear.
It is suggested that when new vehicles are purchased.
consideration be given to diesel engines and automatic transmissions. Careful
cost records and performance measurements may prcve these to be worth-
while. There is much discussion in the industry concerning these two items.
Testing in the Des Moines area could be beneficial to future costs.
d. Labor Saving Devices and Procedures. The collec-
tion division currently uses aluminum tubs to carry waste from the customers'
containers to the vehicle. These tubs are too small and obsolete, as explained
in an interim report to the Public Works Department. We recommended larger
plastic tote cans which are currently used throughout the country. The merit
in these cans is in their large capacity. They should not be used to carry mere
material but instead are easier and quicker to load with a given amount of ma-
terial. Presently the collector must stack bags of garbage, sometimes higher
than the sides of these low tubs. There is great chance of spilling the stacked
tubs, particulary when hoisting to the shoulder. The customers' containers
can simply be dumped into the large cans without the time consuming stacking
and spillage.
3-30
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The cost of these large cans is negligible. The im-
portant cost to the department is labor. A can which costs $15. 00 is unim-
portant when compared to the cost of a truck and crew which cost approxi-
mately $12.00 per hour, 2,080 hours per year.
It has been shown previously that the difference in
cost to collect all residential waste, as compared to kitchen waste, is only the
extra 8 seconds per customer it takes to empty one additional container. The
improvement in any small item which will save labor regardless of the amount
of saving is worthwhile when considering the many times this saving can multi-
ply. For an indication of the potential saving if a more efficient tote can is
used, consider the fact that approximately 4 million customer cans are handled
each year.
It is also recommended that keys to the trucks be
either issued to the drivers or given out and collected at the garbage headquar-
ters where the men check in and out each day. The present procedure calls
for the men to proceed from check-in at 0700, to the garage dispatcher cage,
where they are issued keys. This procedure consumes valuable and unneces-
sary time. A 5 minute delay costs approximately 97 cents per crew, which is
$26. 00 per day or $6, 800 per year. This particular delay can be eliminated
for the price of keys which cost 35£ each.
In the morning, on cold days, the crews have ex-
perienced difficulty in starting their trucks. This is common to fleets which
are parked outside. The problem is not the storing of vehicles outside, but
the delay to the crews. A garage man should be assigned the duty of starting
all trucks on cold mornings in advance of the scheduled start of collection.
One garage man can properly warm up all trucks and do what is necessary to
start difficult ones at a fraction of the cost to the department when compared
to a 3-man crew for each truck being delayed.
The truck is the second largest expense in the col-
lection of waste, but this expense is only 1/6 the cost of the crew which uses
it. Anything which can be done to improve the efficiency of the men must be
considered. This is a management function presently lacking in many muni-
cipal systems today.
12. Costs. The cost estimates in Table 3-5 are based on the
1967 budget for the collection of kitchen waste only, and the collection of all
residential domestic waste. The costs of existing personnel are taken from
the 1967 revised budget. The personnel costs for estimated conditions are
based on prices established in the 19&7 budget, plus an 8. 3% increase for
holidays, vacation and sick leave, plus a 5% allowance for standby personnel.
The estimated personnel requirements are based on liberal work standards
established on a temporary basis. Therefore these estimates should be con-
sidered as conservative.
3-31
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The estimates reflect the same costs that are included in
the present budget. They do not include any overhead costs which are not'now
included in the Garbage Activity Budget such as office rent, Public Works ad-
ministration, accounting and similar expense.
Table 3-5
B.
Estimated Cost of Operation - Improved System
1967 Budget (Existing) - Present Operations - Kitchen Waste Only
1. Personnel:
Regular Employees
Temporary Employees
Longevity
Pension Contribution
Workmen's Compensation
2. Equipment Rentals
3. Other
Total Budget $673,434
Kitchen Waste Only - Improved Operations
$502,203
31,286
6,387
39,514
6, 500
$585, 890 -I- 98 = $5980/Yr/Man
$ 86, 000 -r $3000 = 28. 66 trucks
1, 544
1. Personnel:
Basic Crew
Vacation, Sick Leave and
Holidays @ 8. 3%
Standby at 5%
Operating Crew Labor
Supervision
Total Personnel
2. Equipment:
Active Trucks 20 @ 3000
Standby " 3 @ 1000
Automobiles 4 @ 1000
Total Equipment
3. Other Expense
3-32
Manpower
59-2
4.9
3.0
67
5
72@ $6000 = $432,000
$60,000
3,000
4,000
$67,000
$ 2,000
$ 67,000
$ 2,000
$501,000
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C. All Domestic Waste - Improved Operation
1. Personnel: Manpower
Basic Crew 66.0
8.3% Vacation, Sick Leave 5.5
and Holidays
5% Standby 3. 3
Operating Crew Labor 75. 0
Supervision 5. 0
Total Personnel 80.0 @$6,000= $480,000
2. Equipment
Active Trucks 22 @ 3000 $66,000
Standby " 3 @ 1000 3,000
Automobiles 4 @ 1000 4, OOP
Total Equipment $73,000 $ 73,000
3. Other Expense $ 2,000 $ 2,000
$555,000
The estimate to collect kitchen waste only, under the im-
proved system as shown in Part B, Table 3-5, is $501,000.. This is $172,000
less than the present cost of collecting the same kitchen waste only under exist-
ing conditions.
The estimate to collect all domestic waste under the im-
proved system as shown in Part C, Table 3-5, is $555, 000. This is $118, 000
less than the present cost of collecting kitchen waste only under the present
conditions.
F. Cost Comparisons. The several cost analyses developed in
preceding sections are compared in Table 3-6. These costs are based on in-
formation received from the three cities. The data received was adjusted to
reflect a common basis. Personnel costs include wages, payroll expense,
vacation, sick leave, holidays and supervision. Truck costs are based on
maintenance, repair, operating expenses and amortization. Office overhead,
garage rental and interest on investment is not included.
Part A is a summary of the existing collection systems of Des
Moines, West Des Moines and Urbandale. These cities collect only domestic
kitchen waste on a once per week schedule and the cost shown is for this
service.
3-33
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Part B is an estimate of the cost of service if the cities were
to increase their service to collect all domestic waste. These costs are based
on present levels of efficiency but increased 16% to cover the increased ser-
vice.
Part C is an estimate of weekly collection of kitchen wastes for
Des Moines but with improved efficiency as recommended.
Part D is an estimate of the cost of weekly collection of all do-
mestic solid waste assuming the improved efficiency. The estimate given for
the Des Moines system is $118, 000 less than that now spent for the limited
collection service now being furnished. Part D also indicates the estimated
cost of weekly collection of all domestic solid waste if the population were in-
creased to cover the population of the entire metropolitan area comprising the
Study Area.
Table 3-6
DM
WDM
URB
DM
WDM
URB
DM
D.
DM
Metro Area
Collection Cost Comparisons - Municipal Systems
Present Cost - Kitchen Waste Only
Total Cost Population Cost per Cap. Cost per D. U.
$673,000
51,500
35,800
208,000
14,000
12,500
$3. 24
3. 68
2. 86
B. Present Cost Projected For All Domestic Waste
$783,000
59,700
41,500
208,000
14,000
12,500
$3.76
4.26
3. 32
$ 9.72
12. 88
11. 15
$11.25
14. 90
12. 92
Est. Cost with Improved System - Kitchen Waste Only
$501,000 208,000 2.41 $ 7.24
Est. Cost Improved System - All Domestic Waste
$555,000
770,000
208,000
288,000
$2.67
2.67
$ 8.00
8.00
G.
Future Collection System
1. General. The future organization recommended is a
Metropolitan Solid Waste Agency. The details of this Agency, its purpose,
formation, organization, financing and general operations are described in
3-34
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Part Five of this report. In this section the collection activities of the Agency
are described. It is assumed that all of the communities within the Study Area
would be served by the Agency. In the event all do not join, the operations de-
scribed here can be reduced as appropriate.
It is recommended that the Agency collect all domestic
solid waste on a weekly schedule.
2. Organization. A superintendent shall be in direct charge of
operation of the Collection Division. He shall receive policy, technical and over-
all direction from the Director of the Agency. The Study Area shall be divided
into four districts each under the supervision of a district foreman who shall
report to the Collection Superintendent. A records clerk shall maintain the
records and prepare production records and reports and keep time for the collec-
tion service. Each district shall operate as a team, nominally independently of
the other districts.
The incentive system and work rules as described in Part
Three Section E 5 shall be followed. The trucks, other vehicles and equipment
for the Colection Division shall be provided and maintained by the Equipment
Section.
3. Operations. The operational headquarters will be located
at the new Northeast Sanitary Landfill site, described in Part Four. Two of the
districts shall work out of this site and two shall operate out of the Southwest
site.
The Northeast site will have the main office, personnel
facilities and main equipment maintenance and repair facilities. The South-
west site shall have personnel facilities for crews of the two districts operat-
ing out of this site and for the landfill personnel. In addition, preventative
maintenance and minor repair facilities for the trucks and landfill equipment
will be located at the site.
A description of the detailed operating procedures of the
Collection Division would be beyond the scope of this report. It is necessary
to staff the operation with competent people who know how to manage such an
activity.
It is recommended that standard operating procedures be
prepared which describe how to accomplish the major tasks and activities.
Standard operating procedures should include the following subjects:
a. Personal injury accidents.
b. Property damage accidents.
c. Damage to collection equipment.
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d, Preventative maintenance for equipment.
e. Daily inspection reporting of condition of truck
chassis and packer bodies.
f. Fueling of equipment.
g. Cleaning of equipment.
h. Driving to, from and throughout the routes in-
cluding brakes, lights, power takeoff, packer
mechanisms and exact path to be driven.
i. Handling of customers refuse containers.
j. Lifting, carrying and storing tote containers.
k. Handling of complaints.
1. Tagging of improper containers.
In addition to the standard operating procedures, personnel
rules, job descriptions, operating instructions and policies of the Agency should
also be prepared.
Formal programs should be developed for the following items:
a. Health and safety.
b. Driver training.
c. Personnel selection, management and retention.
d. Investigation of mechanical breakdown of equipment.
e. Collection route efficiency and work load balance.
f. Selection and procurement of equipment and labor
saving devices.
g. Cost control.
h. Gathering of basic data.
i. Public relations.
4. Routes. At the time of the creation of the Agency collection
system the three districts in the Des Moines system should be functioning properly
under the new procedures recommended. The Agency will use the routes in the
3-36
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districts as a nucleus upon which to build a complete system. The procedures
established for setting standards and routes should be followed in determining
the additional routes necessary to serve the Study Area.
The routes should be regrouped into four districts with
the boundaries of the districts determined by the areas that will be collected
by the crews which will work out of the two sanitary landfill sites.
5. Equipment Considerations. The basic equipment to be used
for collection will be trucks with packer bodies. It is contemplated that the exist-
ing equipment now owned by cities joining the Agency would be leased to the Agency
for its use. The Agency would purchase new equipment to replace the leased
equipment as it was amortized, beginning the first year. By leasing equipment
the cities will have a method of orderly disposal of their equipment inventories.
The three cities in the Study Area which operate their own systems now have
adequate equipment to collect from the entire Study Area.
Replacement equipment should be sized to best fit the needs
of the routes to which it will be assigned.
It is recommended that detailed cost and use records be
accumulated on each vehicle and vehicles of like specification. With such records
it is possible to make intelligent management decisions concerning the amortiza-
tion periods and decisions concerning overhaul or replacement of individual units.
The superintendents of the Collection Division and Equipment Section, together
with the Assistant Director and Director should have the necessary skills and
knowledge to make cost and performance analysis and completely understand
and practice equipment management.
6. Personnel and Equipment Requirements. The estimates of
personnel and equipment for the new Agency and the costs, both annual and
initial, have been adjusted from the temporary standards set forth previously.
There will be additional opportunities to readjust the estimates contained in
this section as new performance data becomes available but it is necessary now
to make some adjustments upon which planning can begin.
In Table 3-7, the population, basic crew size and basic
truck requirements are set out for Des Moines in item la, based on the new
temporary standards. They are also shown increased in item Ib, in direct pro-
portion to a larger population. This population is equal to the estimated 1967
population of the metropolitan area included in this study. Item Ic shews the
basic crew size and truck requirement after a 10% reduction in the initial tem-
porary standards has been applied. The actual reduction should be greater
than 10% and thus costs may be less than will be shown for these items; how-
ever for planning purposes a 10% factor is considered adequate-
Items 2 and 3 show the basic crew sizes and truck re-
quirements developed into operational requirements.
3-37
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Table 3-'
Personnel and Equipment Requirements
Collection of All Domestic Waste-Study Area
Projection from City of Des Moines as base unit:
Population
208,000 66
a.
Des Moines Temporary
Standards
b. Des Moines Temporary
Standards
c. Metropolitan Agency*
I'Reduced 10%
Personnel Requirements:
Basic Crew
a.
b.
c.
d.
Vacation, Sick Leave and
Holidays 8. 3%
Standby 5%
Sub-Total
Superintendent
e. Foreman
f. Clerk
Total Personnel
Equipment Requirements:
a. Active Trucks
b. Standby Trucks
c. Automobiles
288,000
288,000
Basic
Crew
91,5
82.3
82.3
6.8
4,1
93.2
1. 0
4. 0
1. 0
99
Basic
Trucks
22
30. 5
27.4
28
3
5
3-38
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7. Personnel. The total personnel of the Collection Division
is shown in Table 3-7. The 98 men working under the direction of the Collec-
tion Superintendent represent a large personnel management challenge and the
most important part of the operation. The men represent the largest cost item
and are the heart of the operation. The difference between a successful and
economical operation and something less will be the manner in which these men
are motivated and supervised.
Modern personnel management techniques must be initiated
for hiring, training and retention.
The screening of new personnel should include a complete
physical examination, a drivers test and previous driving history investigation
for both drivers and collectors. The driver is considered to be the crew chief
and does the major driving; however, he also assists in the collection of waste
while on route. The collectors do both collecting and minor driving while on
route. Both must be in sound physical condition and capable of operating the
truck.
The concept that anyone is suitable for refuse collection
work is incorrect. A crew is a unit which operates alone most of the time.
Their level of performance is important to the cost and overall success of the
department. They also represent a major exposure of government to the public.
They should be properly selected, trained and supervised as the most important
element of the service. Their status and image should be protected and im-
proved at every opportunity.
8. Collection Costs. Basic cost data and annual costs are
presented in Table 3-8. It is contemplated that the large "initial" expenses
estimated to be approximately $444, 000 would be financed from the proceeds of
bonds over a period of 20 years. The annual payment of bonds and the annual
reoccurring expenses for collection would amount to a cost of approximately
$820, 100 per year. The disposal of the material collected by the department
would cost $1. 10 per ton which is the suggested charge made for all users
of the disposal facilities. This cost would be $73, 300 for the disposal of an
estimated 66,600 tons per year. The total cost of this collection activity in-
cluding disposing of the material collected is $893,400 per year.
Although not a cost of operation or debt service, bond
buyers will insist on a reserve for the annual debt service . This varies
but for estimating purposes we have assumed a 40% factor. The debt service
reserve would be . 4x the debt service of $34, 100, or $13, 600. The total
revenue requirement for this collection service would be $907,000 per year.
3-39
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Table 3-8
Cost Estimate for Collection of All
Domestic Waste in Study Area
A. Basic Cost Data
1. Initial Purchase of Equipment (one time only)
28 Packer Trucks @ 9500 $266,000
5 Automobiles @ 3000 15, OOP $281,000
2. Agency Headquarters and Repair Shop
(one time only)
Office $ 36,000
Repair Shop 50,000
Repair Equipment 60, OOP
$146,OPP
5P% Each for Collection and Disposal 73.PPO
3. Truck Storage Garages 2 @ $45,PPP 90,POO
4. Operating Personnel (annual)
99 men @ $6, 000 per year 594, 000
5. Operating Equipment (annual)
Active Trucks 28 @ 3, 000 $ 84,000
Standby Trucks 3 @ 1, 000 3,000
Automobiles 5@ 1,000 5, OOP
92,PPP
6. Miscellaneous Expense, Overhead and
Contingency 1PP.OPP
B. Annual Costs
1 Debt Service Requirement - 20 year Bonds
@ 4 1/2% (P. 0768)
a. Initial Equipment Purchase $281, POP
b. Agency Headquarters and Shops 73, PPP
c. Truck Storage 9P, PPP
$444,OPP
@ 0.P768 34,1PP
2. Reoccurring Annual Expense
a. Operating Personnel 594,000
b. Operating Equipment 92,000
c. Miscellaneous Expense, Overhead
and Contingency 100, OOP
786,000
Total Annual Cost of Collection 820, 100
C. Disposal Fees for Material Collected,
66, 600 Tons per year @ $1. 10 per ton 73, 300
D. Total Annual Cost of Collection Service $893,400
E. Debt Service Reserve $34, 100 x . 40 13, 60P
F. Total Required Funds For Collection $9P7,PPP
3-4P
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9. Cost Comparison. A comparison is made in Table 3-9 be-
tween the estimated cost of Agency service, and the cost of various other collec-
tion services now being offered in the Study Area.
Part A shows the estimated cost of Agency collection of all
residential waste. See Part Five section E for details.
Part B shows the cost of contract collection in the Town of
Pleasant Hill. The contract provides a charge based on $1. 50 per dwelling unit
per month, for weekly kitchen waste service. This cost is approximately 1. 7
times the estimated cost of Agency collection of all domestic waste.
Parts C and D show the cost of weekly service for kitchen
waste and all domestic waste collection where the individual householders make
arrangements with private haulers for private service. The prices in the com-
munity vary; however the cost of $2. 00 per month and $2. 50 per month respectively
are typical. The price per dwelling unit for all domestic waste of $30. 00 per year
is 2. 7 times the estimated cost of similar service under Part A.
Table 3-9
Collection Cost Comparison - Agency and Other Systems
A. Cost of Agency Collection - All
Domestic Waste. $10. 80 per dwelling unit per year.
B. Cost of Contract Collection -
Kitchen Waste. Pleasant Hill. $18. 00 per dwelling unit per year.
C. Cost of Individual Private
Hauler Collection - Kitchen
Waste. Miscellaneous Customers $24. 00 per dwelling unit per year.
D. Cost of Individual Private
Hauler Collection - All Do-
mestic Waste. Miscellaneous
Customers $30. 00 per dwelling unit per year.
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PART FOUR - DISPOSAL OF SOLID WASTE
A. General. The disposal of solid waste, as discussed in this Part
of the report, is based on the regional approach similar to that presented in
Part Three, concerning solid waste collection. One or two large disposal
facilities, regardless of the type, can be operated at a unit cost which is con-
siderably less than that resulting from many smaller facilities. In addition,
a larger facility can attract and can afford the necessary full time profession-
al management required to operate the disposal facility properly.
Solid waste disposal can be accomplished using any of several
methods. The selection of the most appropriate method depends on the par-
ticular circumstances that prevail at the time and in the location where the
disposal is needed.
The old town dump, where refuse was burned from time to time
was acceptable when there were fewer people, less intense land development
and little knowledge of air pollution. Today this practice is inappropriate.
In some sea coast communities combustible refuse is burned
on barges far out to sea and the residue dumped into the water. This practice
is now condemned as a source of air and water pollution.
In the large metropolitan regions such as the New York City area,
land, labor and transportation costs present a different set of circumstances
than prevail in the Study Area around Des Moines. Each community or region
must consider methods which are based on local conditions.
In the following paragraphs, three basic types of disposal are
discussed; Incineration, Composting and Landfilling.
B. Description of Disposal Methods
1. Incineration
a. Discussion. This process consists of reducing com-
bustible refuse to an inert residue by burning, within an enclosure, under high
temperatures and controlled conditions. When accomplished in a large facility
for a community with waste transported to the facility from several sources it
is referred to as Central Incineration, When accomplished by individuals or
commercial, industrial or institutional concerns for their own locally generated
waste it is referred to as On Site Incineration
Central and On Site Incinerators are used for two
purposes; to reduce large volumes of waste to a small volume of residue and to
change the form of a material which may be dangerous or a nuisance to one which
is safe or nuisance free.
4-1
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Municipal incineration plants are familiar
to the general public. Unfortunately many poor examples are in existence
today. They should not be considered as typical of what a modern plant can be.
The modern plant with proper air pollution control devices, burning at high
temperatures and equipped with proper controls and site facilities can be operated
in any area zoned for industrial use without creating a nuisance.
There are many incinerators throughout the
United States which are fine examples of industrial architecture. Much of the
public would be unaware of the function of the facility if it were not for signs
on the building or at the gates.
A major advantage of the central incinerator
is the relatively small land requirement and the ability to locate the plant in
an industrial area within a city. The central location reduces the hauling cost
not only for the city collection crews, but also for the industrial and commer-
cial users of the facility. This advantage is particularly important in large
metropolitan areas where there is a high cost in hauling materials from the
place where the waste is generated, to landfill sites in rural areas. It is not
as important in this Study Area where rural land is available within a few min-
utes driving time from the center of the city.
The major disadvantage is the cost of initial
construction and the cost of maintenance and operation. These costs amount to
approximately $6. 50 per ton as described in Table 4-3.
The central incineration plant receives only
a portion of the solid waste of the community. Approximately 1 /4 of the volume
and 1 /Z of the weight of the waste is incombustible and must be diverted to
landfill sites. Also part of the waste which is incinerated will remain as resi-
due which must be landfilled. Waste water from ari incineration plant from air
scrubbers and quenching must be treated.
Modern incinerators generate considerable
amounts of waste heat. In some new plants heat is now being put to economical
use as steam which is either used for generation of electricity or used directly
as steam or hot water in a variety of processes. The steam or electricity thus
produced is sold to offset part of the cost of operation. The first cost is higher
but it is a worthwhile investment.
Formerly excess air was introduced into in-
cinerators to reduce the temperature of the stack gasses. With increasing air
pollution requirements the cost of scrubbing these excess air quantities is
greatly increased. The recovery of excess heat in the form of steam not only
produces a valuable product, but also reduces the required quantity of excess
air which in turn reduces the cost of scrubbing the stack gasses.
4-2
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To be economical, steam for electric generation
should be high pressure and in large enough quantity to operate a large generator.
Many small electric power generating plants are abandoning their small units as un-
economical to operate. This is due to the interconnection of power lines where
very large generators can serve many areas more economically than the individual
communities can serve themselves. There is not enough heat involved in this par-
ticular situation to consider electric generation. Steam or hot water could be
sold if there was a buyer close by.
Some plants with waste heat recovery devices
have claimed a cost reduction of approximately $2. 00 per ton. If this was pos-
sible in the Study Area, the cost of incineration could be reduced from $6. 50 per
ton as shown in the cost estimate to $4. 50 per ton.
The cost of a sanitary landfill discussed in the
following paragraph is approximately $1.10 per ton. Thus incineration costs
would be between 4 and 6 times as expensive. In addition, a sanitary landfill
would be required for the materials which could not be incinerated and for in-
cinerator residue.
Based on costs, a central incinerator plant is
not recommended.
Certain industries, commercial establishments
and institutions may wish to operate on site incinerators as a matter of conve-
nience. If they are properly designed and operated they should be permitted.
The design; however, must include all of the necessary controls and devices to
insure proper burning and safety and air pollution controls.
Some on site incinerators may be necessary.
For example, the safe disposal of infectious or otherwise contaminated materials
from hospitals or drug manufacturers requires incineration. Also highly volatile
and inflammable liquids from other industries cannot be safely buried in a land-
fill. In these cases, incineration is necessary and an acceptable method of
disposal; however, they should be licensed and controlled.
b. Quantities of Material and Cost of Incineration .
In computer programs A, B and C as described in Part Two, each load of ma-
terials which was measured at the six site surveys was tested by the computer
to determine whether that load could be sent to a central incinerator or should
be diverted to a sanitary landfill. Two quantities were determined; (1) the vol-
ume and weight of material which could be accepted and processed; and (Z) the
volume and weight of material which should be diverted to sanitary landfill.
These quantities were based on the materials
as measured at the several sites during the surveys and therefore included the
special tree wastes. It would not be appropriate to consider these special
tree wastes when determining the quantities for incineration because these
wastes will not occur in large quantities after 1972. These quantities also did
4-3
453-956 O - 72 - 10
-------
not include the on site disposal.
To obtain reasonable estimates for incineration,
the quantities from the computer programs were used to determine the percent
disposable by incineration. This percentage was adjusted for special tree waste
quantities and then applied to the total 1967 quantities which include measured
quantities and estimated on site quantities.
Tree waste, including special tree waste and
normal tree waste, consists of Material Classifications 10, 11, 12 and 13. Clas-
sifications 10 and 11 are logs and stumps which cannot be sent through an in-
cinerator. Classifications 12 and 13 are limbs and leaves which can be incinerated.
Classes 12 and 13 represent 58% of the volume and 35% of the weight of the total
tree waste. The basis for these percentages are shown in Table 4-1.
The quantities of materials and cost estimates
are shown in Tables 4-2 and 4-3.
Table 4-1
Special Tree Waste Percentage to Incineration
Volume* Weight *
1967 CY/Wk. CY/Yr. Lbs/Wk. Tons/Yr.
A. Materials not sent to Incineration
1) Class 10 Matl. ,
as measured 2,700 1,823,000
2) Class 11 Matl. ,
as measured 1, 360 920, 500
3) Sub Total 4, 100 211,000 2, 744,000 71,000
B. Material Sent to Incineration
1)
2)
3)
Class 12 Matl. ,
as measured
Class 13 Matl. ,
as measured
Sub Total
Total (Class 10+11+12 + 13)
195
5, 300
5, 500
9,600
62,
1,431,
286,000 1,493,
497,000 4,237,
000
000
000
000
39, 000
110,000
C. Percent of Matl. sent to
Incineration 58% 35%
^Adjusted for seasonal variation.
4-4
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Table 4-2
Quantities of Materials for Incineration
Volume*
1)
2)
3)
4)
5)
1967 as Measured
Total Wastes (a) (b)
Wastes to Incinerator
Cy/Wk.
39,000
(a) 30,000
Total Special Tree Wastes(b)
Incineration Potential
NEW Total Wastes
C358%)
CS35%)
Cy/Yr.
2, 026,
1, 577,
423,
246,
1, 603,
Weight*
Lbs/Wk.
000 17, 720, 000
000 9, 363, 000
000
000
000
Tons
461,
243,
94,
33,
367,
/Yr.
000
000
000
000
000
(Line 1 less Line 3)
6) NEW Waste to Incinerator 1,331,000 210,000
(Line 2 less Line 4)
7) NEW Waste to Sanitary Landfill 272,000 156,000
8) NEW Percent of Waste to Incinerator 83% 57%
9) 1967 Total Waste (c) 2, 480, 000 (b) 562,000
10) Less Total Special Tree Waste (c) 440, 000 (b) 103,500
11) 1967 Total Less Special Tree Waste 2,040,000 458,500
12) Quantity to Incineration 1967
83% x Line 11 1, 690,000
57% x Line 11 260,000
13) Quantity to Incinerate 20th Yr. 423,000
57% x 741, 000 (c)
14) Quantity to Incinerate Avg. Yr.
1987 accumulation 1 3, 563, 000 Tons
-1967 accumulation - 562,000
-Special Tree Waste - 870,000
20 yr. accumulation 12,131,000 Tons
Avg. yr 12, 131 , 000 * 20 x . 57 346, 000
(a) From Computer Program A, Exhibit 2-15
(b) Compacted in place quantity adjubted to "as received".
2.45 "as received"^ 1 C.Y. compacted
(c) From Table 2-10
*Ad lusted for seasonal variation
4-5
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Table 4-3
Cost Estimates for Incineration
1) Quantities
ZOth Year 423, 000 Tons
Average Year 346,000 Tons
2) Daily Quantity Average, 20th Year, 1987
423,000 x 7/6 -i- 365 = 1, 350 tons/day average.
3) Capacity = 1.2x1, 350 = 1, 620 tons /day Rated Capacity
4) Cost Estimates
a. First Cost @ $7, 500/ton x 1, 630 = $ 12, 225, 000
b. Amortized for 20 years 3 4. 5% (. 0768) = $ 939.000
c. M & O /5) 3. 48/ton for average year x 346,000 = 1,201,000
d. Hauling residue to Landfill,
20% of avg. /yr. x 346, 000 = 69, 200 tons
@ $1. 74 first ton -_ 120,000
Total Cost of Incineration - $2, 242, 000
for average year
5) Cost per ton Incinerated
$2, 260, 000 4- 346, 000 tons = $6. 50 per ton
NOTES: First cost = $6, 800 + 10% for Administration and Engineering =
$7, 500 per rated ton. Cost of $6, 800 was selected arbitrarily from
reported costs ranging from $4, 900 to $9, 100. Actual costs must be
based on detailed designs. These estimates are adequate only for
establishing the magnitude of the cost per ton of incineration capacity.
The M & O cost are similarly approximate.
4-6
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2. Composting. This process consists of the conversion
of the organic portion of the solid waste through aerobic digestion, to a stable
and harmless material, which may be used for a soil conditioner or as fertilizer.
Micro-organisms which are present in garbage and other
organic material will cause the waste to decompose. The composting plant pro-
vides the proper environment for these organisms. The plant receives only those
loads of solid waste which can be composted. Loads not suitable for composting
are diverted to sanitary landfills. The waste which is accepted is picked to re-
move non-compostable materials. Some of these materials have a value and
are salvaged. After picking, the remaining material is pulverized and moistur-
ized with various processing equipment. The material is then subjected to a
composting period varying from one to two weeks during which the temperature,
moisture and air content is carefully controlled, and the material is mixed. At
the end of the composting period, the waste has been converted to compost which
is a humus like material having some value as a soil conditioner or as a form
of fertilizer.
Composting has been practiced for many years with
little success. In recent years, several research and development projects
have been undertaken which have improved the process. The modern plant of
today is a highly mechanized facility utilizing quality equipment designed or
specifically adapted for this process. Several well known national companies
and equipment manufacturers have built and are operating composting plants in
Texas. Arizona and Florida.
Unfortunately, some of these modern plants have had
serious difficulty with odor problems. It is assumed that these problems can
be overcome and within a few years it will be possible to process compost in
a nuisance free manner.
The cost of composting is considerably greater than the
cost of landfilling. One of the most recent plants constructed by a national com-
pany in cooperation with a major Florida City was placed into operation and re-
ceived 100 tons of compostable refuse per day. The City pays a fee of approxi-
mately $3. Z5 per ton to the operator to take the material. This fee is approxi-
mately 3 times the cost of landfilling and in addition the non-compostable materi-
al must be landfilled.
Whether the compost material can be sold is a debatable
question. Attempts to sell soil conditioners in large quantity in the Mid-West
have not been successful.
It is possible that the composting process may be
practical some years in the future. Today in the Study Area it is not recom-
mended as a satisfactory method of solid waste disposal.
The quantities of material which could oe composted
are not included in this report. The basic data is available from the computer
programs and the method of calculation is similar to that shown in the preceding
4-7
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paragraphs on incineration.
3. Landfilling . This section discusses sanitary landfills
in general and two variations of the process: dry landfills and wet landfills.
Sanitary landfilling is a process in which solid waste
materials are spread on the ground, crushed and compacted into a dense mass
and covered with earth in a carefully controlled sanitary manner. This method
is a proven systein which when carefully planned and operated is economical
and nuisance free.
The filling can be on land ranging from level land to
gullies or ravines. In many instances, rough and low value land has been im-
proved by filling.
The term sanitary landfill has frequently been con-
fused with open dumps or burning grounds. This is incorrect. A sanitary land-
fill is a specific process requiring careful design and management, proper equip-
ment and operating techniques to assure that sanitary conditions are maintained
at all times. The compacted waste is completely covered with earth on a daily
schedule. Each day's waste is therefore enclosed in an earth cell. These cells
preclude rodents and insects, odors, litter, air and water pollution and fires.
Emphasis is placed on proper location, equipment, compaction and cover, sight
screening and other sanitary and aesthetic requirements.
The major disadvantage is that large quantities of land
are required. In certain parts of the country this requirement can be disquali-
fying. However, in the Study Area, there is land available at locations close
enough for economical hauling.
Another potential disadvantage is the frequent lack of
public acceptance of sanitary landfilling. This is due to the bad reputation of
dumps and the public confusion of dumps and sanitary landfills. A good public
relation program and a demonstration of proper sanitary landfill operations can
reduce the public resistance.
Sanitary landfilling is estimated to cost approximately
$1. 10 per ton as shown in Section K of this Part Four. When compared to the
cost of incineration and composting this method is the least expensive.
Two variations on the sanitary landfill method were
also considered: The dry and the wet landfill.
Certain materials such as broken concrete, demolition
waste ashes, etc. can be used to fill gullies, worked out quarries or low land
without requiring full sanitary landfill methods.
4-*
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Filling a dry area with such material is referred to as
dry landfilling. Filling areas which could be wet from ground water or surface
overflow with suitable material is referred to as wet landfilling.
The materials which are considered suitable for these two
methods are described in Part Two under computer programs. The quantities
which can be placed in dry and wet landfills were determined in Computer Pro-
grams A, B and C.
These quantities do not appear to be large enough to war-
rant consideration as a disposal method for the Study Area. However, they do indi-
cate the potential quantity of material which may be diverted from public sani-
tary landfill sites when fees are charged for disposal.
C. Recommended Method of Disposal . The sanitary landfill method
is recommended for the following reasons:
1. Land is available.
2. The method has been proven satisfactory where proper-
ly operated.
3. The method can meet all health and sanitation require-
ments, and be aesthetically pleasing.
4. The method is adaptable to varying quantities and peak
or slack rates.
5. The method is the most economical.
The sanitary landfill method is described in Section I of Part
Four.
D. Existing Disposal Operations
1. General. The existing methods of disposal within the
Study Area include; sanitary landfills, semi-sanitary landfills, open dumps and
open burning dumps. In addition, there are many small private incineration fa-
cilities which are considered incidental to the disposal facilities of the commu-
nity.
It is recommended that all of the existing public disposal
facilities be closed as soon as the proposed new sanitary landfill facilities are
ready for service.
2. The City of Urbandale operates a small completely
nuisance free sanitary landfill in a City Park west of 72nd Street and south of
Interstate No. 80 and No. 35. This site is operated primarily for the disposal of
City collected kitchen waste from the dwellings within the City. It also receives
4-9
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some other waste from City operations and from residents of the City by appoint-
ment.
The City is operating the site as a satisfactory method
of disposing of its waste but at a high unit cost. The high cost is due to the
relatively little waste that is being handled. A piece of heavy equipment and
an operator is used to do the work. The same operator on a large piece of land-
fill equipment at a large site could handle 100 or 200 times as much material in
the same amount of time.
The cost of operation and tonnage disposed of are esti-
mated to be $10, 000 and 2, 500 tons per year. At this rate the cost of operation
is $4. 00 per ton which is approximately four times the expected rate at the new
sanitary landfill sites. It is believed the new sites will be attractive to this City.
3. The Polk County site is located on a relatively small
parcel of leased land adjacent to Four Mile Creek and NE 78th Avenue, approxi-
mately 11/2 miles east of 1-35. Several activities are conducted at this site.
A trench sanitary landfill is operated for garbage and some other material.
Large items of noncombustible trash are dumped on an exposed hillside with the
open exposed surface visible from the road. Combustible materials such as
brush, tree limbs and lumber are burned under the control of the site opera-
tor. Although open burning is considered objectionable, this operator takes
great care to burn in the least offensive manner. There is also a depression in
the ground in which highly flammable liquid wastes are burned. Except for the
burning and exposed trash on the hillside, the site is maintained in a neat and
attractive manner. The grass is well maintained and the area enclosed in a
suitable fence. See Part Two for land fill survey information.
The site is operated for the benefit of the residents
and commercial and industrial concerns located in the unincorporated parts of
Polk County. The following fees per load are charged: pickup trucks, $1.50;
dump and flat bed trucks etc. , $3. 00; packer trucks $6. 00; private citizens,
free. Also special rates are arranged for unusual wastes.
This site, like the Urbandale site, is an expensive
operation when considering unit costs. It is maintained as a necessity but could
be closed when the new sites are avaik.ble.
4. The Euclid Avenue site is located east of the Des
Moines River on the south side of Euclid Avenue. This site is operated by a pri-
vate individual on leased land. The site is open to the public upon payment of
a small fee which varies from 25£ per automobile to higher amounts for larger
loads.
The site is an open burning dump. Little or no at-
tempt is made to cover material and burning is practiced as a method of vol-
ume reduction. A landfill survey was conducted at this site. Information is
contained in Part Two of this report.
4-10
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Although this operation is a convenience to the public,
it should not be permitted to operate in its present form.
5. The Ankeny landfill is located on the sewage treatment
plant site south of the John Deere Plant. The land is owned by the City of Ankeny
and open to residents and commercial and industrial establishments located in
Ankeny and to private haulers collecting waste from within the City.
The operation is a semi-sanitary landfill with open
burning under controlled conditions practiced as a volume reducing procedure.
Partial covering is accomplished several times per week, using ashes
waste dirt and dirt taken from the site. There is adequate space on the site to
continue in this location.
This site could be converted to a satisfactory sanitary
landfill if the burning was discontinued and the active face was adequately com-
pacted and covered with earth daily. In addition, road improvements, fencing
and site maintenance need to be accomplished, to provide proper access and
appearance.
From the site survey, it was determined that this site
receives solid waste at the rate of approximately 9,000 tons per year. The
cost of this site operation as reported by the City is approximately $14, 000 per
year, not including payroll overhead or land cost. The cost per ton based on
the incomplete reported cost is $1. 55. This cost is 40% higher than the cost
of the recommended public landfill sites. This higher cost is due to the low
tonnage filled. There is little which can be done to improve the economics
and in fact, if the necessary improvements are made in the operation the cost
will increase. It is believed that the City of Ankeny would benefit by closing
this site when the new public sites are available.
6. The West Des Monies site is a collection of three site
operations on the edge of a sand pit located southeast of the C. R. I. & P.
Railroad at approximately llth Street extended. The land is leased from its
owner for a nominal annual fee. This facility is used by citizens and commer-
cial and industrial concerns located within the City and by the City for dis-
posal of collected garbage and other City solid waste.
As a regular practice, trees and combustible liquids
are burned. Occasionally trash is also burned. An attempt is made to keep
garbage separate from other materials and to compact arid cover it as cover
material is available. There are three basic problems.
a. There is inadequate land at this site to con-
tinue filling.
b. The site activity can and probably does con-
taminate the ground water at this location.
4-11
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c. There is an inadequate supply of cover ma-
terial available or reasonably accessible to properly conduct a sanitary land-
fill operation.
An attempt is made to operate a semi-sanitary land-
fill site. However, this operation is unsatisfactory when compared to proper
sanitary landfill criteria. The lack of adequate cover material is difficult to
overcome. In addition, the uncovered materials are a health and litter hazard,
and occasionally catch fire. Without adequate cover material to enclose the
daily quantities into cells to prevent the spread of fire, there are inadequate
quantities to smother a surface fire.
Based on the landfill survey discussed in Part Two,
this site receives solid waste at the rate of approximately 40, 000 tons per
year. The cost of operation is approximately $12, 000 per year or $. 30 per
ton. Although this cost is cheaper than that proposed, the operation cannot
be economical if proper standards are observed.
It is recommended that the site be closed as soon as the
new proposed sites are available for use.
7. The Des Moines Site No. 2 is located in a worked out
quarry south and west of SE 30th & Maury Streets. This site is one of two
operated by the City of Des Moines. It is open to the general public without
charge. Materials accepted at this site are restricted to materials such
as building demolition, broken concrete, trees and limbs, tires and similar
items. This site receives approximately 45% of all of the tonnage and 36% of
all the volume of waste, considering all disposal sites in the entire Study
Area. The waste consists largely of trees and tree limbs.
The site has little cover material available. The
cover used is hauled to the site in trucks. The lack of adequate cover ma-
terial is compounded by the type of material filled. One feature of sanitary
landfilling and specifically compacting the waste material, is that unlike ma-
terials compact better than like materials. For example, 1000 rubber tires
or 1000 tree trunks will not compact into a tight dense mass. However, when
mixed together with several hundred tons of other materials of different sizes
and shapes into a heterogeneous mass,it becomes much easier to compact.
Smaller items are packed into the center part of the tires and between the
tree trunks. Few tree trunks are actually in contact with each other, there-
by eliminating the see-saw problem.
At this site large quantities of earth are required to
pack around the great number of logs to be able to travel over the mass with
a machine.
Because this site was a former quarry with standing
ground water above the floor of the pit, the site was restricted to materials
which would not contaminate the ground water. Actually restricting a site to
4-12
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certain materials is difficult to police. Unauthorized material such as some
garbage mixed with inert material has been observed at this site. Similarly,
cardboard boxes and other material which will dissolve when inundated are
also deposited in restricted quantities.
This site was leased at a nominal rate per year and
placed into service to conserve the limited capacity remaining at the Des
Moine s Site #1. Operating two sites relatively near each other is expensive
and wasteful, but in this case necessary. A great effort is made to operate
this site in an acceptable manner but the results are unsatisfactory due to the
handicap of having to handle homogeneous materials without sufficient quanti-
ties of cover dirt. There is also a lack of adequate landfill equipment. The
equipment owned by the City is not sufficiently large or rugged to do the heavy
job required at this site. The percent availability is unacceptably low due to
continuous breakdown. A track mounted bulldozer rented from a contractor
has been used at the site, working side by side with track mounted dozers
owned by the City. The contractor's machine which is a rugged heavy duty
type has a negligible amount of breakdown.
The site is rapidly filling and at the current rate will
be completely filled by 1970. Part Two contains detailed information obtained
during the site survey.
8. The Des Moines Site No. 1 is located east of SE 15th
Street at Harriett Street, on City-owned land. This site is open to the public
without charge and accepts all waste materials except tree waste and large
quantities of demolition waste which are diverted to Site #2.
One third of the tonnage and approximately 43% of the
volume of waste from the entire Study Area is received and handled at this site.
See Part Two for site survey information.
A few years ago this site was a typical example of a
large unregulated burning dump. It was the type of operation responsible for
the poor public image of landfills. In recent years the operation has been im-
proved and great progress made toward bringing the site up to a decent stand-
ard. The current status is far from acceptable but improving rapidly. Based
on recommendations submitted in mid-summer 1967, the operation has been
further improved.
The principal problems at this site are the lack of
cover material, and inadequate equipment. There is no cover material left
at the site, and therefore all cover must be trucked in. The City has a fleet
of 2-1/2 ton dump trucks which are normally used for street de-
partment work. This is an appropriate size for street use, however,
hauling cover material under "off the roads" conditions is an abuse of this type
of equipment and produces a small quantity of material. A heavy duty 10
to 15 cubic yard truck requires the same driver as a 2-1/2 ton
4-13
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truck but will haul much more material. It is built for the rugged operating
conditions and on a tonnage hauled basis is cheaper to operate.
The City has diverted all of the trucks not being
used for other necessary work to the task of hauling cover for this site. This
has made a significant improvement in site operations.
Fires have been a problem at this site for many
years. Formerly they were purposely set or allowed as a volume reducing
procedure. Currently fire prevention is practiced and great efforts are made
to extinguish fires that do occur.
With more dirt available and cell construction pro-
gressing, fires are being controlled better than before, but any fire is un-
acceptable. A proper sanitary landfill does not burn at any time. Any small
fires are quickly extinguished by smothering or by digging out and smother-
ing. Under present conditions when a difficult fire breaks out in deep layers
of waste, it may burn for weeks before burning itself out or finally being
smothered by the operators. Fighting such a fire takes all of the resources
of the operating forces and equipment, leaving the disposal operation unattend-
ed. With adequate compaction and cover, fires are no problem.
From an economical standpoint, this site should have
been closed when the supply of cover dirt was exhausted. Trucking in large
quantities of cover dirt is expensive but under the circumstances is necessary.
It is recommended that no attempt should be made to acquire new landfill sites
until this site is converted to a model sanitary landfill. The reasoning and
necessary improvements, together with financing, are explained in following
paragraphs concerning interim improvements.
Once the new landfill sites are acquired and operating,
this site should be closed. Until that time the site must be continued in opera-
tion.
9. Other Disposal Operations. Three small disposal
sites are operated by the towns of Carlisle, Norwalk and Pleasant Hill. They
are operated primarily for the use of local residents. Norwalk and Carlisle
permit local private haulers to dump domestic waste collected from their com-
munities. Pleasant Hill does not.
Pleasant Hill provides an attendant on duty full time;
Carlisle and Norwalk provide an attendant part time. Carlisle and Pleasant
Hill allow burning of combustible waste as a method of volume reduction.
Cover is applied approximately once weekly. Norwalk buries all waste, except
tree wastes, in an open trench which is covered about once a month. No burn-
ing is allowed except for tree wastes which are burned on an irregular basis.
4-14
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All three of these operations, although providing a
convenience to the local residents, are uneconomical. In addition, they all
have various objectionable features which would be expensive to correct. When
new facilities become available, these three operations should be discontinued.
The other communities in the Study Area do not have
disposal facilities. They require the private collectors to remove the col-
lected waste from the community. Usually the material is delivered to the
Des Moines Site No. 1.
E. Interim Improvements to Existing Operation. Improvements
should be made in most of the existing disposal operations as soon as possible.
Although it is recommended that all of the present facilities be closed when the
new sanitary landfill sites are in operation, the interim period should be used
to improve the image of landfill sites. In the previous paragraphs deficiencies
in the existing sites were discussed. These deficiencies should be improved
if financially possible. Specifically, in the case of the two Des Moines Sites,
the operations should be converted to model sanitary landfills.
To operate a proper and economical sanitary landfill, many
techniques are required. Many of these same techniques will be required for
interim improvements to existing sites. Some of the comments in this
section are not practical for a small landfill which will be closed, but the larg-
est single factor is an awareness of what is going on and what can be done,
Municipal officials can learn much by simply taking a close and critical look
at their facilities.
It will be necessary to establish new sanitary landfill sites in
locations where none are presently located. This will require public approval.
At the present time, if any one of the cities or counties involved in this study
were to attempt to establish a major sanitary landfill operation near a
developed area, there would be immediate public resistance. This has been
experienced in other communities, but need not be the case. A course
of action is recommended which, if followed, will substantially improve pub-
lic acceptance .
Public reaction to sanitary landfills is generally negative. This
is a response resulting from the operation of undesirable public and private
dumps. The City of Des Moines and other communities in the Study Area
have been guilty of operating undesirable dumps for many years.
Sanitary landfills are not dumps. There is no burning, smoke,
litter, odors, vermin, unsightliness, mud or dust. They are regulated and
orderly, efficient, inexpensive and nuisance free.
It is believed that the public can be convinced only by demon-
strating to them, in their own community, what a proper facility is like,
and then making.them aware of the accomplishment. The Des Moines Dump
Site No. 1 is better than it was just a few years ago.
4-15
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Burning as a volume reduction method has been discontin-
ued and efforts are being made to extinguish fires which occur accidently.
The site has become better organized and more covering is being done as
more cover material is brought to the site. The site is being graded and po-
liced for litter from time to time. All of these improvements are a credit
to the current management.
It will be necessary to continue these improvements until
the complete operation has been elevated to a model sanitary landfill. No
attempt should be made to acquire new land until this has been accomplished.
Once this improvement has been made every effort should be made to acquaint
the public with the new operation.
Normally the first item to be accomplished would be to master
plan the ultimate use of the site so required operational development could
be coordinated with future uses. The 1980 Comprehensive Plan provides for
this site to be part of the open space and recreation land along both rivers
through the City. Current improvements such as fences, roads, drainage
and landscaping should be laid out now for this ultimate development.
The interim use of land not currently being filled should be
directed toward the public open space use to show that sanitary landfill opera-
tions can be conducted close to public uses without being a nuisance.
The interim improvements necessary to bring the operation
up to sanitary landfill standards are as follows:
1. Continue efforts to prevent fires and promptly ex-
tinguish all which start. Fires cause smoke and are visibly bad publicity in
addition to the air pollution and odor.
Z. Consolidate all filling operations into one location
•with one active face.
3. Instruct the operators and foremen in the proper
operation of a sanitary landfill site. This will include the necessary philosophy,
objectives and goals; compaction techniques; cell construction; covering;
grading; placement of drift fences for litter control; fire fighting with cover
dirt and digging out fires; and traffic controls.
4. Build up the roads to improve their ability to sup-
port traffic in wet weather. The roads have been improved but they are in
need of additional improvement. Dirt and gravel brought to the site can be
used to raise the subgrade to an elevation which will permit drainage of the
surface. The site has a motor grader and dozers to do this work. The road
grade can be increased a small amount at a time and allow the site traffic to
do the compaction.
4-16
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5. Establish a traffic pattern and erect signs and fences
to guide the traffic to the place of deposit being used at the time.
6. Fine grade the area along both sides of the perimeter
fence and maintain the grass in an attractive manner.
7. Police the area around the perimeter fence and en-
trance roads for litter. This should be done daily. Refuse truck crews fi-
nishing early can be used for this purpose until the routes have been redesigned
to eliminate slack time.
8. Provide and use portable fencing (snow drift fencing will
be adequate) to control blowing litter in the active disposal area and at other
places where necessary. Pick up litter on the site on a continuous basis.
9. Eliminate and prohibit salvage operations. A properly
operated site has very little material accessible to salvagers and salvagers
cause a congestion problem. It is also dangerous to have salvagers working
in the vicinity of a landfill machine. On occasion salvagers have been accused
of starting fires to burn away paper to expose salvable metals. If salvaging is
eliminated this problem is avoided.
10. Spray for insect control and provide poison for rodent
control.
11. Establish and enforce complete and meaningful poli-
cies and regulations concerning sanitary landfill operation. Make these poli-
cies and regulations available and known to the operators and to the public.
12. Erect attractive and informative signs at the site
to inform the public and users of necessary regulations and instructions.
13. Make provisions to pave the two entrance roads to
the landfill site from SE 14th Street and from Maury Street. Provide modern
street lighting along these entrance streets.
14. Clear, grub and fine grade all of the lots owned by
the City in the vicinity of the site. These lots are now overgrown with weeds.
Once the lots are fine graded plant them to grass and maintain the appearance.
15. Enforce all zoning and building ordinances and regu-
lations in the vicinity of the site.
16. Provide adequate cover material to cover the active
face every day. At least 500 cubic yards of cover will be required each day.
It will be necessary to acquire suitable loading and hauling equipment.
4-17
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17. Provide more suitable and reliable landfill equip-
ment.
18. As areas are covered they should be graded to drain
and planted with grass and kept mowed.
Many of these items have been started and some have had
a degree of success. Also, many of the details such as quantities of cover
material, crucks and dozers have been discussed in detail with Des Moines
officials together with detailed procedures and cost estimates. Most of the
items have appeared in interim reports and suggestions as this study pro-
gre ssed.
This work must be accomplished now. The site is not econ-
omical to operate. It must be improved, publicized and used as an example
of what can be done so new sites can be acquired. Then this site should be
closed for use as a disposal facility.
F. Financing Interim Improvements. Currently, the landfill
operations of the various communities are financed by budgeted amounts
raised through taxes, with the exception of the Polk County site which is sup-
ported by Township Tax Levy along with fees, and the Euclid Avenue site
which is supported entirely by fees.
It is not practical for the various small communities to charge
fees because the policing and collection cost could exceed the revenue. In-
terim improvements to the several small sites should be simple, relatively
inexpensive and paid for out of operating funds.
The larger sites, specifically Des Moines Sites Nos. 1 and 2
which receive and handle more than 3/4 of the total Study Area waste will re-
quire more funds than are currently being spent. Although the Des Moines landfill
budget for 1967 was in excess of $150, 000, this amount will be inadequate to make
the necessary improvements and operate the improved facilities, which are
estimated to cost approximately $245, 000 per year plus the purchase of $190, 000
worth of new equipment.
It is believed that a substantial portion of these funds should
be raised through a fee system whereby the users of the facility pay the cost
of operation. The details of the cost of operation and equipment and the fee
system and expected revenue are explained in a letter to the City of Des Moines,
Director of Public Works dated January 25, 1968, and is included in the Appen-
dix as Exhibit 4-1.
It is recommended that a simple fee system be installed for
the interim period of time the sites are to be operated. This system charges
$1.00 per vehicle for pickup trucks and light trailers; and $2. 00 per vehicle
for other trucks. No charge would be made for automobiles or City vehicles.
However, it is recommended that Des Moines continues to budget an amount
4-18
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equal to the fee the City trucks would have paid if fees were collected on these
vehicles. Under the fee system proposed revenue in the amount of $Z87, 000
can be expected.
Since the City of De s Moines maintains an "open door" policy,
allowing anyone to use their facilities, the charge of a small fee as proposed
is reasonable.
The concept of charging a small fee has been discussed with
the private haulers in the Study Area. Although this exact fee was not contem-
plated at the time, the general attitude was one of acceptance. They expressed
a desire for road and cover improvements which would reduce their costs of
repair to tires and power trains.
It is believed the fee will be accepted by the majority of the
users without protest when they see that this fee will continue the present im-
provements and extend them to higher standards.
G. Selecting General Areas for New Sanitary Landfill Sites.
1. General. Two general areas have been selected for
sanitary landfill sites as shown in Figure 4-1. One site would be located in
each general area. The northeast site would serve that area which is north
and east of the time line, and the southwest site would serve that area which is
south and west of the time line.
The general areas were selected using the following
criteria:
area.
a.
Minimum driving time from centroid to site
sanitary landfilling.
b. Present zoning and land use compatible with
c. Accessible to major highways or arterial streets.
d. Economical land cost.
e. General topography, including terrain, ground
cover, drainage, ground water and major subsurface conditions.
f.
Suitable earth cover available.
2. jlentroids. Centroids were computed to determine the
theoretical locations from which the waste was being originated. These cen-
troids were computed for all of the waste being sent to each site which was sur-
veyed. They are also shown in Figure 4-1 and labeled "Waste Centroid -
(name of site) Disposal Site". A centroid was also computed for
4-19
453-956 O - 72 - 11
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all of the wastes from the entire Study Area. This c entroid is shown on the fig-
ure and labeled "Waste Centroid Total Study Area". The ideal location for a
single disposal activity would be at this Total Study Area Centroid. It represents
the theoretical origin of all the waste. This location would represent the single
point which would have the least amount of hauling.
There is no land within several miles of this centroid
that would be suitable for a single large sanitary landfill site, therefore it was neces-
sary to consider multiple sites. (See Exhibit 4-2 for cost discussion).
An attempt was made to find two general locations for
potential site development which would best meet the criteria and be on opposite
sides of the community with the centroid located at a point between them. The
two recommended general areas meet the criteriavery well. They are on oppos-
ite sides of the Study Area with the centroid on a line almost exactly halfway
between them.
The time line as drawn on Figure 4- 1 represents a
locus of points, each of which is approximately equal in driving time to the two
recommended general areas. The time line divided the Study Area into two areas,
one is the area which would contribute waste to the northeast site, and the other
is the area which would contribute waste to the southwest site. Computer Pro-
gram "G" was used to determine the centroids of the waste originating in each
of the two areas. The "Waste Centroid New Southwest Area" and "The Waste
Centroid New Northeast Area" are shown in Figure 4-1. These centroids re-
present the theoretical center of waste origin that would contribute waste to the
southwest and northeast sites respectively.
3. Driving Time. The driving time from the southwest
centroid of waste in the new southwest area, to the recommended southwest gener-
al area where a site is to be located, is approximately 13. 6 minutes. This is
based on 45 mph on the Interstate and 20 mph on city streets. The time was fig-
ured from the centroid at 37th Street and Bolton Drive, to the intersection of 1-35
and Iowa 90.
The driving time from the northeast centroid at East
14th and Osceola Streets, to the recommended northeast general area at the inter-
section of 1-80 and U.S. 65, is 10.5 minutes.
These very favorable driving times are the result of
locating the recommended general site areas in places which have ready access
to the Interstate Highway System.
4. Zoning and Land Use. The northeast general area is
presently used for agricultural purposes. This land is located in an unincorporated
area under the zoning jurisdiction of Polk County. A substantial portion of the
area is zoned agricultural and has provision for establishing a sanitary landfill
under a permit provision.
4-20
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o
a
o
(D
FIGURE: 4—1
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The southwest general area is partly in Dallas County and
partly within the City of West Des Moines. That part in Dallas County is zoned
Residential, although the land is used primarily for agricultural purposes. That
part within the City of West Des Moines should be reviewed with City officials
due to pending zoning changes. The current use is primarily agricultural.
5. Acce ssibility. Both recommended general site areas
have excellent access from 1-80, 1-35 and I-Z35 as well as U. S. and Iowa high-
ways and major arterial streets. With major thoroughfares to carry the traffic,
the problem of increased heavy traffic over local streets is avoided. Some im-
provement in local roads in the immediate vicinity of the sites will probably be
required; however, in these two areas such improvement will be minimal.
6. Land Cost. In both areas, the land is now used for agri-
cultural purposes and is not highly developed. The northeast area is generally
flat land now planted to row crops. Land in this area is estimated to cost approxi-
mately $1, ZOO per acre. The southwest area is generally hilly with some land in
row crops, some in pasture and some in rough brush and thicket. The gully land
which would be suitable for sanitary landfilling is estimated to cost approximate-
ly $1,000 per acre.
Using these estimated prices for land, when estimating
the cost of sanitary landfilling, the land cost is less than 10% of the total cost.
These costs appear economical.
7. General Topography. The northeast general area is rela-
tively flat farm land. There appears to be no serious problems with drainage of
the general terrain, ground cover or ground water. There are no subsurface
conditions known to be detrimental. This general area could be used for multi-
ple layers of refuse filled in the usual manner.
The southwest general area has rough land which could be
filled using gully techniques. The surface drainage would require relocation;
however, this could be accomplished at minimal expense during the initial devel-
opment of a site and while removing earth for cover. There are no problems
anticipated from ground water or ground cover. There are no subsurface con-
ditions known to be detrimental.
/
8. Earth for Cover Material. Both general areas have abund-
ant supplies of earth which would be suitable for cover materials.
9- Capacity Requirements for Each Disposal Site. The time
line described in preceding paragraph 2 divided the Study Area into two general
areas. Comp uter'Program "G" determined the amount of waste which would
originate in each of the two areas. The northeast area would receive approxi-
mately 62% of the waste. The southwest area would receive 38% of the waste.
Because the growth of the area and the future waste quantities will be develop-
ing generally westward, these percentages were adjusted to 60% and 40% respect-
ively.
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The 1968 through 1987 accumulation of waste is estimated
to be 15,000 acre ft. Therefore, the following capacities are required:
NE Site 15, 000 x . 60 = 9, 000 ac. ft.
SW Site 15, 000 x . 40 = 6, 000 ac. ft.
H. Selecting Specific Parcels of Land. This report does not show
specific parcels of land, located in the recommended general areas, which are
recommended for development into sanitary landfill sites. Specific parcels
should be selected after detailed site selection analyses based on the following
items:.
1. Amount of land required.
2. Availability of cover material.
3. Cost of the land.
4. Subsurface conditions, including type of soil and ground
water.
5. Cost of initial development.
6. Cost of annual development.
7. Cost of operation.
8. Potential use or sale of filled land.
There are specific sites which have been considered, that can
be properly developed and used. These specific sites were used as a basis to
show how a flat site could be developed in the northeast general area and how a
gully site could be developed in the southwest general area. The two sites des-
cribed in the next sections of this report are included as illustrations of devel-
opment and to determine the amount of land required and the cost estimates,
used for preliminary planning. It is not intended that the final development of
either site be exactly as shown. The details of development will depend on engi-
neering designs for the specific parcels of land actually purchased after detailed
site evaluations.
I. Development of a Site in the Northeast Area.
1. General. The land in this area is generally flat and there-
fore suitable for development using multiple layers of waste. The cover mater-
ial can be taken from the land in a cut and cover type operation. The site must
accommodate 9, 000 acre ft. of waste during the 20-year period from 1968 through
1987.
2. Amount of Land Required. The amount of land required
depends on the amount of waste and the depth of fill, plus additional land for
roads, setback, sight screening and landscaping and operational spaces. It is
assumed that the land purchases will require purchasing full parcels of land
which would be not less than 40 acre increments. Therefore, in addition to the
land actually needed, it may be necessary to purchase additional land to take
an even parcel.
4-22
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This type of site can be developed for multiple layers.
We have selected a total depth of fill of 50 feet consisting of 5 lifts of 10 feet
each. It is estimated that 20% additional land will be required for roads, set-
back, sight screening, etc. The total land purchase is estimated as follows:
a. Land for filling
9,000ac. ft. -5- 50 ft. = 180 acres
b. Roads, etc.
180 acres x 20% 36
Subtotal 216
c. Additional land for even parcel
purchases 24
Total Land to be Purchased 240 acres
Based on a purchase of 240 acres, we have assumed the
land would consist of a quarter-section (160 acres), plus a half of a quarter-
section (80 acres); measuring one-half mile (2,640 ft.), by three-quarters of
a mile (3, 960 ft. ).
3. Initial Development of the Site. Before any operations
can commence, the site must be designed and developed. We would recommend
that the initial development be done by a contractor following plans and specifi-
cations prepared by an engineer. The initial development would consist of the
following items:
a. Scale house, gate house and scale equipment.
b. Equipment and personnel facilities.
c. Agency headquarters.
d. Water supply and mains.
e. Fencing
f. Roads and drainage.
g. Grading and landscaping.
h. Yard and street lighting.
In the cost estimates which follow,, the initial site devel-
opment is estimated to cost approximately $200, 000. Some of the initial site
development is shown in Figure 4-2, which illustrates the development of a flat
site into a sanitary landfill.
The items listed above are self-explanatory or discussed
elsewhere except for the grading and landscaping. One major grading item would
be the construction of a sight screening berm around that part of the site which
will be filled first. As filling progresses, the berm will be extended. The
4-23
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purpose of the berm is to completely screen the site operations from view
from the road. It will also act as a windbreak to aid litter control. The berm
should be planted to grass or some suitable ground cover. The berm and the
area between the berm and the property line should be landscaped with trees
and shrubs. The construction of the berm and the landscaping are necessary
parts of the entire operation and add substantially to the public acceptance.
The expense of these items are very small when compared to the operational
cost.
4. Operation of the Site. The amount of earth needed for
daily cover, final cover, berms and roads is approximately 4 1/2 million cubic
yards over a period of 20 years. Taking this earth from the fillable area re-
quires a cut of approximately 13. 4'.
Starting at Elevation -13. 4 ft. and adding 10 ft. of waste
and 8-inches of cover for each lift, the approximate levels for the fills would be
as follows:
Lift Bottom Fill
First -13.4 +10.7
Second - 2. 7 +10. 7
Third + 8. 0 +10. 7
Fourth +18. 7 +10. 7
Fifth +29.4 +10.6
Final Cover +40. 0 + 3. 0 -
The landfilling can start at Elevation -13. 4 in the area
where the initial development earth was excavated. As this space is being filled,
the cover dirt required is excavated from the immediately adjacent space, thus
creating additional area with a bottom elevation of - 13. 4.
The filling should be from the bottom of the lift with trucks
dumping at the foot of the active face and the dozer compacting and pushing the
waste up from the bottom. This bottom dumping has advantages over dumping at
the top and pushing the waste down the slope.
The active face should be between 150 and 200 feet wide
depending on the traffic. As the first lift is filled over an area approximately
200' wide x 1,000' long, the top surface of the first lift becomes available for
the second lift. When this first 200' x 1, 000' pass of the first lift is complete,
the second lift should start. The second lift can be filled, to an elevation of +8. 0'.
It starts at the same place the first one started and can cover the same 200' x
1, 000' except for maneuvering room needed around the edges. By the time the
second lift is complete to the extent it has covered as much of the first lift as
possible, the filling can return to the -13. 4' elevation in the space excavated
while the first and second lifts were being filled. This second pass on the level
of the first lift will widen the top surface of the first lift to the extent that addi-
tional area is available for the second pass of the second lift. Once this second
pass of the second lift is completed, the third lift can be started on top of the
second lift.
4-24
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The process of building lift upon lift and then returning to
the bottom to widen the base is necessary to build up to the top of the fifth lift as
soon as possible. It is at this +40'. 0' level that the final earth cover is placed.
This cover material amounts to approximately 1/4 of the total earth moved.
Therefore, it is desirable to reach the top as soon as possible so excavated ma-
terial from the -13.4' level can be brought directly to the +40. 0 level without re-
handling.
In Figure 4-2, the site operation is shown. The first view
shows the site after the first few months of operation. The first pass of the first
lift has been completed. The first pass of the second lift is in progress while
additional cut is being made on the -13. 4' level.
The second view shows the site after approximately one
year. The +40. 0' level has been reached. The operation from this stage until
the completion of this area consists of widening the base and adding additional
lifts on top until the area has all been filled to elevation +40. 0'.
The third view shows this area filled and the operation
moved to the adjacent area on the opposite side of the fill road.
The fill road leading from the scale and entrance area to
the fill area would be built in the initial development to an elevation of +10. 0.
As the third lift was placed, the road would be raised to reach the top of the
third lift at elevation +18. 7' for access to this level, when the fourth lift was
started. It would be raised again during the fourth lift and again during the fifth
and last lift.
J. Development of a Site in the Southwest Area.
1. General. The land in this area is hilly containing several
large gullies which could be developed using typical gully filling methods. Cover
material can be taken from the gully bottom and sides in a combination cut and
cover and borrow type operation. The site must accommodate 6,000 acre feet
of waste during the ZO-year period from 1968 through 1987.
2. Amount of Land Required. The amount of land required
depends on the depth of fill plus additional land for roads, setback, drainage,
sight screening and landscaping and operational space. Since the gullies are
irregular in shape it will probably be necessary to purchase the parcels of land
which surround and contain the gullies. The depth of fill varies from one gully
to another and from point to point within a gully. The volume that can be filled
is determined by selecting a specific gully, laying out the final top surface con-
tours and computing the volume between the original ground and the final cover.
The site illustrated in Figure 4-3 shows the necessary
land which is approximately 282 acres. The principle gully on the site is shown
filled to a top elevation of 990 ft. , and can contain 4, 000 acre feet. The auxili-
ary gully above and to the right is also filled to a top elevation of 990 ft. and can
4-25
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SPECIAL
AUTOMOBILE
AREA
I ENTRANCE 8 WEIGHING
* FACILITIES
PUBLIC
ENTRANCE
a EXIT
GARAGE a
EQUIPMENT
PA€lmS
SERVICE
ENTRANCE'
a EXIT
INITIAL DEVELOPMENT
NORTH
SCALE l"=500'
-------
FINAL DEVELOPMENT
SOUTHWEST
SANITARY LANDFILL SITE
FIGURE
-------
contain an additional 2, 000 acre feet.
3. Initial Development of the Site. Before any operation tan
commence, the site must be designed and developed. The procedure and items
of work would be similar to that described for the site in the northeast area,
except the details of the design would be completely different. The major site
screening could be accomplished by landscaping. During the initial years while
the landscaping was maturing, the operation would be hidden from view deep in
the gully. An initial berm would be constructed across the lower end of the site
and landscaped, but this berm would be limited in length and height.
Although the berm construction would be less than that
shown for the northeast site, the temporary road construction would be more
extensive. Roads would be required for access from the permanent perimeter
road to the active face of the fill.
Details of the. site development were not worked out to the
extent shown for the northeast site. The costs were assumed to be similar and
the same $200,000 estimate was used for initial development of this site.
4. Operation of the Site. The earth for cover can be taken
from the bottom and side walls of the gull\ as the work progresses. The amount
of cut must be calculated to cover the many lifts which will be made plus the final
cover on top of the completed fill. The calculation must be based on the final
design which will vary depending on which specific site is selected.
The great depth of fil] in this type of site has a distinct
advantage over a site filled to a 10 to 15 foot depth which is commonly used, due to
a reduced volume of required final cover material. The final cover is recommend-
ed to be approximately 31/2 feet thick compared to a daily cover of approximate-
ly 8-inches thick. If a single lift were used it would require a. final cover. If
two lifts were used the final cover requirement would be cut in half. Similarly,
each additional lift reduces the percentage of final cover per unit volume filled.
This is also true for the five lift flat site proposed for the: northeast area.
Filling should start at the upper end of the gully and be
worked down some convenient distance. The second lift should be filled oil the
top of the first, and the third on top of the second in a manner similar to the fill-
ing of the flat site for the northeast area. Filling from the upper end of the gully
allows surface water in the form of rain or snow to drain away from the fill.
This is a very important feature which must be observed. When necessary, the
filling can resume at the first level and be continued for another distance to give
working and maneuvering room on the second and higher lifts. The process of
extending the lowest lifts and then extending each higher lift should be repeated
until the final contour or top of the completed fill is reached.
Once the principle gully is filled in, the operation can be
moved to the auxiliary gully and started over again.
4-26
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K. Sanitary Landfill Cost Estimates.
1. General. The itemized estimated cost for the two recom-
mended sanitary landfills are presented in Table 4-4. The following paragraphs
will discuss and, where necessary, explain each major line item presented for
consideration. Estimated costs are based on current prices and wages. It will
be necessary to refine these costs prior to actual implementation of the oper-
ations.
These estimated costs are based on each site being open
for operation from 0800 to 1900 hours, 6 days per week, Holidays excepted.
They are also based on filling the 1968 estimated quantities.
2. Basic Cost Data.
a. Land Costs. These costs were developed from
the estimated land requirements for the two landfill sites, as explained in the
preceding Sections I and J. Information from the County Assessor's Office
and from real estate brokers and informal investigation of land prices for the
selected general areas provided the estimated land costs.
b. Initial Site Development. These estimated costs
were developed by analyzing the required physical developments for placing the
northeast site in readiness for operation.
c. Annual Site Maintenance and Development. This
estimated cost is the expected general maintenance necessary for the upkeep
of the two sites and required annual expansion development.
d. Equipment Purchase. This estimated cost is for
the equipment recommended for the operation of the two sites. The required
equipment is itemized in the following line Item #5 and is a one-time expendi-
ture for the initial procurement of equipment. The Agency may wish to lease
existing equipment from a member community and use that equipment until it
has been fully amortized. The funds included in this line item would be held
until the equipment was amortized, and then used to purchase the initial replace-
ment equipment which would not be leased but would be owned by the Agency.
e. Equipment Maintenance, Operation and Amorti-
zation Costs. These estimated costs are for the maintenance, operation (ex-
cluding labor) and amortization of the required equipment for the two sites.
These costs are based on the following operating conditions:
(1) Each site works one bulldozer, 15 hrs. per
day or 4,600 hrs. per year. Two dozers,
plus one spare required, or 3,060 hrs. per
year per dozer.
(2) One self-loading scraper, and one road
grader, shared by both sites, 2,080 hours
per unit per year.
(3) One tractor/mower, and one truck, shared
by both sites.
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Table 4-4
1.
5.
_Cost Estimates For Sanitary Landfill Operations
Basic Cost Data
Land Costs
Northeast Site:
Southwest Site:
240 acres @ $1,200/acre = $288,000
282 acres @ $1,000/acre = 282,OOP
Total Estimated Land Costs $570, OOP
Initial Site Development (one site example)
Scale House $ 30,OOP
Two Scales @ $9, 000 18,000
Scale Equipment 10.0PO
Equipment Shed and Personnel Facilities 30,PPP
Watermains, 8" x 3000' 15,000
Perimeter Fencing, 10,000' 5,000
Entrance Fencing, 1000' 5,000
On Site Gravel Surfacing for Roads 18,000
Grading 35,000
Landscaping 14,000
Yard Lighting 5, 000
Apron Pavement 5,000
Miscellaneous 10, OOP
Total Site Development Cost, One Site $200, 000
Total Site Development Cost, Two Sites $400,000
Annual Maintenance and Site Development
2 Sites @ $20,000 ea. $ 40,OOP
Equipment Purchase
Cost of New Equipment (one time purchase only) $240, 000
Equipment Maintenance, Operation and Amortization
3 Bulldozers
1 Scraper
1 Grader
1 Truck
1 Tractor/mower
2 Pick-up Trucks
1 Misc. Equip.
Total Equip. (2) Sites
hr s/yr.
Each
3, 060
2, 080
2,080
1, 040
1, 040
hr s. /yr .
Total
9, 180
2, 080
2, 080
1, 040
1, 040
Rate/hr.
$ 15. 00
10. 00
5. 00
4. PP
2. 00
2, P80
17,500
Cost/ yr.
$137,700
20,800
10,400
4, 160
2, 080
2, OOP
5, PPP
$182,14P
(Table continued next page)
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Table 4-4 (Continued)
6. Labor
hrs./yr.
Total Rate/hr. Cost/yr.
Equipment Operators 17,500 $4.00 $ 70,000
Laborers, 4 per site 8,320 3.40 28,300
Foreman, 1 per site 4,160 4.25 17,700
Gate Keeper/Fee Collector
(16 man hrs. /day/site) 9, 800 3. 75 37, OOP
Total Labor, (2) Sites 39,780 $153, OOP
7. Metro Agency Headquarters and Repair Shop
Office $ 36,000
Repair Shed 50,000
Repair Equipment 60, OOP
$146,PPP
5P% Each for Collection and Disposal 73, POO
8. Misc. Expense, Overhead and Contingency 100,000
Included in the equipment hourly rate for this line
item is the estimated amortization of each piece of equipment. This amortiza-
tion will in effect prepay the cost of replacement by establishing an equipment
escrow fund to be used with trade-in equipment for necessary replacements.
f. Labor. These are the estimated costs for per-
sonnel to operate the required equipment and facilities of the two sites, ex-
clusive of the management categories in the Metro Agency. Wage rates in-
clude benefit requirements.
g. Agency Headquarters and Repair Facilities.
These costs are for the facilities and equipment necessary to operate the
Agency's management and administration offices and repair shops for both the
disposal and collection services. The actual estimated cost has been arbitrari-
ly prorated on a basis of 50% for each service.
h. Miscellaneous Expense, Overhead and Contingen-
cies. This is the estimated cost for miscellaneous expenses and contingencies,
as well as general operating overhead for the Agency services, including wages
for management and administration of the Agency.
4-29
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3. Annual Costs, 2 Sanitary Landfills. The following annual
cost calculations are based on the itemized requirements presented in Table 4-4,
in which some expenditures are one-time initial development expenses and the
remaining are annual reoccurring expenses. The one-time expenses are as-
sumed to be financed through the sale of bonds, repayable at 4. 5% interest over
20 years.
a. One-time expenses @ 4. 5% x 20 years (. 0768)
Land Costs $ 570, 000
Initial Site Development 400,000
Equipment Purchases 240,000
Metro Headquarters & 73, OOP
Shops
Sub-Total $1,283,000 @ .0768 =$ 98,500
b. Reoccurring Annual Expenses
Site Maintenance & $ 40,000
Development
Equipment M&O and 182,140
Amortization
Labor 153,000
Misc. , Overhead and 100, OOP
Contingency
Sub-Total $475, 140
c. Total Annual Costs for 2 Sites
(Based on 1968 max. quantities) $573, 640
4. Fixed and Variable Annual Costs. The following is a
breakdown of cost into fixed and variable annual costs for the two sites, and will
be used in the development of Unit and Total operation costs.
Fixed Costs Variable Costs
Bond Amortization, one-
time expenses $ 98,500
Annual Development $ 40,000
Equipment Costs 7,000 175,140
Labor Costs 83,,000 70,000
Miscellaneous 50,000 50,000
Totals $238,500 + $335,140 = $573,, 640
4-30
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5. Quantity Calculations for Unit and Total Costs. The fol-
calculations were established from information in Table 2-10, and will be used
in developing the unit and total operation costs for the 2 sanitary landfill sites.
Ac. Ft. Tons
a. 1st year, 1968 quantities 717 655,000
b. 20th year, 1987 quantities 874 741,000
c. Average year
1987 estimated accumulation 15,694 13,607,000
Less 1967 estimated quantity - 630 562, OOP
1968 to 1987 accumulated 15,064 13,045,000
Average year (•>• 20 years) 753 652,000
d. 1st year, 1968, reduced volume
When estimating the total tonnage for 1968, it was
assumed that much of the on site disposal will be discontinued and sent to the pub-
lic sanitary landfill sites. This assumption will be reasonably correct if exten-
sive anti-air pollution and open burning ordinances are enacted and vigorously
enforced.
With the exception of the Euclid Avenue private
dump site and the Polk County landfill site, the public sites are operated free of
charge to the users. Once a fee is charged, some of the material being delivered
to these sites will be diverted to other disposal. This is particularly true of the
inert materials, such as dirt, sand, rock and broken pavement, which can be used
to fill low land in town without creating a nuisance. The extent of this diversion
cannot be accurately predicted, but some provisions must be made to account for
this material when predicting revenue requirements. It has been assumed that
this diverted material and the amount of on site disposal which will temporarily
continue as on site disposal will amount to 25% of the total. Therefore , for fee
purposes, assume the material delivered to the sanitary landfill sites will be 75%
of the estimated total.
1968 estimated quantity 717 ac. ft. 655, 000 tons
1968 reduced quantity @ . 75 538 ac. ft. 490, 000 tons
6. Unit and Total Costs of Operation for 2 Sites. The
following calculations establish unit and total costs of operation for the 2 sites.
Part of the cost of operation of the disposal facilities
are fixed costs which do not vary with the amount of material disposed of. The
remainder of the costs are directly proportional to the amount of material. Be-
cause of these fixed and variable costs, the unit cost of operation will vary with
the amount of material.
4-31
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a. First Year, 1968, 717 acre feet or 655, 000 tons.
Fixed Costs $238, 500 + 7 17 ac. ft. = $333/ac. ft.
Variable Costs $335, 140 + 717-ac. ft. = $467/ac. ft.
Total $573,640 $800/ac.ft.
$573,640 + 655,000 tons = $. 88/ton
b. First year, 1968, reduced quantity, 538 acre feet
or 490, 000 tons.
Fixed Costs $238, 500
Variable Costs 538 ac. ft. x $467 $251, 246
$489,746
$489,746 + 538 ac. ft. = $910/ac. ft.
$489, 746 -t- 490, 000 tons = $1.00/ton
c. Average year, 753 acre feet or 652,000 tons.
Fixed Costs $238,500
Variable Costs 753 ac. ft. x $467 $351,700
$590,200
$590,200 + 753 ac. ft. = $784/ac. ft. ; or $. 49/CY
$590,200 + 652,000 tons = $.91/ton
d. 20th year, 1987, 874 acre feet or 741, 000 tons.
Fixed Costs $238, 500
Variable Costs 874 ac. ft. x $467 $408, 200
$646,700
$646,700 + 874 ac. ft. = $740/ac. ft.
$646,700 + 741,000 tons = $.87/ton
7. Bond Debt Service Reserve. Bond buyers insist the rev-
enue be higher than the theoretical amount required to meet debt service pay-
ments. This extra revenue is known as debt service reserve or premium. In
this estimate it is based on 40% of the debt service and is equal to . 40 x $98, 500,
of$39i400. It is not actually a cost but is a necessary item in calculating rev-
enue.
4-32
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The debt service reserve is a fixed amount, but the unit
cost of this reserve varies with the total tonnage as follows:
1st year, 1968, $39,400 + 655,000 tons - $.06/ton
1st year, 1968,
Reduced Volume, $39, 400 + 490, 000 tons = $.08/ton
Average year, $39, 400 •*• 652, 000 tons = $. 06/ton
20th yeai , 1987, $39, 400 -s- 741, 000 tons = $.05/ton
8. Summation of Unit Costs and Required Revenue
Operation Debt Service Total Unit Cost
Cost $/Ton Reserve Cost $/Ton
$/Ton
(1) 1968 $ . 88 + $.06 = $ . 94
(2) 1968, Reduced
Volume $1.00 + $.08 = $1.08
(3) Average Year $ .91 + $.06 = $ . 97
(4) 1987 $ . 87 + $.05 = $ . 92
L. Rates for Recommended Disposal Fees. The disposal fee recom-
mended i'oi financing purposes, is based on $1. 08 per ton which is the highest
unit cost established in the preceding calculations. This unit cost does not repre-
sent the highest dollar requirement because it is based on reduced tonnage. If
tne reduced tonnage is realized, the dollar requirement will be adequate. If the
actual tonnage received proves to be higher than the amount used to calculate the
unit cost, the total dollar requirement will be greater than that which is predicted
In this case, the increased tonnage will produce more than enough revenue to pay
the cost of disposing the additional material, since the unit cost was based on the
more expensive operation, due to the reduced tonnage situation.
We recommend the disposal fee rate be set at $1. 10 per ton, with
a $.75 minimum disposal charge.
M. Use of Completed Sanitary Landfill Sites. Once completely filled,
sanitary landfill sites can be used for a variety of purposes. It is necessar>, ow-
ever to understand the nature of a fill site when planning other uses. The sites
will settle over a period of time therefore improvements built upon solid waste
fills must be either compatible with settlement or the foundations must penetrate
the fill into firm ground below the fill. Many successful structures have been
built on fills using light buildings and floating foundations. Also many r.eavy
structures have been built or piles penetrating through the fill.
The sites will produce some gasses, normally methane, due to the
biological decomposition of the organic material in the fill. These gasses are toxic
and explosive when confined under the proper conditions. Many successful
structures and other improvements have been constructed where the gas problem
has been properly handled.
4-33
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Generally completed landfills have been used for open space
purposes such as parks and recreation areas.
Normal improvements associated with these uses such as pave-
ments, shelter houses, etc, can be designed for landfills.
The amount of settlement and the amount of gas produced, and
the time functions of each vary with many factors. The density of the fill, the
type and quantity of cover material, moisture, total depth of fill, materials in
the fill, and others all play a role. For rough planning purposes it can be as-
sumed that a fill will settle approximately 20% over a period of several years.
In the case of the Northeast site where the total depth of filled
material is 50 feet, the first lift will probably be reduced to 80% of its former
depth by the time the top lift is placed due to the weight of the superimposed
upper lifts, Additional settlement will take place slowly due to the great depth
and lack of moisture from the top. (assuming of course there is no contact
with ground water). Each additional lift will also be consolidated by the lift
above except for the top lift which will only receive a final cover of 3 feet of
earth.
The elevations of the five lifts shown in Paragraph 1,4 are simpli-
fied for illustration.
The settlement of the lower lifts will change the actual elevations
to some extent. Part of the settlement is anticipated in the fact that 63,4 feet of
material (50 feet of waste and 13,4 feet of dirt) is placed in 56,4 feet of depth
(-13,4 to +43.0) except for the material used for berms and roads. The actual
final elevation at the time of placing the final cover would probably be less than
43.0 feet. This elevation within a period of years could be expected to drop sev-
eral more feet.
Planners in the community are cautioned to take special notice of
the rate of completion of finished filled land, When a landfill is conducted using
only one or two lifts the rate of completion of filled land is many times greater
than the landfills contemplated in this report, where many lifts are contem-
plated. They may wish to concentrate efforts on the land not being filled for
the first 10 years, and then devote their efforts toward use of completed por-
tions .
In the case of the Southwest site the Primary Area shown in Fig-
ure 4-3 will be worked for years before completion; however at the same time
the Auxiliary Area will remain idle and could be placed into some interim use.
At both sites the unused land could be leased for agricultural
purposes until needed for filling.
4-34
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PART FIVE - THE METROPOLITAN SOLID WASTE AGENCY
A. General. The formation of a single municipal type organization,
responsible for the collection and disposal of all solid waste generated within
the Des Moines Metropolitan Area has been proposed in previous sections of this
report. A summary of the advantages to the total community in the operation of
such an organization are as follows:
1. Adequate and uniform collection service provided throughout the
area at the most economical costs.
2. More efficient use of manpower and equipment due to consolida-
tion of collection routes on an area basis rather than following city
limits.
3. The smaller communities will enjoy collection and disposal ser-
vices at a unit cost comparable to the larger cities.
4. Concentration of all disposal operations in a few economical and
properly located and operated sites; rather than many expensive
and poorly run sites scattered throughout the area.
5. Relieve local authorities of the administrative and operational
problems of running collection and disposal departments.
The collection and disposal of solid waste is not the single problem
of any one city, town or county in the area. Sanitation problems, ground water
contamination, air pollution, and wasteful uses of land, result from improper
solid waste practices. As the population continues to increase, the need for pro-
fessionally managed collection and disposal facilities will become more acute.
It is proposed that the establishment of a Metropolitan Solid Waste Agency ap-
pears to be the most efficient and practical approach to this problem.
B. Legal Basis. Legal authority for the establishment of such an
Agency presently exists under the provision of Chapter 28E, Code of Iowa, 1966.
This Chapter passed by the 61st General Assembly of Iowa in 1965, provides
in part that units of Federal, State or local government, may exercise jointly
any powers, privileges or authority, that they are authorized to exercise in-
dependently. This statute is commonly referred to as the Intergovernmental
Cooperation Act.
Included in Appendix Exhibit 5-1, is a proposed form of an
intergovernmental agreement applicable to all cities, towns and counties in the
Study Area. Adoption of this agreement by two or more (preferably all) of the
governing bodies within the area is the first step toward the comprehensive area
wide approach to the handling of solid waste. The agreement has been prepared
in accordance with the provisions of Chapter 28E, and has been reviewed and
approved by local municipal legal authorities.
5-1
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C. Formation of the Agency. It is recommended that the Agency be
established as an independent entity, governed by a policy making Board, com-
prised of elected representatives of each member city, town or county. Each
member jurisdiction would have one representative on the Board, and each rep-
resentative would have one vote for each 50, 000 of population or fraction thereof,
residing in the area he represents. Establishment of the Board on this basis
would have the following advantages:
1. The Board would function with real authority since indi-
vidual members would represent and speak directly for
their respective city and town councils, and county boards
of supervisors.
2. Feedback to the member jurisdictions would be accomplished
by having direct representation on the Board.
3. Limiting each jurisdiction to one member on the Board
would prevent the membership of the Board from be-
coming too large to function effectively as a policy making
body.
4. Weighting the vote of each member on a population basis
would provide a fair method of recognizing the population
differences between the member jurisdictions.
The length of the term of membership on the Board should be de-
termined when the By-Laws for the Board are initially drawn up. Provisions
should be made to assure continuity on the Board, taking into account the vari-
ations in the ordinances of the member jurisdictions regarding length of office of
elected officials.
The broad purposes of the Agency as outlined in the proposed
"Articles of Agreement" are as follows:
1. To provide for the efficient and economical, collection
and disposal of all solid waste produced or generated
within the metropolitan area of Des Moines.
2. To promote through good practice, effective means for
reducing or preventing the contamination and pollution
of the land, water and air resources of the metropolitan
area.
3. To provide for a self-supporting, independent organization,
equipped with sufficient manpower and facilities to ade-
quately perform Items 1 and 2.
5-2
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A proposed organizational structure for the Agency is shown on
Figure 5-1. This chart indicates the flow of authority from the elected munici-
pal and county officials, to the Agency Board and the director. The operations
of the Agency would be divided into three main functions, as shown on the chart;
refuse collection, refuse disposal and administrative services.
The director would be responsible for the administration and
operation of the Agency, under policies set up and adopted by the Board. This
is a top level position requiring experience in public works management, engi-
neering and public financing.
The assistant director shall have qualifications similar to that of
the director. The superintendents in charge of collection and disposal should
have public works backgrounds or considerable experience in refuse collection
and disposal or similar qualifying experience.
Professional staff services such as legal, engineering, planning
and research could be provided by full time employees or by consultants. This
determination should be made by the Board and the director in the development
of the work program for the Agency. Possibly the Agency may be able to utilize
personnel employed by member communities for these specialized services.
It is believed that the majority of jobs in the collection and dis-
posal divisions can be filled by absorbing qualified personnel from existing
municipal refuse agencies.
In-service training programs should be established, particularly in the refuse
disposal division, to adequately train personnel at the two landfill sites in the
methods and procedures recommended in Part Four of this report.
In addition, provisions should be made to guarantee that transfer-
ring employees retain their basic job benefits, including seniority, vacation ac-
cruals and retirement credits.
D. Operation of the Agency. It is proposed that the Agency be operated
in a manner similar to a public utility, responsible to the Agency Board rather
than any one municipality or county. It should have authority to operate independ-
ently of city limits or county lines provided the city or county is an Agency mem-
ber.
The Agency will be able to function most efficiently and economic-
ally if all 14 governmental jurisdictions in the metropolitan area are participating
members. However, this is not an absolute necessity. It is possible, econ-
omically, for any two of the communities to form the Agency, although the effect
of this would be to leave many of the area problems unsolved
5-:
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Basically, the Agency will provide two types of service for the
area; refuse disposal and refuse collection, as follows:
1. Refuse disposal - Two Agency owned or leased, managed
and operated landfill sites will be open to anyone wishing to dispose of solid
waste. The description and location and operation of the landfill sites have pre-
viously been discussed in Part Four. Each vehicle other than automobiles will
be charged a disposal fee, based upon the weight of the refuse.
It is recommended that private individuals using automo-
biles be allowed to use the landfill sites without charge. A proposed disposal
ordinance has been prepared and is included in Appendix Exhibit 5-2.
Z, Refuse Collection - The Agency will contract with each
member jurisdiction to provide refuse collection service. The contract will in-
clude the method of determining the actual cost, the type of service, frequency
of service and other related items. It is recommended that each member juris-
diction adopt a refuse collection ordinance, consistent with collection require-
ments of the Agency. A proposed collection ordinance has been prepared and is
included in Appendix Exhibit 5-3. The description of the recommended refuse
collection service is described in Part Three.
Initially, a problem will exist in providing collection ser-
vice in the unincorporated areas of the counties. Statutory authority for county
refuse collection is presently not available. It is recommended that county offic-
ials request such legislation during the 1969 session of the legislature. Until such
legislation is available, it is believed that collection service can be provided to
most unincorporated areas on a voluntary basis.
E. Financing
1. Revenue Bonds, Initial capital investments and annual
operating revenue will be required for both collection and disposal service. It
is recommended that the initial capital investments be financed through revenue
bonds. The required annual operating revenue and debt service on the bonds can
be raised from fees charged by the Agency for collection and disposal services
rendered to the member communities,
The details of the financing should be worked out by fi-
nancial consultants at the proper time. In this section, the revenue require-
ments and the fees necessary to meet these requirements are summarized.
Bond authorities informally doubt that the Agency, created
under the provisions of Chapter Z8E, Code of Iowa 1966, would have the specific
authority to issue bonds of any kind. Apparently this matter has not been neces-
sary to date nor tested in any court. It would be beneficial if this authority were
added to the provisions of Chapter Z8E. Without such specific, authority, potential
bond buyers might be reluctant to purchase the bonds. As an alternative it has
been suggested that a declaratory judgment be requested from an appropriate
5-4
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court stating that the authority to issue bonds is implied in the language of the
Chapter and that an agency organized under the Chapter has such authority.
The decision on this matter should be made by competent legal counsel. In
any case, specific legislation should be requested granting this authority to
the Agency.
In the event the Agency cannot issue revenue bonds in
the name of the Agency, it is recommended that one of the member munici-
palities issue the bonds under its own authority. The capital investments made
with the bond proceeds would be held in the name of the municipality, at least
until the bonds were paid. Meanwhile, land, improvements and equipment
purchased with the bond proceeds would be leased to the Agency. The lease
agreement and a pledge of the required funds from fees would be used as secur-
ity to back the revenue bonds.
Revenue bonds do not effect the general bonding power of the
municipality. They are not included in statuatory debt limits nor are they an
obligation of the municipality. Revenue bonds are secured only by the revenue
produced by the activity for which they were issued.
Whether the Agency has the right of eminent domain is a
question similar to that concerning the authority to issue revenue bonds. If it
is determined the Agency does not have such power, then the municipality is-
suing the revenue bonds should also exercise its right of eminent domain to
acquire any land needed for Agency activities. Authority does exist for the
Agency to acquire land and buildings by negotiation and purchase.
2. Revenue Required. The amount of revenue required for
annual operating expense and debt service is summarized in Table 5-1.
The cost estimates from which this table was prepared are
explained in Parts Three and Four.
A total bond issue in the amount of $1, 727,000 is the amount
of one time capital investment anticipated. The total revenue requirement, in-
cluding debt service, debt service reserve and annual expenses is estimated to
be $1 , 374, 846 per year.
3, Income
a. General. It will be necessary to provide income
which is equal to the required revenue shown in Table 5-1.
It is recommended that the collection system and
the disposal system be considered as separate operations and that income for
each be adequate to produce the revenue required for its operation.
5-5
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Table 5-1
Revenue Requirements and Income for Agency Collection and Disposal
of Solid Waste
A. REVENUE REQUIREMENTS
1. Collection Annual
a. Bond Debt Service $444,000 x .0768 $ 34,100
b. Annual Operating Expense 786,000
Total Cost, Collection Service $ 820, 100
c. Debt Service Reserve $34, 100 x .40 13, 600
Total Collection Revenue Required $ 833, 700
2. Disposal
a. Bond Debt Service $1, 283, 000 x .0768 $ 98,500
b. Annual Operating Expense (Includes disposal 391,246
Cost of Agency Collected Refuse)
Total Cost Disposal Service $ 489, 746
c. Debt Service Reserve $98, 500 x .40 39,400
Total Disposal Revenue Required $ 529, 106
3. Summary of Revenue Requirements
a. Total Bonds $1,727,000
b. Total Debt Service $ 132,600
c. Total Annual Operating Exp. 1, 177, 246
d. Total Debt Service Reserve 53, OOP
Total Revenue Required for Collection
and Disposal $1,362,846
Note: Bonds 20 yrs. 4 1/2%, (.0768)
B. INCOME
1. Total Collection Fees
87,300 dwelling units @ 10.80/yr. $ 943,000
Less disposal cost included in
collection fees, (66, 600 tons
@ 1.10/ton) - 73, 300
Net Collection Revenue 869, 700
2. Net Disposal Fees (Includes disposal
fees for collected refuse) 490,000 tons 539,000
@ $1.10/ton
NET INCOME TO AGENCY $1, 408, 700
5-6
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b. Disposal Fees. The disposal operation should be
completely self-supporting by charging fees from the users of the facilities. Sev-
eral systems for charging of fees are possible. These are explained in the Ap-
pendix in Exhibit 5-4. The recommended system is based on the weight of ma-
terial brought to the site in each vehicle.
In Part Four - Disposal of Solid Waste, the cost
of disposal has been determined for several conditions involving various quanti-
ties of waste material. The unit costs for the several conditions, and the total
cost of operation based on the quantities and appropriate unit costs are included.
The highest unit cost, which must be used to set fees, is $1.08 per ton based on
490, 000 tons per year. It is recommended that a fee be set equal to $1. 10 per
ton which will produce an income of $539, 000/year.
c. Collection Fee. The collection system should be
completely self-supporting by charging member municipalities a fee for the col-
lection service provided. This fee would be based on the number of dwelling
units within the municipality receiving collection service. The source of funds
from which the municipality would pay the Agency would be from either budgeted
amounts raised through a regular tax levy, or from fees charged by the munici-
pality to the dwellings receiving this service. In the event a municipality would
elect to charge fees they could arrange with the Agency to bill the dwellings
directly for and on behalf of the municipality. The cost of this billing could be
included in a slightly higher fee or paid by the municipality.
In Table 5-1, the required revenue for collection is
shown as $833, 700. The revenue required to dispose of the collected refuse
is $73, 300, for a total revenue requirement of $907, 000. This figure represents
the revenue that must be collected in fees from the users of the collection ser-
vice. Based upon a population of 288,000 and an average figure for the Study
Area of 3. 2 people per dwelling unit, the unit cost is equal to $3. 15 per capita
per year or $10. 08 per dwelling unit per year. It is recommended that a fee be
charged equal to $0. 90 per month per dwelling unit. This would result in an
annual cost of $10.80 per dwelling unit.
5-7
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F. Interim Activities. While the Agency is being formed an inter-
im director should be appointed to guide the formation of the Agency, the pre-
liminary work on financing and legislative problems, and the selection and hir-
ing of a qualified permanent director. It would be desirable if the permanent
director could be hired and the Agency brought into being within a few months.
The Agency has many activities which must be accomplished prior
to starting collection or disposal of solid waste. Once the director is hired the
following items should be accomplished:
1. Review the report recommendations and prepare a detailed
statement of policy. There are several recommendations which the member
municipalities may wish to modify and several which are stated in general terms,
which must be defined in light of the particular needs of the members.
2. Review the report and make adjustments where necessary
after it has been determined which municipalities have agreed to join the Agency.
3. With the aid of fiscal and legal consultants prepare the
financing and legislative procedures, and pursue these matters at the proper
time.
4. Conduct sanitary landfill site investigations and select the
specific parcels of land to purchase.
5. Design the initial development of the sites which have been
selected.
6, Assist the member communities in the interim improve-
ments in their collection and disposal practice.
7. Arrange lease agreements with those members who have
equipment which will be leased to the Agency.
8. Determine the total equipment needs of the Agency as
formed. These needs will include leased equipment and new equipment. Pre-
pare cost estimates for the purchase of equipment not being leased and cost
estimates and schedules for initial purchase of equipment as leased equipment
is replaced with Agency owned equipment.
9. Plan for the staffing of the Agency with regard for the
employees now working in collection and disposal divisions in the member com-
munities, and the recruitment and hiring of new personnel.
10. Prepare standard operating procedures, job descriptions,
operating instructions and policies of the Agency which are pertinent to the op-
eration of the collection and disposal services.
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11. Plan the new collection routes as required to meet the
exact needs of the Agency.
12. Determine the new revenue requirements and projected
income based on actual conditions which will prevail at the time of operation.
13. Prepare all of the details for the orderly commencement
of operation.
14. Sell the revenue bonds, purchase the land and equipment,
construct the necessary improvements, acquire the personnel.
15. Place the Agency into operation.
Part of the interim activities will require the assistance
of specialists and consultants. Where there are member municipalities which
have the required specialists on their staff and their duties will permit, these
staff members may be used to advantage. It will probably be necessary to hire
bond consultants in connection with the issuance of revenue bonds and engineering
consultants to assist in the details of site selection and initial site development.
To finance the interim activities, it is recommended that
an initial budget based upon per capita membership be paid to the Agency by the
joining members.
This budget should include funds for the support of the
director and liis staff, required consultants and the initial operating funds for
the collection and disposal activities.
G. Alternate Collection by Contract. A municipal type collection
system has inherent cost advantages over a system operated by a private con-
tractor. These cost advantages are due to the fact that the municipal system
does not pay taxes and does not earn a profit. Nevertheless, a private contrac-
tor can compete with a municipal system if the latter does not manage an ef-
ficient system.
To insure that the Agency collection system is operated in an
efficient and economical manner, the Agency should take bids from private
contractors after a period of approximately three years. The Agency's cost
record should be its bid. If a contractor is willing to provide the same ser-
vice at a cost which is less than the established cost record of the Agency,
then a contract should be awarded. Bids should be taken on carefully pre-
pared specifications, setting forth all of the conditions for operation, equip-
ment, and other items to completely describe the service to be rendered.
The time of contract should be for 5 years or longer.
We do not recommend taking bids for the first few years. There
are potential savings to be enjoyed and the Agency, if properly managed, should
be able to operate in a manner to provide adequate and economical service.
5-9
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H. FEDERAL PARTICIPATION
The preparation of this study and report was financially assisted by a Federal Grant
from the Solid Waste Program, USPHS, Department of Health, Education and
Welfare. This grant representing 2/3 of the total cost of the study, was author-
ized under the provisions of Title II of Public Law 89-272, known as the Solid
Waste Disposal Act.
This Act, in addition to financing studies of this type, also has grant provisions
for the construction of new or unique solid waste facilities; and research projects
and analysis directed toward improved or new methods in collection and disposal
practices.
A major amendment to this Act was proposed in both Houses of Congress in 1967,
but not acted upon. It is quite likely that this amendment will be considered
sometime during 1968. If adopted this amendment would provide up to 75%
of the cost, for metropolitan areas, of constructing solid waste disposal facilities,
including completion and improvement of existing facilities.
Passage of this amendment should be carefully watched by the Agency Board and
the director. A sizeable grant toward constructing and equiping the landfill
sites would reduce considerably the size of the revenue bond issue required
for the Agency's initial operation. This would, in turn, also reduce the dis-
posal fees that would be required.
It is not suggested that any of the improvements or recommendations made in this
report be delayed pending the possibility of additional Federal Funds. It has been
demonstrated that these improvements can be made and service improved at a
reasonable cost to the community. However, any additional method of reducing
these costs should not be overlooked as they might become available.
5-10
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APPENDIX
453-956 O - 72 - 13
-------
-------
HENNINGSON, DURHAM & RICHARDSON Anoelattd with
Engineers • Designers • Planners • Consultants \ / -H o I
3555 FA*NAM STREET V^SIM &
OMAHA, NEIRASKA MI3I i^"', £ ""
<*m 34t-«l5
11 J**-*5"
Weit Dct Moinct. Iowa 50245
(515) 255-2551
HENNINGSON, DURHAM &• RICHARDSON
VEENSTRA &- KIMM
Re' METROPOLITAN DES MOINES
SOLID WASTE STUDY #3170104
ADDRESS REPLY TO:
November 1, 1967
U. S. Public Health Service
Solid Waste Program
2ZZ East Central Parkway
Cincinnati, Ohio 45202
Attention: Mr. John Ruf, Project Officer
Dear Mr. Ruf:
You indicated some concern about the fact we were estimating the additional
amount of solid waste we would receive from domestic sources when, and if,
the Metro Area converted from their present practice of collecting only do-
mestic kitchen solid waste to collecting all domestic solid waste.
We explained that it was extremely difficult to collect good data due to the
confused route situation as it exists today, and the fact that the magnitude of
the amount of material to be estimated was indeed small considering the total
amount of solid waste of the community.
We could not give you facts and figures concerning the exact amounts because
our very extensive data was not out of the computers. We now have the first
run and I can give you preliminary figures which indicate the magnitude of
the quantities. These are compared to Omaha and Dubuque quantities which
represent communities not unlike Des Moines.
In Omaha, with a population of approximately 360, 000 people, approximately
7,200 CY per week of refuse is collected. This collection is made once a
week and includes all domestic solid waste.
In Dubuque, with a population of 61,200 people, approximately 1,435 CY per
week of refuse is collected. This collection is made twice a week and includes
all domestic solid waste. If twice a week collection accounts for 1:20 times
the once a week collection, they would have 1,435-f- 1.20 or 1,195 CY per week
on a once a week basis.
The average for once a week collection for Omaha and Dubuque is . 0199CY/cap/
week.
EX H I BIT 2-1
-------
U.S. Public Health Service
Solid Waste Program
222 East Central Parkway
Cincinnati, Ohio 45202
November 1, 1967
Page Two
7,200 + 360,000 = .020
1, 119 ^ 61,200 = .0195
8,395 421,200 = .0199
In Des Moines the land fill surveillances indicated that they \vere collecting
2,472 CY/ week. This collection is on a once a week basis and officially in-
cludes only domestic kitchen waste. On a per capita basis this amounts to
. 0117cu. yds. per capita per week (2,472 t- 210,000)
On the basis of the average of Omaha and Dubuque at . 0199 CY per cap/week
and a population of 210, 000 people, Des Moines would be collecting approxi-
mately 4, 100 CY/week if collecting all domestic solid waste. Since they are
now collecting 2,472 CY the additional amount to be collected should be
approximately 1,628, an additional 40%.
We know that the citizens include more than just kitchen waste in their waste
containers and we know that the collection crews will collect more than just
kitchen waste from many of the citizens.
The population of Des Moines is approximately 3/4 of the population of the study
area. If the Des Moines rate of 2,472 CY per week was increased to represent
the total study population this rate would become 3,330 cu. yds. per
week (2,472 x 4/3).
The total study area solid waste measured at the time of the surveillance, on
an as received basis, was 47, 346 CY pei week. The domestic solid waste
represents only 7. 0% of the total (3, 330 + 47, 346).
If all domestic solid waste was collected in lieu of just kitchen waste, the
percentage domestic to total would be 11. 5% (4, 100x4/3*- 47, 346).
One can readily see that the amount of domestic solid waste in a community's
total solid waste program represents a relatively small part of the total. Of
11. 5% approximately 60% of the domestic was measured and 40% was estimated.
We believe that our basis of estimating what the domestic quantity would be if
the city collected all domestic waste is reasonably accurate and certainly adequate
considering that it represents only about 4.6% of the total.
The explanation is of course a simplification of a rather complicated matter.
EXH I BIT 2- Id
-------
U. S. Public Health Service
Solid Waste Program
222 East Central Parkway
Cincinnati, Ohio 45202
November 1, 1967
Page Three
We could go into the seasonally adjusted and compaction adjusted quantities
and the on-site disposal factors which we will use in the report but at this
time I do not believe it is necessary to the points we wish to make.
We have divided the City of Des Moines into three approximately equal
collection districts. The First District in the northwest part of the City has
been divided into what we consider efficient refuse collection routes. We pro-
pose to have the City follow our methods and standards and lay out the remain-
ing two districts.
We recommend they start with our first district and change from their pre-
sent routes in this area to the routes we have laid out. As soon as the routes
have been in service for a reasonable period of time and have been adjusted as
required, we recommend that they select several routes from which data will
be collected. They will have dwelling counts, distances, volumes and weights
to work with. After a few months we recommend they convert one or more
routes to collection of all domestic solid waste as opposed to just domestic
kitchen waste and collect data on this new basis. They would continue to collect
data on the remaining selected routes which would be collecting only kitchen
waste.
As soon as the first district has been established and functioning we recommend
they change over to the new routes in the new second district and then in the
new third district. After each of these districts becomes established they
should collect data from these districts as they would in the first district.
Following this program they will have good data representing a good period of
time from a known route distance and from a known number of dwelling units.
They will have data showing the difference in refuse collected from routes which
formally collected only kitchen waste and later collected all domestic solid
waste. They will have parallel data on routes in the same area collecting all
domestic solid waste and just kitchen waste.
This data can be used in planning the conversion of all routes to the collection
of all domestic solid waste.
This data can be used in planning the conversion of all routes to the collection
of all domestic solid waste.
Under the present operation the routes are very confused. They do not represent
equal days work. Each week may represent a different amount of collection be-
cause some crews cover their routes more or less than once a week and many
EXH I BIT 2- I b
-------
U.S. Public Health Service
Solid Waste Program
222 East Central Parkway
Cincinnati, Ohio 45202
November 1, 1967
Page Four
times crews are diverted to other areas as necessary or expedient to handle
crisis situations. We do not have any way to evaluate what quantity of re-
fuse is collected from what area on any reasonably accurate continuing basis.
The new routes representing a days work to be accomplished each day, no more
and no less on a consistent basis should give the necessary regularity for good
data.
In summary we believe we are doing a professional job on this project. Where
there is an opportunity to get good data we are expending maximum efforts to
do so. In the case of the data being gathered at the point of disposal we have
gone into this important aspect many times more thoroughly than I have ever
seen done before. We think this is the key to the problem and are going to get
everything available. In the case of the additional amount of refuse which
would be collected if the community started collecting all domestic solid waste
as opposed to their present practice of collecting only kitchen waste, we believe
our estimates are entirely adequate and at least as good as any data could be
under the present conditions. We believe that because of the fact that the additional
quantities are so small compared to the entire picture nothing could be gained by
attempting this data gathering now. This data will eventually be available when
the present conditions of confusion are reduced and proper routes established.
The first of the computer runs have been made. These represent programs
AB&C of a total program which will go to program H. We do not measure
our work by the pound or by the ream but it might be interesting to note that
computer runs AB&C produced 336 pages of type out. Part of this data will be
reproduced in the report but we will have a full copy for your use if you would
like to have it.
Yours very truly,
HENNINGSON, DURHAM & RICHARDSON
VEENSTRA & KIMM
R. J. Peterson, P.E,
Project Engineer
RJP:ea
cc: Mr. Johnson
EXH TBIT 2 - i c
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Exhibit 2-2
Elm Tree Statistical Calculations
GENERAL
A. Areas
1. City of Des Moines
a. Square Miles 65. 6
b. Acres 41,000
2. Study Area
a. Square Miles 430
b. Acres 279,000
B. Mean Tree Measurements (Average of 350
samples at 100% density)
1. Definitions
a. 100% Density - Total estimated
material with same density as the log
or trunk.
b. Wet Weight - Green log or foliage
material.
c. Dry Weight - Oven dried material,
0% moisture.
2. Diameter @ 18 inches from ground - Inches 34
3. Overall Height - Feet 40
4. Log or Bole (limb free trunk) volumes
a. Length @ 50% of overall height - feet 20
b. Diameter, 34" taper to 16" in
20' - inches 25
c. Volume cubic feet (cubic yards) 68 (2. 5)
5. Crown (upper foliage and limbs) absolute
volumes (equal to Bole)
a. Volume cubic feet (cubic yards) 68 (2. 5)
6. Total Volume
a. Cubic feet (cubic yards) 136 (5.0)
EXHIBIT 2-2
-------
Exhibit 2-2 - Continued
7. Weights
a. Pounds per cubic feet, wet 54. 3
b. Pounds per cubic feet, dry 34
c. Bole, wet (54. 3 x 68) - pounds (tons) 3,572 (1.8)
d. Crown, wet (54. 3 x 68) - pounds (tons) 3,572 (1.8)
e. Total tree, wet (54. 3 x 136) -
pounds (tons) 7,385 (3.7)
f. Total tree, dry (34 x 136) -
pounds (tons) 4,624 (2.3)
g. Ash residue (2. 2% of dry wt. ) - pounds 102
II NUMBER OF TREES (estimated)
A. City of Des Moines
1. Original Total, 1959 260,000
2. Acre Density 6. 3
3. Disease History
Public Trees
Year Total Diseased % Loss
1959 65,000 325 0.50
I960 64,675 807 1.24
1961 63, 868 1, 182 1. 85
1962 62,686 2,445 3.90
1963 60,241 2,710 4.50
1964 57,331 4,247 7.40
1965 53,289 2,241 4.60
1966 50,843 3,475 6.80
1967 47,378 7,730 16.30
Year Total Diseased % Loss
1959 195,000 975 0.50
I960 194,025 2,401 1.24
1961 191,619 3,540 1.85
1962 188,079 7,335 3. 90
1963 180,744 8, 138 4. 50
1964 172,606 12,773 7.40
1965 159,833 7,352 4.60
1966 153,481 25,000 16.40
1967 127,481 19,600 15.40
EXHIBIT 2-2o
-------
Exhibit 2-2 - Continued
Year Total Diseased % Loss
1959 260, 000 1, 300 0. 50
I960 258,700 3,213 1.Z4
1961 255, 487 4, 7Z2 1. 84
1962 250,765 9.780 3.90
1963 240, 985 10, 848 4. 35
1964 230, 137 17, 020 7. 40
1965 213, 117 9, 793 4. 60
1966 203,324 28,465 14.00
1967 174,859 27,330 15.62
a. Public Tree Totals, Jan. 1968
(1) Detected Diseased 25,352
(2) Doun and Disposed, 100% 25,352
(3) Remaining Standing 39,648
b. Private Tree Totals, Jan. 1968
(1)
(2)
(3)
Total
(1)
(2)
Detected Diseased
Down and Disposed, 90%
Remaining Standing
City of Des Moines
Detected Diseased
Down and Disposed, 93% of
87, 119
78, 407
116, 593
112, 000
Detected 104, 000
(3) Remaining Standing, 60% of
Original 156, 000
d. Trees Saved, 1 . 3% of R emaining 2,000
e. Total Disposal Problem Trees,
City of Des Moines 154,000
B. Metropolitan Area (excluding Des Moines)
1. Original Dibposal Problem Trees, 1959 91,000
2. Detected, Down and Disposed, 1959-1968 9,000
a. Avg. for Period - Trees per Yr. 1, 125
3. Remaining Standing Disposal Problem Trees 82, 000
C. Total Metropolitan Area Disposal Problem Trees 236,000
EXHIBIT 2-2b
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Exhibit 2-2- Continued
III DISPOSAL METHODS
A. Commercial, Chip Processing for Pulp Use
1. Bole or Log
a. Total Weight, tons (1. 8 x 236, 000) 425,000
b. Waste, bark, @ 25% of total weight, 106,000
tons
c. Useful Product, tons 319,000
2. Crown, Foliage and Limbs
a. Total Weight, tons (1. 8 x 236, 000) 425,000
b. Waste, foliage, limbs, bark, @ 40% 170,000
of total wt.
c. Useful product, tons 255,000
3. Total Trees
a. Total Weight, tons 850,000
b. Waste, tons 276, 000
c. Total Useful Product, tons 574,000
4. Economics
a. Cost of Machinery, M&O, Labor, $2,296,000
amortized at $4 . 00 /ton
b. Waste Disposal @ $3. 00 /ton $ 276,000
c. RR Freight, 200 miles or les s , $1,722,000
@ $3.00/ton
d. Preparation sub-total $4,294,000
e. Contingency, 10% $ 429,000
f. Total Preparation Processing $4,723,000
Costs
g. Current FOB Mill Price for $4,592.000
Chips @ $8. 00/ton
h. Cost of Tree Disposal by $ 131,000
Commercial Endeavor
EXHIBIT 2-2C
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Exhibit 2-3
Packing House Waste Calculations
The individual volumes of kill from the several packers is considered confiden-
tial. However, it can be said that the total kill in June 1967 was approximately
1, 870 head of beef per day. Some plans for expansion of the industry were di-
vulged during our interviews, however, one packing company has closed their
plant since the field information was gathered and the writing of this report.
Because there are so many factors which could affect the future quantities which
cannot be predicted with any real assurance, we have made a reasonable esti-
mate of the kill at this time, and waste products which can be expected from
these kills, and then projected the increase in this materal at the same rate as
the commercial and industrial growth.
The annual quantity of pen sweepings and paunch manure expected for the pre-
sent is as follows:
Kill:
1, 500 head per day, 5. 5 days for
52 weeks = 430,000 head per year
Paunch Manure Waste:
Weight @ 48 pounds per head 10, 300 tons/year
Volume @ 77 cf per head 12, 200 CY per year
Pen Sweeping Waste:
Weight at 10% of Paunch Manure 1, 030 tons per year
Volume at 20% of Paunch Manure 2,440 CY per year
Tons/year CY/year
Paunch Manure 10,300 12,300
Pen Sweepings 1,030 2,440
Total 11, 300 14,700
To adjust the volume for compaction, assume the following compaction factors:
Paunch Manure @. 8x12, 200 = 9,860
Pan Sweepings @ . 6 x 2,400 = 1, 440
Total 11,200 cubic yards per
year (compacted in place)
EXHIBIT 2-3
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Exhibit 2-4
Sewage Solids Calculations
1. Grease: Scum and grease skimmings will be burned at the plant in
incineration equipment currently being installed. No scum and grease
skimmings are included in these quantities.
2. Grit: 35 CY per day based on 50 MGD Future Flow.
1967 Quantity:
30 MGD -r 50 MGD x 35 = 21 CY per day = 7,665 CY per year
@ 2, 430 Ibs/CY = 18, 600, 000 Ibs/yr = 9, 300 tons/yr. wet
9, 300 tons/yr @ . 50 solids = 4, 650 tons/yr. DWS
3. Solids: 41, 000 Ibs/day DWS 1965, 56, 000 Ibs/day DWS 1985;
plus 6. 0% CaO + 1.5% FeCl3
1967 Quantity:
41, 000 + ( (2 + 20) x (56, 000 - 41, 000) ) = 42, 500 Ibs/day,
plus 7. 5% chemical = 42, 500 + 3, 200 = 45, 700 Ibs/day =
16, 700, 000 Ibs/yr = 8, 350 tons/yr. DWS
Cake @ 75% moisture - 33,400 tons/yr. wet.
4. Screenings: Non-grindable removed at screens: 500 Ibs/day wet
500 x 365 = 182,000 Ibs/yr = 91 tons/yr. wet.
91 tons/yr. @ . 30% solids - 27 tons/yr. DWS
5. Total Des Moines Plant Sewage Solids 1967 to Sanitary Landfill:
Weight tons/yr.
Grease & Scum
Grit
Solids
Screenings
Totals
Total Study Area
Dry
-0-
4,650
8, 350
27
13,000
Sewage Solids to
Wet
-0-
9, 300
33,400
91
43, 000
Sanitary Landfill
CY/yr.
-0-
7,670
38, 200
150
46,000
1967:
6.
1967 Population Study Area 289, 000
1967 Des Moines Plant Population 240, 000
Factor: 289,000*240,000=1.20
Volume: 46, 000 CY x 1. 20 = 55, 000 CY/yr.
Weight: 43, 000 Tons x 1. 20 = 51, 500 tons/yr, wet
13, 000 Tons x 1. 20 = 15, 600 tons/yr, DWS
EXHIBIT 2-«+
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Exhibit 2-4 -_ Continued
7. 1987 Study Area Sewage Solids to Sanitary Landfill:
Volume: 55, 000 x (56, 000 + 41, 000) = 75, 000 CY/yr.
Weight: 51, 500 x (56, 000 + 41, 000) = 71, 000 tons/yr, wet
15, 600 x (56, 000 +41, 000) =21, 000 tons/yr, DWS
EXHIBIT 2-4-0
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Exhibit 2-5
Estimated Cost of Disposal of Sewage Solids
By Incineration in a Sewage Solids Incinerator
1. Tons per day, DWS1967, (15, 600 TPY -f 365=) 42.7
This is the 1967 present load and includes grit, screenings,
sewage solids , but no grease.
2. Tons per day, DWS 1987, (21, 000 TPY -r 365 = ) 57. 5
Same as item 1 above, but increased by factor account for
20 years growth to 1987, (156, 000 x (56, 000 -r 41, 000) =
21, 000 TPY). This is the 1987 quantity upon which the
capacity is based.
3. Cost per ton, rated capacity $21, 000
This cost is based on reported construction cost of typical
facilities, plus 8. 65% for City administration, legal and
engineering, and plus 10% contingency.
4. First Cost (line 2 x line 3) $1,210,000
5. Amortization (line 4 x . 0768) $ 93,000
Annual payments, based on 20 year bonds @ 4. 5%,
factor of . 0768.
6. Tons per year, DWS average day, average year 18, 300
Average year - average of line 1 + line 2 times 365 days
(42.7 + 57.5) - 2 = 50. 1 x 365 =
7. Maintenance and Operation line 6 x $4. 00 per ton) $ 73, 000
The $4. 00 per ton rate includes fuel, power, main-
tenance, water, and operational labor.
8. First Cost Amortization plus Maintenance and Operation $ 166,200
(line 7 + line 8)
This is the annual cost up to, but not including, the
hauling and landfilling of the ash.
9 Inert percent in Solids 25%
This is the percent of ash expected when the sewage solids
and grit and screenings are burned.
EXHIBIT S-S
-------
Exhibit 2-5 - Continued
10. Tons per year, DWS ash, average day, average year 4,575
(line 9 x line 6)
11. Tons per year, wet ash, average day, average year 6,500
Wet ash @ 70% solids in line 10.
12. Cost of hauling ($1. 82 per ton x line 11) $11,800
The cost of hauling and landfilling the residue is the same
as hauling and filling non-incinerated sewage solids at a
public sanitary landfill site with other solid waste of the
community
13. Total cost per average year (line 8 + line 12) $178,000
14. Cost per ton, average DWS (line 13 + line 6) $ 9- 74
15. Cost per ton, average wet basis (line 13 + 6 1, 200 TPY) $ 2. 91
EXHIBIT 2-5o
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Exhibit 2-6
Development of Unit Weights
General
Unit weights are intended to be typical of materials as delivered to the dis-
posal site. Often loads are mixed, \\ith two or more materials in each
load. Seldom was there only one material on a load, although some material
classes were meant to include a variety of materials peculiar to the origin or
type of was te.
It was often impractical to define all components of a load. For instance, a load
of glass from a bottling company also contained quantities of paper, cardboard,
wood, tin cans, etc. Therefore, loads were estimated as to the volume of major
components.
Weighing of waste as delivered to the ^ite was done on a limited scale in order
to obtain unit weight data on materials for which there was no other information
and to substantiate data available from other sources. An attempt was made to
select loads for weighing which were typical for that class of material, although
some weighing of mixed loads was required Mixed loads were analyzed on the
basis of component parts to check the total weight of the load against known or
assumed average weights of two or inure components.
Many material densities were assigned based upon specific knowledge of the
materials involved, while other-, are a matter of general knowledge. Past ex-
perience has provided knowledge of such items as paunch manure, sewage solids,
rubber manufacturing wastes, cinders, fly ash, cement manufacturing wastes,
and metal scrap. The bulk density ol various materials are general knowledge,
including dirt, gravel, rock, oils,, grain, fruits and vegetables, furniture and
applianc e s.
W eighing Program
Three approaches to weighing of refuse materials were taken. These are dis-
cussed in the following paragraphs.
City Collected Wastes - Approximately 90% of domestic kitchen wastes
disposed of at the Des Moines No. 1 site was collected in packer trucks. As
a part of the refuse collection study, a record was made of the volume and weight
of refuse collected by Des Moines City packer trucks for at least one day on each
of the 27 routes. From this data, unit weights were determined for 20 loads and
averaged to determine a unit weight for material class 40, "Garbage and Kitchen
Wastes, Domestic". The average density was 495 Ib/CY, with a maximum of
640 Ib/CY and a minimum of 375 Ib/CY. A value of 500 Ib/CY was used for
computation purposes for this material class for wastes collected in packer
trucks. This value was also assigned to material class 41 "Garbage and Kitch-
en Wastes, Commercial".
EXHIBIT 2-6
-------
Exhibit 2-6 Continued
Weighing of Private Haulers - Private refuse haulers cooperated in ob-
taining unit weight data for several classes of material, particularly the "paper
and cardboard" and "mixed trash and refuse" classes. There is considerable
variation in the unit weight of these wastes depending upon whether they are col-
lected in packer trucks or open body trucks, trailers or pickups. Private haul-
ers weighed several loads of both packer and non-packer type trucks and re-
corded the corresponding volumes.
For material class 50 "Paper and Cardboard", the following results
were obtained:
Open Truck: Load # 1 - 15 C, Y. - 2, 240 Ibs. -1491b/C,Y.
Load #2- 20 C. Y, - 1, 760 Ibs, - 881b/CY.
Load #3 - 22 C. Y. - 2,610 Ibs - 1091b/C. Y
Total 47 C. Y. - 6,610
Average Unit Weight li6lb/C,Y.
Packer Truck: Load #1 - 27 C. Y. - 7, 430 Ibs -2751b/C. Y.
Load #2 - 10C.Y. - 4, 820 Ibs. -4821b/C,Y,
Load #3- 17C.Y. - 8, 290 Ibs. -4901b/C,Y,
Load #4 - 12 C. Y. - 3, 340 Ibs. - 278 lb/C,Y
Total 66 C. Y. - 23, 880 Ibs.
Average Unit Weight 3621b/C.Y.
For computation purposes a unit weight for paper and cardboard of
120 Ib/C. Y. was used for open body trucks and 360 Ib/C. Y. for packer trucks.
Weighing of packer trucks from a commercial route considered typical
for material class 42, "Mixed Trash and Refuse (Including Garbage}' produced
the following results:
Packer Truck: Load #1 16 C. Y. - 7, 390 Ibs. -46llb/C.Y,
Load #2 27 C. Y. - 10, 620 Ibs. - 3941b/C.Y
Total 43 C. Y. - 18,010 Ibs.
Average Unit Weight 4191b/C, Y.
The unit weight used for material class 42 in packer trucks was 420
Ib/C. Y. This weight was also assigned to category 43 "Mixed Trash and Re'use
(No Garbage)".
The 3 to 1 compaction ratio of packer trucks to open trucks
in the weighing of paper and cardboard is believed to hold true in the other
453-956 0-72-!4 EXHIBIT 2-60
-------
Exhibj t 2 • j, Continued
categories continin;; larqc qua ,iti ties of paper On that basis open t"uck unit
weights of 140 Ib/ C Y were assigned to material classes 42 and 43, and 167
Ib/C. Y for material (.lasses 40 and 41 This gcneial j-ange was substantiated
by weighing of city collected kitchen wastes in West DCS Monies during a period
when an open truck was being used for standby service
Packer Truck Density - Foi the five material classes 40, 41, 42, 43
and 50, the 3 to 1 compaction ratio of packer to open truck density was incor-
porated into the computer program for determining the weight of material de-
livered to the disposal site Unit weights listed in the table giving seasonal and
compaction factors and unit weights are for open trucks, When, these materials
classes wore delivered in packer trucks both the unit weight and the compaction
factor were automatically tripled This eliminated the need for anticipating the
iatio of packer trucks to open trucks in each material class and permitted the
use of two unit weights for these materials rathe1" than a single weighted aver-
age based on an anticipated ratio of ti uck type
Random Weighing - The third approach to load weighing was random
weighing of typical loads observed at the landfill sites This was used exclus-
ively for the demolition and tree ^aste categories, arid also for other materials
One load of bottles and broken glass from a bottling firm was weighed
and a unit weight determined of approximately 700 Ib/C Y
Three truck loads of scrap tires were weighed with the results as listed
below.
Load # 1 9. 8 C Y 4. 250 Ibs - 437 Ib/ C Y
Load #2 - 9. 8 C Y - 4, 500 Ibs - 460 Ib/C Y
Load ^3 • 20 0 C Y - '' . 280 Ibs - 364 Ib/C Y
Total 39 6 C Y 16 030 Ibs
Average Unit Weigh: 405 Ib/C Y
Demolition wastes proved to be difficult to ob*a:n reliable data due to
thrj extiem^ variation in the weight of com.pon.en. materials and the proportion
of each material in a given load Three loads of combustible wastes from the
demolition of wood frame structures were weighed with the following results:
Load #1 - 12 0 C Y - 4, 200 Ibs - 350 Ib/C Y
Load #2 • 12 0 C Y ' COO Ibs - 530 Ib/ C Y
Load #3 - 12 5 C Y s ' 50° lb/C Y
Total 36 5 C Y 17 450 Ibs
Average Unit Weight 480 Ib/C.Y
EXHIBIT 2-6b
-------
Exhibit 2-6 - Continued
These loads were loosely packed, mostly lumber, and observed to be
less dense than the more commonly encountered mixed combustible and non-
combustible demolition materials. Two loads of mixed demolition wastes were
weighed, with the combustible materials of those loads assumed to be 600 Ib/C. Y.
Load#l 17,2001b. 7. 3 C. Y. Comb. 3. 7 C. Y. Non-Comb.
Load #2 6, 900 Ib. 2. 0 C. Y. Comb. 4. 0 C. Y. Non-Comb.
Total 24, 100 Ib. 9. 3 C. Y. Comb. 7.7C.Y. Non-Comb.
Combustible 9. 3 C. Y. @6001b/C. Y. = 5,6001b.
Non-Comb. 24,100-5,600 = 18, 500 Ib.
Average Non-Combustible Unit Weight -18, 500 = 2,400 Ib/C. Y.
7. 7
The unit weights of 600 Ib/C. Y. for combustible demolition wastes and
2,400 Ib/C. Y. for non-combustibles are considered typical and used for com-
putation purposes.
The density of limbs and leaves was found to be approximately 320/lb/C. Y.
when chipped and 270 Ib/C. Y. not chipped, determined by weighing one load of
each of these materials. Logs and stumps were weighed as follows:
Load #1 - Logs greater than 10"
14.4C.Y. -9,6001b. - 6651b/C.Y.
Load #2 - Limbs and logs under 10"
12. OC. Y. -8,7001b. - 7241b/C. Y.
Load #3 - Logs and stumps - 80% greater than 1Q:", 20% less than 10"
21. 0 C.Y. - 8,750 Ib. - 4201b/C. Y.
Load #3 was delivered to the disposal site in a dump truck and the vol-
ume recorded is considered to be inaccurate, therefore, a unit weight of 675
Ib/C. Y. has been used for logs and stumps, both greater and smaller than 10
inches in diameter.
Street sweepings were weighed by the City of Des Moines, with two loads
weighing 86 and 83 Ib/C.F. An average of 85 Ib/C.F. is considered typical for
street sweepings.
Also, one load of pen cleanings and associated animal feeding wastes
were checked and found to weigh approximately 1, 090 Ib/C. Y. (40 Ib/CF).
This is slightly less than the 50 Ib/C.F. experienced at some large stockyards,
but the lower value is considered appropriate for pen sweepings disposed of at
public sites in this case.
EXHIBIT 2-6c
-------
Exhibit 2-6 - Continued
Compaction Factors
Compaction factors were determined, based upon the anticipated density of the
material in the fill as compared to the density as delivered'to the disposal site.
For instance, paper, cardboard, and general mixed rubbish should compact in
the fill to approximately 600 Ib/C. Y. If paper and cardboard are delivered to
the disposal site in an open body truck at 1ZO Ib/C. Y. , the compaction factor is
determined to be 120 -=- 600 = 0. 2. If the same material is delivered in a packer
truck at 360 Ib/C. Y. , the compaction factor is 360 + 600 = 0. 6. Some materials
will have a greater density delivered to the site than the compacted density of
paper and other rubbish. In the case of liquids and semi-solids, little or no in-
crease in the fill volume may be required, therefore a small compaction factor
is used. Heavy granular and bulky wastes were evaluated in terms the antici-
pated volume reduction due to spreading, compacting and mixing with other ma-
terials in the landfill for assigning compaction factors.
This approach to assigning compaction factors has a definite advantage. The
compaction factor is simply a conversion from the as-received volume to the
compacted fill volume. By converting from the as-received density to the anti-
cipated average fill density, possible inaccuracies of the as-received figures in
the more loosely defined material classifications are negated in as far as the
total required fill volume is concerned. This would not apply to demolition
wastes, trees and bulky items which are not included in the stated average fill
density but have been evaluated separately as to their expected volume reduction
in place in the fill.
Conclusion
An important point which applies throughout this discussion of unit weights is
clearly illustrated in the weighing of scrap tires. Reference is made to the
variation in unit weights of the three loads, specifically 437, 460 and 364 Ib/C. Y. ,
even though a single, well defined material is involved. Out of necessity, aver-
age unit weights must be assigned to each material class in order to make an
analysis of the total tonnage of waste material both now and in the future, and to
investigate methods and procedures of final disposal. In reality, the unit weights
of these materials will vary substantially. In the case of scrap tires, the density
will depend upon the method placing or stacking of tires, size of load, type of
tire (passenger car or large off-the-road equipment tire) and other factors.
Across-the-board figures for density of refuse materials are often not adequate-
ly defined, subject to a multitude of influencing factors and can be quite mislead-
ing.
EXHIBIT 2-6d
-------
Exhibit 2-7
Instructions For Completing Landfill Survey Questionnaire
The form has eleven parts to which the following comments or instructions per-
tain:
1. Book Number -
The book number which appears on the outside cover of the book of
forms shall be recorded on each sheet.
2.
The day of the month data is recorded. The month and year will not be
recorded on the forms.
3. Time -
In this part, record the time on a 24-hour basis; i. e. 0800 indicates
8:00 A. M. and 1310 indicates 1:10 P.M. This time is the time the
vehicle arrives at the landfill site. All men conducting the survey must
have watches and they should be set to read alike.
4. County License Number -
The number designating the Iowa County in which the vehicle is licensed
shall be recorded. Official city license numbers will be recorded by the
County in which the city is located. These are as follows:
Polk County: Des Moines, West Des Moines, Altoona, Ankeny,
(77) Bondurant, Clive, Grimes, Pleasant Hill,
Urbandale, Windsor Heights.
Warren County: Carlisle, Norwalk
(91)
Any other cities encountered should be handled in the same manner.
Federal, State, out-of-state, or any other designation other than the
1 through 99 county numbers shall be recorded as "00".
5. Type of Vehicle -
Indicate the type of vehicle by recording the proper number in the appro-
priate space. If the vehicle is not one 01 those listed, write in the type
in the space available under "Other".
EXHIBIT 2-7
-------
Exhibit 2-7 - Continued
6. Type of Hauler -
In this part, indicate by recording the proper number which type of haul-
er is delivering the material to the site. If it is a contractor, select the
type which is generating the waste. If it is a commercial hauler from a
route which includes several customers, indicate whether the route is
commercial waste, industrial waste or domestic waste, and the approxi-
mate percentages of each. Record both the number indicating type of
hauler and the percentage of each waste; unless the waste is entirely of
one classification in which case no percentage need be recorded. "Pri-
vate Commercial" or "Private Industry" designates waste from a single
commercial establishment or industry which may be hauling their own
wastes or employing a commercial hauler.
7. Size of Load -
There are two ways to indicate the size of load. Use either way but not
both. The first way is to give the size of the vehicle cargo space in
cubic yards and then indicate the percent to which it is filled. The per-
cent filled is not to be considered as a statement of density of the mater-
ial but simply how much of the cargo space is being used. For example,
a dump truck with a 5 CY capacity box piled half fall of Hn cans would be
recorded as 5 CY x 50% full. The same truck with tree limbs piled high-
er than the side of the 5 CY box could be recorded as 5 CY x 120% full.
The other way to indicate size of load is to indicate the rough size of
the load, giving the length, width and height of the cargo in feet. For
example, a flat bed truck might have a load of scrap concrete blocks
piled an average of 8' long x 4' wide by 2 feet high; or an automobile
with grass clippings in baskets in the trunk could be described as a pile
2' long x 2' wide x 1' high.
Wastes carried by private citizens may be estimated at 0. 1 CY for each
standard 20 gallon garbage can or equivalent.
8. Address of Source of Waste -
Approximate address should be given where possible to pinpoint source
of waste. For example, if a contractor is wrecking a hotel building in
the 900 block on Locust Street, indicate "9th and Locust". If a garage
man is delivering a load of oil cans, indicate "Joe's Conoco Station,
15th & Grand Avenue". If a commercial hauler is from a commercial
route in downtown Des Moines, indicate "Downtown Des Moines". Do
not neglect to indicate which city the waste originates from. For City
refuse vehicles the truck number and the route number will be suffici-
ent source information.
EXHIBIT 2-7o
-------
Exhibit 2-7 - Continued
9. Condition of Material -
There is a place to record the proper number if the load is very dense or
very loose. Use these to indicate the unusual condition. For example,
in most wrecking jobs the refuse is usually piled in dump trucks with a
clam shell or front end loader. The engineer evaluating these survey
sheets will take this into account, but if a truck load of waste from a
wrecking job was hand loaded, thereby getting much more than the usual
amount into a truck, indicate that fact by placing a check in the "very
dense" designation. Similarly, if a load of large cardboard boxes was
loose and not in any way crushed or packed in, indicate "very loose".
10. Type of Material -
Indicate by one or more of the materials listed what type of material is
being delivered. In the case of mixed loads, indicate more than one
material.
If a load is mixed and has a high percentage of some types and a low per-
centage of others, give a rough approximation of the percentages. For
example, a load of bricks from a wrecking job with some wood may be
recorded, thus:
Type of Material
Mat'l % Mat'l % Mat'l % Mat'l %
50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73
1 9 0 2 1 0
1. Demolition - Mixed, Non- Combust.
2. Demolition - Mixed, Combust.
In the case of a typical load from a City Refuse Packer Truck, indicate
"Garbage & Kitchen Waste, Domestic", but do not attempt to evaluate
the percentage of any of the materials. "Construction Mixed" should
indicate any scrap materials or other materials derived from the con-
struction industry which do not fall into other specific categories listed.
"Ashes and Cinders" shall designate the normal residue and clinkers
from burning of coal and other combustibles as opposed to "Fly Ash"
which would designate very fine, light matter.
If material cannot be described by checking one or more of the materi-
als listed, write in as "Other" in the space available at the bottom of
the page with a description of the material and any appropriate com-
ments.
EXHIBIT 2-7b
-------
Exhibit 2-7 - Continued
11. Coordinate and Government Subdivision -
The coordinate of the source of waste and the government subdivision
will be determined in the office by the person checking the survey
sheets. No entry should be made for these items in the field.
In addition to the information requested on the Questionnaire, the following in-
formation should be recorded on the outside cover of each book:
1. The complete date including day of the week.
2. Name of each surveyor, the time which he began or quit, and
the times the book was started and completed.
3. The number of the preceding book and the following book.
EXHIBIT 2-7c
-------
THUS
DATA TEST PROGRAM (T)
DMS SOLID WASTE STUDY
DUMP SURVEILLANCE
A. 17, 18 must be any number from 01 to and including 11 .\Jy
B. If 17, 18 is 01, 02, 03, 0 /, 08, 09, 10 or 11, then 20, 21 should be 00
C. If 17, 18 is 04, 05 or 06, then 20, 21 could be 00 or any other number.
D. If 17, 18 is 01, 02, 03, 07, 08, 09, 10 or 11, then 23 and 28 must be O.also
25V'26 and 307^1 must be 00.
E. If 17, 18 is 04, 05 or 06, then 23 and/or 28 may be one of the three num-
©
bers in the 04, 05 or 06 series not used in 17, 18, or 23 or 28.
F. The sum of numbers appearing in 20, 21; 25, 26; and 30, 31 must not
exceed 100.'
G. If no numbers or zeros appear in 23 and/or 28, then 25, 26 and 30, 31 respect-
ively must also be 0.
H. Number 15 may be any number from 1 to and including
I. Number 49 must be 0, 1 or 2.V_y
J. Number 33, 34, 35 and 36 can be any number from 00. 1 to 99.9 except as
follows:
Number in Column 7 Range for 33, 34, 35 and 36
1
2
3
_,
6
7
8
9
From
03.0
01.0
00. 1
00. 1
01.0
00.5
00. 1
00. 1
00. 1
To
30.0
15.0
30.0
15.0
15.0
10.0
02.0
30.0
EXH IBIT 2 - e
-------
(16)
K. Columns 51, 52; 57, 58; 63, 64; and 69, 70 may be any numbers from
01 to and including 73 except 08, 09, 16 through 19, 24, 28, 29, 33, 34, 39,
©
46, 47, 48, 49, 59, 64 through 69; however, any number which is used may
not be used in more than one place A—'
L. The sum of 54, 55+60, 61+66, 67+72, 73 shall not exceed 100.^)
M. If 51, 52 is 00, then 54, 55 must also be 00
If 57, 58 is 00, then 60, 61 must also be Oo(^)
If 63, 64 is 00, then 66, 67 must also be 00
If 69, 70 is 00, then 72, 73 must also be 00
N. If 46, 47 is a certain number, then 38, 39, 40 and 42, 43, 44 must fall
within certain limits as shown in attached Table "TEST LIMITS - CO-ORD.
FOR GOV. SUEDIV."
O. Columns 7, 8, 9, 10 represent the time of day and must be from 0000 to and
including 2400. The cards were punched in the same order as the pages
in the books. The pages were used consecutively in the field; therefore,
any given card should have a time (7, 8, 9, 10) which is equal to or greater
than the time of the preceding card. This is true for any given book (Col. 1, 2)
except where the day (Col. 4, 5) changes. In the case of a change of day,
the time may change from 23++ to 0+++ or some similar change and then
_2_ EXH I Bl T 2 - 80
-------
TEST LIMITS - CO-ORD. FOR GOV. SUBDIV.
From To From To
01 91 - 142 52 - 103
02 108 - 134 99 - 125
03 86 .96 32 - 42
04 57 76 64 84
05 68 78 28 39
06 102 - 111 104 - 121
07 73 - 80 12-2 - 128
08 108 - 127 45 - 54
09 86 - 104 98 - 124
10 102 - 113 100 - 108
11 140 - 147 38 - 46
12 151 - 158 90 - 97
13 12 - 142 00 - 132
14 140 281 0 125
15 133 - 143 37 - 56
16 83 88 54 - 60
17 0-999 o - 999
18 130 - 135 115 - 120
19 36 44 47 - 55
20 78 88 94 102
21 81-91 3 - 10
22 89 - 96 53 - 65
23 44 - 50 100 - 107
24 139 - 143 5-9
25 73 - 81 77 89
26 10 - 16 96 - 103
27 12 - 142 123 - 331
28 140 - 281 123 - 331
29 0-999 0 999
30 0-14 0 101
31 0-999 0 - 999
32 0-14 123 - 306
33 81 96 67 83
EX H I BIT 2- 8b
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EXHIBIT 2-34
-------
Exhibit 2-35
Identification of Political Sub-Divisions
For Solid Waste Study Area
Sub-Division No.
1. Des Moines
2. West Des Moines
3. ALtoona
4. Ankeny
5. Bondurant
6. Clive
7. Grimes
8. Pleasant Hill
9. Urbandale
10. Windsor Heights
11. Carlisle
12. Norwalk
13. Polk County
14. Warren County
15. Avon
ID. Berwick
17. (Not Used)
18. Gumming
19. Elkhart
20. Johnson
21. Mitchellville
22. Norwoodville
23. Polk City
24. Runnells
25. Saylorville
26. Sheldahl
27. Dallas County
28. Madison County
29. (Not Used)
30. Story County
31. (Not Used)
32. Boone County
33. Marquisville
EXHIBIT 2-35
-------
METROPOLITAN DBS MOINES SOLID WASTE STUDY
INDUSTRIAL SOLID WASTE SURVEY
QUESTIONNAIRE
Name of Establishment:
Type of Business:
Principal Address in Des Moines Metropolitan Area
Name of Person to Contact in Event Additional Information is Required:
Position:
Address
Phone Number
1. Is it necessary that the information in this questionnaire be
considered confidential? Yes ( ) No ( ). (If any information is
given to us which is to be kept confidential, we will use the
information in such a way as to prevent the identification of the
waste source in reports issued, and make the data known only to
responsible officials who would require specific knowledge in the
review and evaluation of the report.)
2. Location of Principal Source of Waste (Address):
EXHIBIT 2-36
-------
3. Brief General Description of the Type or Types of Solid Waste:
4. Approximate Quantity of Solid Waste per Average Week or Month.
(Please give rough estimate in pounds or tons or some measure of
the volume, and state if per week or per month or any other
convenient unit of time.)
5. Current Method of Disposal of this Solid Waste:
6. Is there anything about this waste that you know, which would
classify this waste as hazardous, such as highly inflammable,
explosive, corrosive, biologically contaminated, etc? Yes ( ) No ( )
7. If you are uncertain about anything we have requested, or wish
assistance, or would like to impart specific information which is
difficult to fit into this form, please check this space and we
will contact you. ( ).
EXHIBIT 2-360
453-956 O - 72 - 17
-------
METROPOLITAN DES MOINES SOLID WASTE ENGINEERING STUDY
INDUSTRIAL AND COMMERCIAL SOLID WASTE SURVEY
1. Name of Establishment
2. Address where waste is Generated
3. Person to Contact for Information: Name
Title
Adress_
Phone
4. General Description of Waste
5. Present Quantity of Waste
6. Seasonal Variation
7. Future Quantities
8. Current Method of Collection and Disposal
9. Detailed Description of Waste
a. Weight, gross
b. Weight, unit
EXHIBIT 2-37
-------
c. Volume reduction in land fill
d. Volume reduction in press
e. Moisture content
f. Moisture retention
g. % combustible % Ash
h. % Non-combustible
i. % Metallic^ o/( Magnetic
j. Potential for being wind blo\Mi
k, Explosive
1. Highly flammable
m. Toxic
n. Other hazard
o. Soluble in water
p. Potential pollution it m contact with water
q. Odor problem
r. Smoke or gas problem if burned_
s. Biological degradible or digestible
t. Organic \s. inorganic
u. Chemical Composition
v . Salvage
EXHIBIT 2-370
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REFUSE COLLECTION REPORT TOR THE MONTH OF_
ITEMS
1. Routes Collected
2. Loads to Land Fill
3. Cubic Yards Collected
4. Tons Collected
5.
6.
7 Collection Time
8. Haul Time
9. Delay Time
10. Total Time
1 1. Collection Miles
12. Haul Miles
1 3 Delay Miles
14. Total Miles
15. Compensatory Crew Hours
16. Incentive Crew Hours
1 7. Equipment Hours
18. Regular Time Labor Cost
19. Compensatory Labor Cost
20. Total Labor Cos1
2 I. Equipment Cost
22. Material Cost
23. Total Cost
24. Labor Cost per C.Y. Collected
25. Equip. Cost Per C.Y.Collected
26. Total Cost Per C.Y.Collected
TOTAL
THIS MO.
AVERAGE PER ROUTE COLLECTED
THIS MO.
LAST MO.
THIS MO.
LAST YR.
12 MO. AVS.
TOTAL DEPT. DIRECT PRODUCTION WAGES THIS MONTH $.
TOTAL DEPT. DIRECT SUPERVISION WAGES THIS MONTH $_
TOTAL DEPT. ADMINISTRATION WAGES THIS MONTH $_
SUBTOTAI $.
ACCRUAL FOR VACATION , SICK LEAVE, HOLIDAYS % $_
OVERHEAD FOR PAYROLL EXPENSES % $.
TOTAL LABOR COST THIS MONTH $
MAN-HOURS OF DIRECT PRODUCTION THIS MONTH , MAN-HOURS
HOURLY RATE FOR DIRECT PRODUCTION LABOR $.
REMARKS:
MH =$.
-PER HR.
EXHIBIT
3-5
-------
I I I I I I II
SAMPLE PAGE
COLLECTION
SURVEY REPORT
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Exhibit 3-7
ROUTE DAYS COLLECTED WHILE BEING OBSERVED
Rt.
No.
1
1
2
3
4
5
7
8
9
10
11
14
15
16
17
18
19
19
20
21
22
23
24
25
26
27
Date
1967
8/28
9/1
6/22
8/23
8/14
6/26
8/15
8/22
8/30
8/16
8/24
6/28
8/23
8/29
6/23
8/24
6/22
9/1
8/25
8/18
6/22
8/21
8/28
6/27
8/22
6/22
Day
M
F
Th
W
M
M
T
T
W
W
Th
W
W
T
F
Th
Th
F
F
F
Th
M
M
T
T
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% of
Comment One Day
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All of Fri. and parts of Mon. and another route
All of Thurs. and part of Mon.
All of Wed. and parts of Tues. and Thurs.
All of Mon. and parts of Tues.
All of Monday
All of Tuesday
All of Tues. and part of Fri.
Part of Wed. and parts of Tues. and Thurs.
Part of Wed. and parts of Thurs. and Fri.
Most of Thursday
All of Thurs. and parts of Wed. and Fri.
Most of Wed. and part of Tues.
Most of Tues. and parts of Mon. , Wed. and Thurs.
All of Wed. and parts of Tues. and Thurs.
Most of Thurs and part of Wed.
All of Thurs. and part of Fri.
Parts of Mon. , Wed. and Fri.
All of Fri. and parts of Thurs. and Mon.
Most of Fri. and parts of Thurs. and Mon.
Parts of Wed. and Thurs.
All of Monday
All of Wed. and part of Tues.
All of Tues. and part of Wed.
All of Tuesday
Parts of Mon. and Tues.
125
180
126
117
108
100
100
115
134
181
90
197
108
109
160
100
112
132
210
171
100
100
110
131
100
100
Average
127
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453-956 O - 72 - 1
-------
HENNINGSON, DURHAM & RICHARDSON Associated with
Engineer! • Designers • Planners • Consultants \ / -*. n l>
3555 FARNAM STREET V^SlJ^ & t<
OMAHA, NEBRASKA MI3I ConsuHm, Engineer,
. ujigeiK ^ Fourth Street
(WZJ JW-7515 Wtf( 0<| Moinef |owa 5,^5
(SIS) 255-255»
HENNINGSON, DURHAM &. RICHARDSON
VEENSTRA &• KIMM
Re: METROPOLITAN DES MOINES
SOLID WASTE STUDY #3170104
ADDRESS REPLY TO:
August 30, 1967
Mr. Leo Johnson
Director of Public Works
City of Des Moines, Iowa
Dear Mr. Johnson:
From our observations and investigation of your garbage collection
system, we have come to the conclusion that the system will require
major changes to make it a smooth functioning, economical operation.
We have also concluded what major changes must be made.
Because much of our work is very detailed, and the particular details
are based on certain ground rules and policies; it is necessary to
establish the ground rules and policies very carefully. To make the
final details of maximum value to you, we should be in general
agreement on ground rules and policies.
For this reason we wish to explain to you at this time what our
conclusions are and what ground rules and policies we are
recommending which will form the foundation of additional work.
We have written a summary of the situation in which we explain the
background, observations, philosophy and recommended course of
action. This summary is attached for your study. In the summary
we recommend the following action upon which our future work will
be based:
EXH I BIT 3-9
-------
Mr. Leo Johnson -2- August 30, 1967
1. The City routes be divided into several districts of
managable size, each under the direction of a District
Foreman. The Crews in a district are to act as a team.
2. Layout efficient routes which represent a proper days
work.
3. Establish and enforce reasonable work rules which
regulate the periods of collection, haul and rest.
4. Provide an incentive for the men to work fast and
steadily without wasting time.
5. Provide the necessary management and supervision to
properly direct the activities of the collection crews.
If there are any parts of these conclusions which are not acceptable
to you please notify us immediately so we can meet to work out any
modification to the basic ideas and have a sound foundation upon
which to build.
Yours very truly,
HENNINGSON, DURHAM & RICHARDSON
VEENSTRA & KIMM
By
/y J.£e-
R. J. Peterson, P. E.
Project Engineer
RJP:m
1391
Encl.
EXHI B I T 3-9o
------- OCR error (C:\Conversion\JobRoot\00000DGZ\tiff\20017ZC0.tif): Unspecified error
-------
-2-
4. Provide an incentive for the men to work fast and
steady without wasting time.
5. Provide the necessary management and supervision to
properly direct the activities of the collection crews.
I would like to outline to you the work we have done to date which
has led us to the above recommendations. To begin, we drew detailed
maps of all of your present routes. Each driver was invited to
describe in detail how his route was collected. We drew this data
on maps with colored pencils showing the path that was traveled for
collection and dead heading, where stops were made for coffee breaks
and lunch periods, beginning and ending points, plus which side of
the street was collected when not collecting from both sides. We
then selected certain routes and assigned a technician to follow the
crews that were collecting these routes. The crew was of course
informed of this procedure in advance and shown all of the data
collected. The technician recorded activity in detail on a field form
designed for that purpose. The data collected included the exact
streets and alleys driven; all maneuvers including all turns and
stops and backing movements; the time and mileage per collection
block; and number of containers emptied per block. He also recorded
time and mileage for all non-collection activities including haul
to the land fill site, driving to and from the yard, coffee and
rest breaks, lunch periods and all other delays whatsoever.
Once the routes were followed, data was obtained showing the number
of dwelling units per block which corresponded to the blocks
followed. We are developing data which will be used to set time and
quantity standards for collection from various types of neighborhoods
and various conditions such as carryout vs. alley collections. The
collection standards coupled with work schedules and necessary
driving time will be used to establish proper routes which represent
a reasonable day's work.
We have found that a fantastic amount of time is spent in delays
for rest breaks, coffee breaks, smoke breaks and lunch periods.
Sometimes these delays represent almost as much time as the time
spent collecting garbage.
Anyone who has observed a garbage collection crew at work can
appreciate that the work is not easy. When picking up garbage
the men do manual labor involving much walking, lifting and
carrying. There appears to be no end to the process. As soon as
one can is emptied and carried to the truck there is another to do.
Without stops from time to time, a good crew could work themselves
into a state of exhaustion. There are however, many places where
EXH I BIT 3- 9c
-------
-3-
brief built-in stops and rest periods are provided and where a few
extended rest periods are also provided. Most routes have many
places where the collection crews ride the truck from one point on
the route to another point either from stop to stop, around corners
or while dead heading. These rest periods vary from a few seconds
to a few minutes each. The extended periods consist of the driving
trip from yard to first stop in the morning, trips to and from the
landfill site with a full load of garbage, the trip at the end of the day
from the landfill site to the yard, and the lunch period.
Since it takes several hours to fill a truck and since the work is
physically taxing, we believe short rest periods should be not only
allowed but scheduled and encouraged. We believe therefore that
after approximately one hour's work the crew should take a short
break. They will feel better for doing this and also produce more
work over an entire day. This break should be taken by simply
stopping work where they happen to be at the appointed hour, and
not leaving the route for the purpose of going to a coffee house
in the neighborhood. A brief rest for the sake of resting is
beneficial. A longer coffee break which may have social benefits
does not result in a benefit to the task to be accomplished.
A scheduled lunch period should be allowed with time to go to a
place to wash and eat. Currently a 30 minute period is scheduled
and the crews are allowed to go to the closest fire station or City
park to eat. This appears to be appropriate and popular with the
men, however, the lunch periods are seldom restricted to 30 minutes.
It should be agreed that either 30 minutes are to be used and then
limit the crews to this time, or schedule a longer period for lunch
and extend the work day to cover this period.
Under the current procedure the men are scheduled to work from 7:00
A.M. to 3:30 P.M. each day with a 30 minute lunch time. As a
practical matter, crews arriving at the landfill site after 2:30
P.M. cannot be economically diverted to other work. As a result
they are held at the landfill site until approximately 3:00 P.M.
and then released to drive back to the yard, fuel their vehicles
and be released for the day. The men know this and many of them
plan their day accordingly. We believe this is extremely wasteful,
bad on morale and accomplishes nothing. We recommend that the
routes be planned and the work scheduled to do a good day's work
each day and then allow the men to go home when the work has been
accomplished. This is generally known as the "Task" or "Incentive"
Plan.
To create an incentive, the route should be of such a size that the
crew can, by working steadily, complete the route within the time
allotted with approximately 40 minutes off at the end of the day.
EXHIBIT 3-9d
-------
-4-
The crew that wishes to hustle a little faster can earn as much
as one hour off. The crew that drags gets little or no incentive.
The key of course is to lay out a proper day's work. We will lay
out several such routes and teach your supervisors to use standards
we will develop to lay out the remaining routes. It is necessary
for your men to know how to do this because route standards and
conditions change constantly and require periodic adjustment if a
properly managed economical system is to be maintained.
Wasting time is not only expensive in direct labor and equipment cost,
but it also has bad side effects. The men are not proud to be a
part of a "goof off" team. They have no respect for the City, their
department or their supervisors for allowing such a condition to
develop and be maintained. Their morale is bad, their sense of
loyalty is reduced and their turnover rate is higher than necessary.
One must also realize the social and practical problems associated with
hiring, retaining and supervising garbage collection crews. The
pay scale is near the bottom of the schedule for men doing physical
labor. It has been said that "no one has ever asked for a transfer
to the garbage department". This is probably not true but does
illustrate the problem. The work is not easy and the image of the
garbage man is bad. We will discuss improvement of the image at
another time. The men normally employed in this work do not usually
have the higher educations nor are they as likely to be as steady
in their jobs as some of the other classifications. These men must
have better supervision and the job should be given every consideration
to improve its image, morale and incentives.
The matter of efficiency in collecting garbage is more important
than most people realize. This year the adopted budget for garbage
collection is approximately $712,000, which is one of the highest
single items of expenditure. Generally, budget officers assume
that garbage must be collected, which is true, and that the department
must have whatever funds they request for men and equipment to do the
job, which is not true. The garbage collection cost can be significantly
reduced if the same amount of services to the public is maintained
or more service to the public can be provided per dollar spent.
A route which we followed can be cited as an example of the present
situation. This is not the average or mean route, because we have
not completed our work. It can, however, be said to be not unusual.
EXHIBIT 3-9«
-------
-5-
This route was recorded to consume the times shown in the following
summary:
1. Collection Time* 3:59 = 239 Minutes = 51.5%
2. Haul Time** 1:39 = 99 Minutes = 23.3%
3. Delay Time*** 2:06 = 126 Minutes = 27.2%
Sub-Total 7:44 = 464 Minutes = 100.0%
4. Other**** _;46
8:30
* Time spent on route collecting garbage or driving between
stops.
** Time spent to the route from yard, to and from landfill site,
from site to yard.
*** Time spent not on collection or haul, includes lunch, breaks,
etc., plus :18 at end of day when allowed to go home.
**** Time spent in special activity such as on next day's route
(:27) and special tasks for engineering survey (:19).
It can be seen from the example and from the foot notes that not
only were they able to do their day's work, but they were able to
take considerable delays and also do 27 minutes of the next day's
work.
Their day's work to do was inadequate, and the next day's work would
probably be even shorter because part was accomplished this day.
EXHIBIT 3-9f
-------
-6--
Th e schedule we would recommend would be something like the following:
Hours
0700
0715
0815
0820
0920
0925
1025
1055
1155
1225
1325
1330
1420
1450
Collection
1:00
1:00
1:00
1:00
1:00
:50
Haul Dela\
1530
Total
5:50
:30
:30
1:15
:05
:05
:30
:05
:40
1:25
Description
Trip from yard to first collection.
Collection.
Rest break.
Collection.
Rest break.
Collection.
Haul full load to disposal site and
return to route.
Collection.
Lunch.
Collection.
Rest break.
Collection.
Haul load to disposal site and
return to yard.
Incentive time (go home).
It can be seen that in addition to three short rest breaks of 5
minutes each and a 30 minute lunch time there is also a total of 1 hour
and 15 minutes of hauling time for the crew to rest. At no time would
the crew be expected to work more than one hour without a break, not
counting any rest they can get while traveling between stops or dead
heading between parts of the route.
EXHIBfT 3-9g
-------
-7-
Comparing the productive collection time of 5 hours and 50 minutes
in the above example to the 3 hours, 59 minute collection time in
the first example one can see that 46% more refuse can be collected
per crew and still enjoy a 40 minute incentive time. If the crew
were willing to increase their pace 5-6%, they could pick up another
20 minutes of incentive time to make it equal to one hour. They
could slow down 10 to 12% and still finish within the day's work
schedule.
It can be argued that proper management can be applied to the present
system with similar results. This, however, would be difficult to
accomplish. Certainly the present effectiveness can be drastically
improved but the nature of refuse collection work being scattered
over a large area is difficult to supervise. Establishing proper
route work standards must be done and would be of great benefit,
however, there are many ways for a crew to slow down or be delayed
which are difficult to supervise. Under the incentive plan, the men
and their foreman have a common desire to improve their routes.
There are many details which must be worked out in connection with
using the procedures we are recommending. We do not propose to go
into all of them at this time, however, we feel that a few of them
should be mentioned. The sample days schedule we have used shows
the crews returning to the yard at 1450. It is planned that the
crew would park their vehicle in the yard without being fueled to
avoid the time consuming traffic jam at the fuel pumps.
It is contemplated that a man would be assigned to the night shift
who would fuel all of the vehicles using the fuel tank truck and
fuel all the vehicles where they are parked. He would also wash
the vehicles scheduled for that night after the fueling was completed,
During the winter a man must be assigned the task of starting all
vehicles in the morning and allowing them a warm up period prior to
0700 when the crews start their work. One person doing this work
can save many crew hours of lost time. Not only is this a direct
potential saving in payroll expense and reduced wear and tear on
equipment due to a proper warm up, but it is also necessary to
prevent delays which would interfere with the performance of the
days scheduled work.
To complete the most collection work in the shortest period of time
and to allow the crews to earn a maximum amount of incentive time,
it is recommended that the work rules outlined below be established
for normal routine conditions.
EXHIBIT 3-9h
-------
-8-
1. At the beginning of the day, collection crews shall proceed
directly from the yard to the point of first collection
where they will begin collection of garbage.
2. Crews shall remain on their routes and shall follow the
prescribed path at all times except when proceeding to and from
the place of disposal and the yard and except for the lunch
period.
3. One 30 minute lunch period, which starts when the crew leaves
their route and ends when they have returned to their route,
may be taken. Crews may leave their route during this period
and drive to the closest City Fire Station or City Park at
their option.
4. At the end of any full hour's collection time the crew may
take, and they are encouraged to take, a 5 minute rest break;
except when it is time to go to lunch or the truck is full and
they should proceed to the place of disposal.
5. When the route has been collected the crew shall proceed
directly to the place of disposal and then directly to the
yard, at which time they normally will be dismissed for the day.
6. If one or more of the collection crews in the same District
have been delayed for any reason, the District Foreman may
direct one or more of the other crews in that District to
assist a delayed crew with the completion of the delayed crews
collection.
7. When a crew is required to work more than the 8 hours per day
plus lunch time, they shall receive compensatory time off at
another time at the rate of 1^ hours of compensation time for
each one hour of time worked in excess of the 8 hours plus
lunch time.
The recommended five part solution to the problems discussed in this
summary will require the overcoming of some obstacles. The following
is a general listing of the parts to the solution and an evaluation
of the potential obstacles:
1. The division of the City into Districts is a technical and
administrative procedure which presents no legal, political
or labor/management obstacles.
2. The layout of proper routes is also a technical and administrative
matter without legal, political or labor/management obstacles.
EXHIBIT 3-91
-------
-9-
3. The establishment of new work rules are simple in technical
and administrative matters; however, there is a labor/
management consideration which must be considered. We
believe they can be worked out in connection with the
incentive plan.
4. The incentive plan is the key to the success of the system,
but also contains the largest number of potential problems.
Currently, the working hours are established by provisions
of the Municipal Code. It is possible that revisions to the
code may be necessary. There may also be problems with other
groups of City workers. Although we cannot imagine labor/
management problems on this issue, it would have to be
considered as a possible obstacle.
5. The necessary proper management and supervision are administrative
matters which will require careful consideration. This item
will be discussed in detail at another time; however, no
serious problems are anticipated.
Whatever the problems and obstacles, we believe the recommendations
are sound and represent the greatest potential benefits to the City.
EXHIBIT 3-9}
-------
Exhibit 3-10
COMPUTATIONS FOR 2-MAN VS 3-MAN COLLECTION CREWS
1. Truck Cost: $3, 000 per yr + 2080 = $1. 44 per hour.
2. Labor Cost: Average of $3. 40 per hour.
3. 3-man crew cost per day: 3 x 3. 40 x 8 + 1. 44 x 8 = $93. 14.
4. 2-man crew cost per day: 2 x 3. 40 x 8 + 1. 44 x 8 = $65. 94.
5. Notation:
a. X = Rate of collection (#/min. ) of a 3-man crew.
b. Q = Some decimal so that,
c. QX = Rate of collection (#/min. ) of a 2-man crew.
d. D = Distance in minutes driving time from landfill site and from
garage.
e. C = Time spent in collection (minutes).
6. Assume the following typical day, 3-man crew:
4 breaks @ 5 min. ea. = 20 min.
2 hauls to route @ D min. ea. = 2 D min.
2 hauls to L. F. site @ D min. ea. = 2 D min.
2 unloading at site @ 5 min. ea. = 10 min.
1 haul to garage = 9 min.
Incentive time = 40 min.
Time spent collecting = C^
Total day = 8 hours = 480 min.
Cs = 480 - 79 - 4D = 401-4D.
7. Assume the following typical day, 2-man crew:
4 breaks @ 5 min. ea. = 20 min.
1 haul to route in A. M. = D min.
1 haul to landfill site - D min.
1 time to unload = 5 min.
1 haul to garage = 9 min.
Incentive time = 40 min.
Time spent collecting = G£
Total day = 8 hours = 480 min.
GZ = 480 - 74 - 2D minutes
- 406 - 2D minutes
EXH I Bl T 3 - IO
-------
8. At the break-even point, the cost per pound collected would be equal,
therefore:
93. 14 _ 65. 94
X x C3 ~ QX x C2
93. 14 _ 65. 94
X x (401 -4D) QX x (406-2D)
or
203Q - DQ + 1. 42D = 141. 95.
9. The time D is a function of Q. By assuming value of Q the break-even
driving time to a landfill site can be determined.
Where Q = .66 D = 10. 5
.65 D = 1. 0
64 D = 15. 5
.63 D = 18. 0
.62 D = 20. 0
.61 D = 22. 5
.60 D = 24. 5
.59 D = 26. 5
.58 D = 29. 0
10. We have assumed Q = . 61 which means the 2-man crew is considered to
be 61% as productive as a 3-man crew. (If they were 100% as efficient,
they would be 66.6% as productive).
11. For a Q of . 61 the break-even driving time would be 22. 5 minutes. If
the driving time from the route to the landfill site is more than 22. 5
minutes each way, the two man crew is more economical; if less than
22. 5 minutes the reverse is true.
EXH I B I T Z - JOB
-------
HENNINSSON, DURHAM & RICHARDSON As.ocl.ted with
Engineer! • Designers • Planners • Consultant! \ /»» ft-fi 0 \/
K« CUIMAU WEFT VK&HA (Aft- & Px
3555 FARNAM STREET Consulting Engineers
OMAHA. NEIRASKA MI3I M4 f,^ str«,
(402) J4MSIS Welt Del MO',,,,,, Iowa 502.5
(SIS) 2S5-255t
HENNINGSON, DURHAM &. RICHARDSON
VEENSTRA <&• KIMM
Re: METROPOLITAN DES MOINES
SOLID WASTE STUDY #3170104
ADDRESS REPLY TO:
3555 Farnam Street
Omaha, Nebraska 68131
January 25, 1968
Mr. Leo Johnson
Director of Public Works
City of Des Moines
City Hall
Des Moines, Iowa
Dear Mr. Johnson:
In our letter to you dated June 30, 1967, we recommended that the City of Des
Moines take immediate steps to improve the operation of their two landfill oper-
ations. Part of the suggestions have been placed into operation. We also rec-
ommended new and better equipment and suggested a fee be established to pay
for the new equipment and additional expense.
When we discussed this matter about two weeks ago, you indicated you were
ready to pursue this new equipment and fee matter and requested a new estimate
of fees. Harold Smith and I worked up the required equipment. Harold then esti-
mated the cost of the new equipment, amortization, maintenance and other costs
of the new operation. He sent this information, which I have used to set forth
my ideas of how to structure a new, simple and interim, fee system.
I believe there is enough information contained in this letter to allow you to pro-
ceed. I have prepared an attachment showing the figures which are explained in
the following paragraphs.
It is assumed that the vehicles counted during the survey week are sufficiently
representative of the annual volume as to be used directly. For this purpose,
no seasonal variation was applied, nor was any annual change made from the
time of the survey week through the several years in this analysis. The purpose
of this analysis is to determine approximately what the new capital equipment
costs and operational costs will be and how they can be financed.
EXH IB IT 4-1
-------
Mr. Leo Johnson
Director of Public Works Page Two
City of Des Moines, Iowa January 25, 1968
It is further assumed that the time remaining at this site would not warrant the
expenditure necessary to install the scale systems required to charge fees based
on tonnages. If tonnages are removed from consideration and the fees are de-
signed to provide financing for interim improvements and operation, we recom-
mend that a simple fee system be installed which will produce the required rev-
enues. We recommend a fee be charged for pick-up trucks and light trailers at
$1. 00 per vehicle and for other trucks and trailers at $2. 00 per vehicle. No
charge would be made for City Vehicles or for automobiles. This fee is extreme-
ly low when compared to other communities, primarily because there are no land
costs and existing facilities will be used for the remaining life of the sites. The
number of vehicles are shown in Part A of the attachment.
The revenue to be produced from fees is shown in Part B. This is self-explana-
tory except for the diversion. We have estimated that approximately 25% of
the disposed waste will be diverted to some place other than the two City
sites. This number is largely an enlighted speculation, but appears reasonable.
As shown in Part B, an annual revenue of $287, 000 can be expected from non-
City trucks using the two sites. As shown in Part C, an annual benefit of $32, 000
worth of disposal service will be supplied to the City without fees; however, this
same sum is suggested as a budgeted item in Part "G".
The new operational costs have been estimated by Harold Smith based on quanti-
ties and equipment suggested by the consultant. Likewise, the new equipment
cost, amortization and rentals have been estimated by Harold using the depart-
ment records and procedures. We have used these costs as he produced them,
except for increasing the miscellaneous costs from $2, 000 to $12, 000.
The costs of operations under new conditions are summarized in Part D and the
cost of the new equipment is shown in Part E. It should be noted that the equip-
ment rental in Part D includes the maintenance, repair and amortization of equip-
ment. The full price of the equipment will be returned to the garage fund through
this amortization. It is customary to buy this equipment through a budget item
when the equipment is first purchased and then build the price of a replacement
through rentals so the equipment can be replaced, when it is worn out. Thus,
there are always funds for a new one after the original purchase. In this case,
the cost of the equipment is not budgeted. It is suggested that the equipment be
purchased with funds borrowed from the equipment fund. The rentals will re-
place it, but it is also proposed to replace the originally borrowed funds through
a "surplus" or "reserve for debt" accumulated each year.
EXH I B I T 4 - I 0
-------
Mr. Leo Johnson
Director of Public Works Page Three
City of Des Moines, Iowa January 25, 1968
The costs for each of three (3) years are shown in Part F. The first year, 1968,
shows 6 months of present operations and 6 months of new operations using the
new equipment. The next two years 1969 and 1970 show the costs for a full year.
Revenue for 1968 through 1970 is shown in Part G. The first year includes the
1968 budget and 6 months of fees. The second and third years contemplate bud-
gets of $32, 000 which is equal to the fees for City trucks if fees were charged
for these vehicles. The reduction in budget from the present $153, 000 to $32, 000
is equal to $121, 000 per year. A comparison of costs and revenue and the result-
ing reserve or surplus expected each year is shown in Part H.
New equipment valued at $190, 000 is required for the new and improved oper-
ations. This equipment has an annual depreciation of $31, 700, when considering
trade-in value and depreciation.
Part I shows the value of the equipment at the end of the year, the debt to the
garage fund, the equity in the equipment earned to the end of the year and equity
gain this year. It can be seen that the surplus or reserve is reducing the debt to
the garage fund much faster than the equipment is depreciating.
At the end of the first year, which represents only 6 months of the new operation,
the equipment has depreciated from $190, 000 to $174, 000 in value. When the
surplus or reserve is applied to the purchase debt, the City has only a $117, 500
investment in it and the equipment is being replaced through the amortization part
of the rental rate. At the end of 1968, the City gained a $56, 500 equity in the
equipment.
A similar analysis is shown for 1969 and 1970. Under the conditions shown, the
original equipment cost of $190, 000 would be returned to the garage fund 7 months
into the third year or after approximately 25 months of operations.
It is doubtful that you could be using this equipment at this site during the entire
time shown to pay off the original investment. It can be seen, however, as ex-
plained above, that the value of the depreciated equipment is always greater than
the outstanding debt. If, at the end of 1968, the City wished to discontinue this
equipment they would have $174, 000 worth of equipment with a debt of $117, 500
plus that portion of the rental applied to replacement. They could sell it or use
it for other City operations with no loss and probably a profit.
453-956 O - 72 - 19
EXHIBIT A - I b
-------
Mr. Leo Johnson
Director of Public Works Page 1-our
City of Des Moines, Iowa January 25, 1968
If the City would wish to eliminate their budgeted amount completely, they could
do so by raising the fee or cutting the surplus or reserve. They could also charge
more for packer trucks. I suggest you try this approach and if you need more
information, I will get it for you.
Very truly yours,
HENNINGSON, DURHAM & RICHARDSON
VEENSTRA & KIMM
By
R. J. Peterson, P. E.
Project Engineer
Attachment
RJP:ea
cc: Veenstra & Kimm
Attn: Mr. Glenn
EXHIBIT 4 - 1C
-------
ATTACHMENT
A.
VEHICLES PER WEEK
Total Vehicles
Autos
City Packers
Other City Trucks
Vehicles other than Autos and
City Vehicles
Pick Up Trucks
Light Trailers
Other Trucks
B. REVENUE FROM FEES
Pick-up Trucks
Light Trailers
Sub-Total
DM #1
3,119
466
181
52
2,420
1, 161
134
1, 125
DM #2
2,073
77
0
82
1,914
700
78
1, 136
1,861
212
2,073 @$1. OO/ Vehicle
2,261 @$2. OO/Vehicle
Total
Less Diversion Est. @ .25
Annual Revenue $5,512 x 52 = $287, 000/Yr.
VALUE OF FREE SERVICE TO CITY VEHICLES
Total
5,192
543
181
134
4,334
1,861
212
2,261
$2,073/Wk.
$4,522/Wk.
$6,595
- 1,083
$5,512/Wk.
D.
Packers, City
Other, City
Sub-Total
COST OF NEW OPERATION
181
134
315 per week x 52 = 16, 000 per Yr.
16, 000 Vehicles @ $2. 00 = $32, 000/Yr.
Personnel
Equipment Rental
Miscellaneous Expense
$137, 000/Yr.
96,000
12,000
$245, 000/Yr.
EQUIPMENT COST AND DEPRECIATION
Capital Cost of New Equipment Required
Depreciation on New Equipment/Yr.
$190,000
31,700
EXHI BIT 4 - Id
-1-
-------
F. COST
1. 1st Yr. 1968
6 Mo. Present Operation (153, 000 + 2) $ 76,500
6 Mo. New Operation (245,000 + 2) 122,500
Special 1st Yr. Improvements 25,000
Total Cost $224,000
2. 2nd Yr. 1969
1 Yr. New Operation $245,000
3. 3rd Yr. 1970
1 Yr. New Operation $245,000
G. REVENUE
1. 1st Yr.
Present Budget $153,000
6 Mo. Fees (287,000 +2) 143,500
Total Cost $296,500
2. 2nd Yr.
New Budget $ 32,000
Fees 1 Yr. 287,000
Total Cost $319, 000
3. 3rd Yr.
Same as 2nd Yr. $319,000
H. COST VS. REVENUE
Cost Rev. Reserve or
Surplus
1. First Year $224,000 $296,500 $ 72,500
2. Second Year 245,000 319,000 74,000
3. Third Year 245,000 319,000 74,000
-2-
EXH (BIT 4- - I e
-------
Mr. Leo Johnson
Director of Public Works Page Three
City of Des Moines, Iowa January 25, 1968
The costs for each of three (3) years are shown in Part F. The first year, 1968,
shows 6 months of present operations and 6 months of new operations using the
new equipment. The next two years 1969 and 1970 show the costs for a full year.
Revenue for 1968 through 1970 is shown in Part G. The first year includes the
1968 budget and 6 months of fees. The second and third years contemplate bud-
gets of $32, 000 which is equal to the fees for City trucks if fees were charged
for these vehicles. The reduction in budget from the present $153, 000 to $32, 000
is equal to $121, 000 per year. A comparison of costs and revenue and the result-
ing reserve or surplus expected each year is shown in Part H.
New equipment valued at $190, 000 is required for the new and improved oper-
ations. This equipment has an annual depreciation of $31, 700, when considering
trade-in value and depreciation.
Part I shows the value of the equipment at the end of the year, the debt to the
garage fund, the equity in the equipment earned to the end of the year and equity
gain this year. It can be seen that the surplus or reserve is reducing the debt to
the garage fund much faster than the equipment is depreciating.
At the end of the first year, which represents only 6 months of the new operation,
the equipment has depreciated from $190, 000 to $174, 000 in value. When the
surplus or reserve is applied to the purchase debt, the City has only a $117,500
investment in it and the equipment is being replaced through the amortization part
of the rental rate. At the end of 1968, the City gained a $56,500 equity in the
equipment,
A similar analysis is shown for 1969 and 1970. Under the conditions shown, the
original equipment cost of $190, 000 would be returned to the garage fund 7 months
into the third year or after approximately 25 months of operations.
It is doubtful that you could be using this equipment at this site during the entire
time shown to pay off the original investment. It can be seen, however, as ex-
plained above, that the value of the depreciated equipment is always greater than
the outstanding debt. If, at the end of 1968, the City wished to discontinue this
equipment they would have $1 74, 000 worth of equipment with a debt of $117, 500
plus that portion of the rental applied to replacement. They could sell it or use
it for other City operations with no loss and probably a profit.
453-956 O - 72 - 19
EXHIBIT 4-lb
-------
Mr. Leo Johnson
Director of Public Works Page i-our
City of Des Moines, Iowa January 25, 1968
If the City would wish to eliminate their budgeted amount completely, they could
do so by raising the fee or cutting the surplus or reserve. They could also charge
more for packer trucks. I suggest you try this approach and if you need more
information, I will get it for you.
Very truly yours,
HENNINGSON, DURHAM & RICHARDSON
VEENSTRA & KIMM
By
/\ Jl~*
R. J. Peterson, P. E.
Project Engineer
Attachment
RJP:ea
cc: Veenstra & Kimm
Attn: Mr. Glenn
EXH I BIT 4 - 1C
-------
ATTACHMENT
A. VEHICLES PER WEEK
Total Vehicles
Autos
City Packers
Other City Trucks
Vehicles other than Autos and
City Vehicles
Pick Up Trucks
Light Trailers
B.
D.
Other Trucks
REVENUE FROM FEES
Pick-up Trucks
Light Trailers
Sub-Total
DM #1 DM #2
3,119 2,073
466 77
181 0
52 82
2,420 1,914
1,161 700
134 78
1,125 1,136
1,861
212
2,073 @$1. 00/Vehicle =
2,261 @$2. 00/Vehicle =
Total
Less Diversion Est. @ .25
Annual Revenue $5,512 x 52 = $287,000/Yr.
VALUE OF FREE SERVICE TO CITY VEHICLES
Packers, City
Other, City
Sub-Total
COST OF NEW OPERATION
Total
5,192
543
181
134
4,334
1,861
212
2,261
$2,073/Wk.
$4,522/Wk.
$6,595
- 1,083
$5,512/Wk.
181
134
315 per week x 52 = 16, 000 per Yr.
16, 000 Vehicles @ $2. 00 = $32, OOO/Yr.
Personnel
Equipment Rental
Miscellaneous Expense
$137,000/Yr.
96,000
12,000
$245, OOO/Yr.
EQUIPMENT COST AND DEPRECIATION
Capital Cost of New Equipment Required
Depreciation on New Equipment/Yr.
-1-
$190,000
31,700
EXHI BIT 4 - Id
-------
F. COST
1. 1st Yr. 1968
6 Mo. Present Operation (153, 000 + 2) $ 76,500
6 Mo. New Operation (245,000 + 2) 122,500
Special 1st Yr. Improvements 25, 000
Total Cost $224, 000
2. 2nd Yr. 1969
1 Yr. New Operation $245,000
3. 3rd Yr. 1970
1 Yr. New Operation $245,000
G. REVENUE
1. 1st Yr.
Present Budget $153,000
6 Mo. Fees (287,000 +2) 143,jOO
Total Cost $296, 500
2. 2nd Yr.
New Budget $ 32,000
Fees 1 Yr. 287,000
Total Cost $319, 000
3. 3rd Yr.
Same as 2nd Yr. $319, 000
H. COST VS. REVENUE
Cost Rev. Reserve or
Surplus
1. First Year $224,000 $296,500 $ 72,500
2. Second Year 245,000 319,000 74,000
3. Third Year 245,000 319,000 74,000
-2-
EXHI BIT <* - I «
-------
I. EQUIPMENT CAPITAL DEBT
1. Original Cost of Equipment $190,000
2. Depreciation per Year 31,700
3. First Yr. (6 Mo. of New Equip.)
a. Depreciation 6 Mo. (31,700+ Z) 16,000
b_. Value of Equipment at end of 6 Mo.
190,000 - 16,000 174,000
c_. Cost less surplus (debt) 190,000 - 72,500 ^17,500
d_. Equity gain in Equip, this 6 Mo. $ 56,500
4. Second Year
a. Value of Equipment end of Yr.
174,000-31,700= $142,300
b. Debt Less Surplus (New Debt)
117,500 - 74,000 = 43,500
c. Equity in Equip, at end of Yr.
142,300-43,500= 98,800
d. Equity in Equip. Gain this Yr.
98,800 - 56,500 = 42,300
5. Third Year
a. Value of Equip. End of Yr.
142,300-31,700= $110,600
b. Debt Less Surplus
43,500-74,000 -(30,500)
c. Equity in Equip, at end of Yr.
110,600 - (-30,500) = 141,100
d. Equity in Equip, gain this Yr.
141,100 - 98,800 = 42,300
-3-
453-956 O - 72 - 20
-------
(Estimate Received from Harold Smith - January 22, 1968
Attached to letter to Mr. Johnson dated - January 25, 1968)
Proposed Landfill Dirt Operation
Stagger truck starting time to avoid stockup at beginning of day.
Loader to have two (2) cubic yard bucket.
Loading time per truck;
50 seconds per cycle x 6 cycles per load =
300 seconds =
Dump time per truck -
Maximum travel time round trip =
Total Time per truck
8 hr. 30 min. day
30 min. for lunch
300 seconds
5 minutes
3 minutes
20 minutes
28 minutes
7 hr. 60 min.
- 30 min. coffee break
7 hr. 30 min. = 450 minute working day
450 minute working day = 16 loads/truck
28 minute total time
Based on five (5) trucks
5 trucks x 16 loads x 10 cu. yd. - 800 cu. yds/day
Landfill Operation needs 130,000 cu. yds/year
Based on hauling 5 days/week trucks would have to provide 510 cu. yds/day,
EXHIBIT
-------
Proposed Landfill - New Equipment Needs
Guaranteed
1.
2.
3.
D8H
Description
D8H Class Dozer
977 Class Loader
Tandem Axle 10 cu.
Trucks (5)
Initial Cost
$72,000
Basic Cost
60,000
35,000
yd.
75, 000
Trade-In 3 Yr
$36,000
Depreciation
Maint. Lubrication - Fuel
Overhead
Hourly Rental Rate
Maintenance Cost
$5.
$2.
$7.
1.
$9-
$12,000
8,000
3 Year
Depreciation
36,000
77 / hour
00/hour
77. hour
33/hour (
10/hour
(3 yr) Total Cost
$72,
43,
75,
$190,
1 Year
000
000
000
000
Depreciation
12,000
17%)
977
Initial Cost
$43,000
Trade-in 3 Yr.
$21,500
3 Year
Depreciation
$21,500
1 Year
Depreciation
7, 167
Depreciation $3.45/hour
Maint. Lubrication - Fuel 1. 75/hour
5. 20
Overhead .90
Hourly Rental Rate $6. 10/hour
((2080 hours)
(17%)
Tandem Axle 10 Cu. Yd. Trucks (diesel)
Initial Cost Trade-in 5 Yr.
$15,000
5 Year
Depreciation
12,500
2, 500
Depreciation $1.20/hour
Maint. Lubrication - Fuel 1. 20/hour
$2.40/hour
Overhead _ .41
Hourly Rental rate $2.80/hour
1 Year
Depreciation
FTsoo
EXHIBIT 4-lh
-------
Proposed Landfill
Personnel Needed
1. Landfill Foreman (2080)
L. Laborers (Z040)
3. Laborers (Casual) (2080)
4. Medium Equipment Operator
5. Light Equipment Operator
6. Truck Drivers (2040)
2x7,
7x5,
2x5,
4x7,
1 x 6,
684.04
834.40
948,80
684.04
670
04 =
5x6, 384.04 =
$15,368.08
40,840.80
11,897. 60
30,736.16
6,670.04
31,920.20
$137,432.88
Equipment Rental
1. Case Loader
2. D 10 Dozer
3. D 11 Dozer
4. New D8H Class Dozer
5. New 977 Class Loader
6. Trucks (5)
Misc.
2,040 hours @$9.50
2, 040 hours @$6. 50
2,040 hours @$9.10
2, 040 hours @$6. 10
10,200 hours @$2.80
Maintenance of Building
Pick-Up Truck
3,700.00
19,380.00
13,260.00
18,564.00
12,444.00
28,560.00
$95,908.00
$ 1,000.00
1,000.00
$ 2,000.00
Total Cost of Proposed Landfill First Year
Personnel
Equipment Rental
New Equip. Purchase
Misc.
Budgeted 1968
$137,432.88
95,908.00
190,000.00
2,000.00
$425,340.88
152,872^00
$272,468.88 Additional Needed
EXHIBIT 4-11
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EXHIBIT 4-2
COST OF ONE SANITARY LANDFILL VS. TWO SITES
In Part Four, Section G it was shown that there was no suitable location within
several miles of the "Waste Centroid Total Study Area". It was necessary to
consider more than one site.
The Study Area is large enough to operate two large sites in lieu of one giant
site without a serious increase in unit cost.
In the cost estimates shown in Table 4-4 for the two sites which were recommended,
a total annual cost of $573, 640 is estimated for the 1968 quantities. If a single
site was selected these costs could probably be reduced by approximately $50,000
per year; however, the additional haul cost from the side of the study area with-
out the site would soon exceed this potential paving. For example, at $6. 00 per
haul-hour, the $50, 000 would be consumed in 8, 300 haul hours. If 150, 000
vehicle round trips were made per year, to consume 8,300 additional haul hours,
only 3. 3 minutes of extra round trips would be required. (8, 300-f- 150, 000) x 60.
It is apparent that two sites can easily be justified.
EXHIB.IT 4-2
-------
EXHIBIT 5-1
INTERGOVERNMENTAL AGREEMENT CREATING
THE METROPOLITAN AREA
SOLID WASTE AGENCY
By virtue of this agreement made and entered into by, between and among the
Town of Altoona, Iowa, the City of Ankeny, Iowa, the Town of Bondurant, Iowa,
the Town of Carlisle, Iowa, the Town of Clive, Iowa, the City of Des Moines,
Iowa, the Town of Grimes, Iowa, the Town of Norwalk, Iowa, the Town of
Pleasant Hill, Iowa, the County of Polk, Iowa, the City of Urbandale, Iowa, the
County of Warren, Iowa, the City of West Des Moines, Iowa, and the City of
Windsor Heights, Iowa, (all parties being hereinafter called the "Municipalities"),
there is hereby formed the Des Moines Metropolitan Area Solid Waste Agency
(hereinafter called the "AGENCY"), consisting of elected representatives of the
governing bodies of the Municipalities which said Municipalities represent a ma-
jority of the local governmental jurisdictions comprising the Des Moines metro-
politan area.
WITNESSETH:
I.
AUTHORITY
The Municipalities enter into this agreement under and by virtue of the power to do
so granted by Chapter 28E, Code of Iowa, 1966.
II.
PURPOSES
1. The purposes of the AGENCY are as follows:
(a) To provide for the economic collection and disposal of all solid
waste produced or generated within each member city, town,
and that portion of each such county as the Board of Supervisors
shall determine to be part of the metropolitan area, comprising
the Municipalities.
(b) To cooperate with local, State and Federal public health agen-
cies in preventing the contamination and pollution of the land,
water and air resources of the area, through the control, col-
lection and disposal of solid waste.
(c) To engage such employees and provide offices, equipment,
machinery, buildings and grounds as are necessary to adequately
perform the functions of the AGENCY.
EXHIBIT S-l
-------
(d) To contract with member cities, towns and counties and with
public or private persons, firms or corporations for the col-
lection and disposal of solid waste, and collect payment for
such services, and to receive and expend State, Federal and
private grants and other monies which may be made available,
to the extent permissible under applicable State and Federal
laws, and under the rules hereinafter set forth.
III.
ORGANIZATION
(a) The Governing body shall be designated as the AGENCY BOARD
(hereinafter called the "Board"), consisting of an elected rep-
resentative of the governing bodies of each participating govern-
mental jurisdiction, or his designated substitute, which sub-
stitute shall be approved by the body he represents.
(b) Each member of the Board shall have one vote for each 50,000
population or fraction thereof, residing in the government juris-
diction he represents. Such population shall be ascertained
from the most recent Federal Census for that jurisdiction.
(c) A quorum shall consist of a majority of the entire Board mem-
bership, regardless of the number of votes held by each member
present.
(d) The Chairman and the Vice-Chairman of the Board shall be elec-
ted by majority of Board membership and shall serve for a term
of one year or until their respective successors in office are
chosen. The incumbent in each said office may succeed himself.
(e) The Board shall hold at least one meeting during each quarter
of the year on dates and at places which shall be determined by
the Board. Special meetings may be held at the call of the Chair-
man, Vice-Chairman or majority of the membership of the
Board.
(f) The Board shall hire a Director and such other supervisory,
clerical, and other personnel as are necessary to carry out the
functions of the AGENCY. The Board shall fix their compen-
sation and benefits, and shall approve all personnel rules and
regulations pertaining thereto.
(g) The Director shall be the Secretary and Treasurer of the AGENCY
and shall have the authority, duties and obligations normally
associated with these offices, including but not limited to the re-
ceipt and disbursement of funds and the preparation and sub-
mission of quarterly and annual financial reports to the Board.
EXHIBIT S-lo
-------
(h) The Board may employ legal counsel, who may be a paid em-
ployee of one of the members, and who may receive compen-
sation set by the Board for the performance of his duties.
IV.
DURATION
1. It is the intention of this agreement that the AGENCY be a per-
manent organization. Additional municipalities may be added to the member-
ship of the AGENCY upon a three-fourths vote of all of the members of the Board.
2. In the event an additional municipality shall apply for membership
in the AGENCY and said application is considered and approved by the then ex-
isting Board, then said municipality may be added to the membership, provided
however, that said additional municipality as a condition of membership agrees
to abide by the terms of this agreement as set out herein and possess legal power
and authority to so do.
V.
POWERS
1. The Municipalities delegate the following powers to the AGENCY
and Board:
(a) To cause the collection and disposal of solid waste materials de-
termined by the Board to be appropriate.
(b) To contract with all levels of government, other public agencies,
private agencies and private individuals, toward the accomplishment of the
stated purposes of the AGENCY, within the limits authorized by law.
(c) To receive funds from each member Municipality as payment
for providing collection and disposal of domestic refuse from residents there-
in; provided however, that in lieu of receiving such funds from member muni-
cipalities, it shall have the power to bill individuals directly for payment for
collection services and to receive such payments, for and on behalf of the muni-
cipalities.
(d) To charge a disposal fee to be collected from all such users of
the AGENCY'S disposal facilities as the Board shall direct.
(e) To hire employees, fix their compensation, benefits, personnel
rules and regulations, and terminate their employment.
(f) To purchase, lease, receive as gifts or donations, or otherwise
acquire all land, buildings, equipment and supplies necessary to carry out the
functions of the AGENCY, and to dispose of the same.
EXHIBIT 5-lb
-------
(g) To make or cause to be made studies and surveys necessary to
carry out the functions of the AGENCY.
(h) To contract with and compensate consultants for professional
services including but not limited to architects, engineers, planners, lawyers,
accountants, rate specialists, and all others found necessary to the stated
purposes of the AGENCY,
(i) To issue revenue bonds for the purchase of land and equipment
and erection of buildings and other improvements, and to provide for their re-
tirement.
(j) To prepare and recommend to member Municipalities local or-
dinances governing refuse collection transportation and disposal, regulation of
private collection haulers, land use regulations, sanitation, burning of private
or public wastes, incineration standards and such other regulations as may
from time to time be required.
(k) To exercise any and all powers relative to the efficient collection
and disposal of solid waste available under then existing laws to each member
Municipality.
(1) To prepare by-laws, rules and regulations, fee schedules, and
entrance and termination forms and procedures for membership in the AGENCY.
(m) To provide for a system of budgeting, accounting, auditing and
reporting of all AGENCY funds and transactions, for a depository, and for the
bonding of employees.
(n) To consult with representatives of Federal, State and local agen-
cies, departments and their officers and employees and to contract with such
agencies and departments.
(o) To exercise any and all other powers consistent with the stated
purposes of the AGENCY available under then existing law to each member
Municipality.
VI.
TECHNICAL COOPERATION FROM MUNICIPALITIES
1. The Municipalities agree to respond to reasonable requests to
make local records available to the AGENCY staff and its consultants or em-
ployees for the purposes of this agreement, and to assure that engineers, archi-
tects and consultants hired by the Municipalities release materials, data and
other pertinent items paid for by public funds to the AGENCY staff to aid in
the efficient and effective accomplishment of such purposes.
EXHIBIT 5-IC
------- OCR error (C:\Conversion\JobRoot\00000DGZ\tiff\20017ZCU.tif): Saving image to "C:\Conversion\JobRoot\00000DGZ\tiff\20017ZCU.T$F.T$F" failed.
-------
payable within six months of the beginning of the budget year in which the item
appears. A withdrawing Municipality may waive its pro-rata share of any
real or personal property in the possession of the AGENCY.
2. The AGENCY shall be completely dissolved and this agreement
terminated only upon the affirmative three-quarters majority vote of the Board.
3. In the event of complete dissolution of the AGENCY, any real
or personal property shall be sold and the proceeds prorated among the Muni-
cipalities at the time of dissolution on the basis of the sum of the portions
of the budget for the AGENCY provided by them for and during the period of
this agreement. The current budget year shall be used as one of the years in
the calculation if all Municipalities have made their proper contribution. If
all members have not made their proper contribution, the balance remaining
of funds collected during the current year shall be refunded to the contributors
before determining the value of the assets of the AGENCY at dissolution, and
said year shall not be used in calculating the shares.
X.
MANNER,OF ACQUIRING AND HOLDING PROPERTY
1. The Board may lease, purchase, or acquire by any other means,
from members or from any other source, such real and personal property as
is required for the operation of the AGENCY and the carrying out of the pur-
poses of this agreement. The Board shall maintain title to all such property in
the name of the AGENCY and shall require the Secretary to maintain an inven-
tory. Property, materials and services shall be acquired or disposed of only
upon a majority vote of a quorum attending a duly called Board meeting, provided
however, that by the same vote, the Board may authorize the Director to expend
such funds as the Board may direct for other authorized purposes of the AGENCY.
EXHIBIT B-l«
-------
EXHIBIT 5-2
PROPOSED REFUSE DISPOSAL ORDINANCE
FOR CITIES AND TOWNS CONTRACTING WITH THE
METROPOLITAN SOLID WASTE AGENCY
Ordinance No.
AN ORDINANCE PROVIDING FOR MUNICIPAL DISPOSAL OF GARBAGE AND
REFUSE; DEFINING TERMS; PRESCRIBING RULES AND REGULATIONS
THEREFOR; REGULATING THE PRIVATE DISPOSAL OF GARBAGE AND REF-
USE; PROVIDING FOR THE LICENSING AND REGULATION OF PRIVATE
LANDFILL OPERATORS AND DISPOSAL SITES; PROVIDING PENALTIES FOR
VIOLATION THEREOF; AND REPEALING ORDINANCE NO. AND ALL
OTHER ORDINANCES AND PARTS OF ORDINANCES IN CONFLICT THEREWITH.
BE IT ORDAINED BY THE CITY (TOWN) COUNCIL OF THE CITY (TOWN) OF
Section 1, For the purpose of this Ordinance the following definitions
shall apply:
1. 1 "Agency" shall mean the Metropolitan Area Solid Waste
Agency.
1. 2, "Garbage" shall mean any and all refuse from food inci-
dental to its preparation or use for human consumption.
1. 3 "Refuse" shall mean any and all solid waste from the
City (Town) of .
Section 2. By virtue of contract dated ,
between the City (Town) of and the
Agency; the sanitary landfill sites now and hereafter operated by the
Agency are hereby designated as the public disposal sites for all gar-
bage and refuse collected within the corporate limits of the City (Town)
of .
Section 3. The rules and regulations governing the use of the sanitary
landfill sites shall be as determined by the Agency to be in the best
interests of the general public.
3. 1 The landfill sites shall normally be open to the public
on such days and hours as the Agency may designate;
however, the Agency may alter the days and hours so
scheduled to satisfy unusual conditions or emergencies.
EXHIBIT 5-2
-------
3. 2 The Agency shall be responsible for the operation of
the landfill sites in a manner -which will assure sani-
tary and safe conditions at all times.
3. 3 The operation of the landfill sites shall comply with
all regulations of all Local, State, County or Federal
Agencies, which may have jurisdiction over such op-
eration.
Section 4. No person, firm or corporation shall permanently dispose of
garbage or refuse of any kind upon any land within the corporate limits
of the City (Town) of , unless such land has been
designated by the Agency as a licensed private landfill site, or a public
landfill site; provided, however, that the prohibition contained in this
paragraph shall not apply to the deposit of inert wastes, not potentially
injurious to health or the public welfare; where permission to make such
a deposit has been obtained from the Owner or responsible agent, nor to
the filling in or grading of property with earth, mud, ashes or similar ma-
terials; providing all other applicable Local and State laws have been
complied with.
Section 5. No person, firm or corporation shall deposit any garbage or
refuse at any licensed private or Agency landfill site, except in com-
pliance with posted instructions or instructions of an attendant in charge.
Section 6. Certain materials may be excluded from those refuse ma-
terials, which may be deposited at an Agency landfill site. These ex-
cluded materials may include junk automobile bodies and similar bulky
objects, which may require special processing prior to disposal; trees
and tree limbs, unless they have been cut into pieces not exceeding t >.
feet in length; burning materials or materials containing hot or live
coals; hazardous materials; and other materials which the Agency deems
necessary to exclude. However, hazardous materials may be deposited
upon the receipt of written permission of a responsible official or atten-
dant of the Agency and subject to any special instructions issued with said
permission. Hazardous material shall include: explosive materials,
materials contaminated by infectious or contagious disease, fly ash or
other fine or powdery material, and other material which may present
a special hazard to landfill personnel, equipment or to the public.
Section 7. No person, firm or corporation shall operate or permit the
operation of a private landfill in the City (Town) of ,
for the disposal of garbage or refuse of any kind from any source unless
he shall have first applied for and received a permit to do so from the
Agency. The issuance of this permit shall be in the manner prescribed
by the Agency and subject to all other applicable Ordinances of the City
(Town) of , Application for such a permit shall
set forth how the landfill shall be operated and shall include in part: a
topographic map of the parcel of land to be used showing location, drainage,
EXHIBIT 5-20
-------
fencing and access; plans or other suitable evidence of adequate fire
protection and provision for control of rodents, insects and litter;
agreement to operate the disposal area as a sanitary landfill only;
description of method of filling, equipment to be used; source of earth
or other suitable cover; agreement to compact and completely cover
all garbage and refuse deposited each day, to allow no burning of any
material whatsoever, and to promptly extinguish any fires or combus-
tion which may accidently occur or be started by others; agreement to
maintain his landfill site and the vicinity in a safe and sanitary manner,
to allow no public nuisance, and to provide a responsible person who
will be in constant attendance during the hours of active operation; agree-
ment to operate his landfill in accordance with all local, county, state and
federal regulations and to permit access to the landfill site by any health
officer or governmental representative or agent who may have jurisdiction
for the purposes of inspection.
An annual license fee of $100. 00 per year shall be paid to the Agency for
each location at which a landfill is conducted.
Section 8. If any private landfill operation is found to be conducted in a
way detrimental to the health and welfare of the public, or contrary to
provisions of this ordinance, the City (Town) and the Agency shall notify
the operator in writing of the objectionable conditions and give him a
reasonable time to correct said conditions. After proper notice, the
Agency is authorized to enter upon the premises and use any of the Agen-
cies forces and equipment, or those of the landfill operator, or hire
forces and equipment, to correct the objectionable conditions. The same
shall be considered of benefit to the Owner of the land and the cost of
such corrective action shall be chargeable to the Owner, and if not paid,
shall constitute a lien upon the premises and shall be collected in the same
manner as taxes as provided by law.
Section 9. It shall be unlawful for any person, firm or corporation to
receive payment of any kind or request payment of any kind for the disposal
of any garbage or refuse at a private licensed sanitary landfill site with-
in the City (Town) of
The charging of a fee for the collection and disposal of any garbage or re-
fuse from a customer by a private refuse collector, shall not be con-
strued as a violation of this Section since the disposal is considered to be
incidental to the total collection and disposal service, provided however,
such collection and disposal shall be conducted entirely by forces and
with equipment owned or operated by the private refuse collector.
Section 10. It shall be unlawful for any person, firm or corporation with-
in the City (Town) of to sell or offer for sale,
or to install or offer to install, any device intended for use as a garbage
or refuse burner or incinerator; except when the intended user of such a
EXHIBIT 5-2b
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device has secured a license to operate or use such a device from the
City (Town) of , or when the device will be opera-
ted by or for the City (Town) of
Section 11. It shall be unlawful for any person, firm or corporation to
burn or incinerate or permit the burning or incineration of any garbage
or refuse within the City (Town) of . This section
shall apply to all garbage and refuse as defined, and shall specifically
include all waste paper, boxes, market waste, garden wastes, trees,
tree limbs, leaves and any and all materials other than materials used as
a fuel in a furnace or boiler.
This section shall not apply to any incinerator operated under a license
granted by the City (Town) of , or any incinerator
operated by or for the City (Town) of , or
any burning conducted under the direction of the Fire Department of the
City (Town) of
Section 12. Fees paid to the Agency for the use of the public landfill
facilities, shall be in accordance with the posted and published schedule
of fees of the Agency, as provided in the contract referred to in Section 2,
Section 13. It shall be the duty of the police department and all police
officers of the City (Town) of , to en-
force the provision of this ordinance.
Section 14. Ordinance No. and all ordinance or parts of ordi-
nances in conflict with this ordinance are hereby repealed.
Section 15. If any section, subsection, sentence or part of this ordinance
is for any reason held to be invalid or unconstitutional, such decision
c.iall not affect the validity of the remaining portions of this ordinance.
Section 16. Any person, firm or corporation violating any of the pro-
visions of this ordinance shall upon conviction be subject to a fine of not
more than $100.00 or to imprisonment for not more than 30 days.
Section 17. This Ordinance shall be in full force and effect from and
after its passage and publication as provided by law.
PASSED AND APPROVED this day of , 19
Mayor
Attest:
City (Town) Clerk
EXHIBIT 5-2C
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EXHIBIT 5-3
PROPOSED REFUSE COLLECTION ORDINANCE
FOR CITIES AND TOWNS CONTRACTING WITH THE
METROPOLITAN SOLID WASTE AGENCY
Ordinance No,
AN ORDINANCE PROVIDING FOR MUNICIPAL COLLECTION OF GARBAGE AND
REFUSE; DEFINING TERMS; PRESCRIBING RULES AND REGULATIONS THERE-
FOR; REGULATING THE PRIVATE COLLECTION OF GARBAGE AND REFUSE;
PROVIDING FOR THE LICENSING AND REGULATION OF PRIVATE GARBAGE
AND REFUSE COLLECTORS; PRESCRIBING RULES AND REGULATIONS FOR
HAULING GARBAGE, REFUSE AND OTHER WASTE MATERIALS WITHIN OR
THROUGH THE CITY (TOWN) OF^ ; PROHIBITING THE
DEPOSIT OF LITTER WITHIN THE CITY (TOWN) OF ;
PROVIDING PENALTIES FOR VIOLATION THEREOF; AND REPEALING
ORDINANCE NO. AND ALL OTHER ORDINANCES AND PARTS
OF ORDINANCES IN CONFLICT THEREWITH.
BE IT ORDAINED BY THE CITY (TOWN) COUNCIL OF THE CITY (TOWN) OF
Section 1 , For the purpose of this Ordinance the following definitions
shall apply:
1. 1 "Agency" shall mean the Metropolitan Area Solid Waste
Agency,
1. Z "Garbage" shall mean any and all refuse from food inci-
dental to its preparation or use for human consumption.
1, 3 "Refuse" shall mean all solid waste from residential,
commercial or industrial premises. It shall include
semi-liquid or wet wastes with insufficient moisture
and other liquid contents to be free flowing- It shall not
include any construction materials except minor amounts
incidental to other wastes.
Section Z, By virtue of contract dated ,
between the City (Town) of and the Agency;
the Agency is authorized to employ such personnel and equipment as
are necessary to collect all garbage and refuse from dwellin-gs (specify
whether all dwellings, single-family only, etc.) in the City (Town of
, subject to the following terms and condi-
tions ;
EXHIBIT 5-3
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2. 1 Collections shall be made not less than once a week,
at such time and in such areas of the City (Town) as
shall be set out in schedules agreed upon by the City
Manager (Mayor) and the Agency.
2.2 The City Manager (Mayor) and the Agency are auth-
orized and empowered, jointly, to change or amend
such schedules from time to time as they, in their
discretion, shall deem necessary.
2. 3 Collections may be made either from streets or al-
leys, where existing, at the discretion of Agency per-
sonnel.
2.4 Containers shall be placed out-of-doors at some easily
accessible place.
Section 3. Refuse containers and garbage containers shall not be more
than 30 gallons nor less than 10 gallons in nominal capacity; except
where only one container is used, in which case this container may be
less than 10 gallons in capacity. Containers shall be waterproof and fit-
ted with a tight lid. The containers shall have handles, bails or other
suitable lifting devices or features. The containers shall be of a type
originally manufactured for refuse or garbage, with tapered sides for
easy emptying. They shall be of light weight and sturdy construction.
The weight of any individual container and contents shall not exceed
65 pounds. Galvanized iron and similar metal containers, rubber or
fiber glass containers, and plastic containers which do not become
brittle in cold weather, may be used. Disposable bags manufactured
for garbage and refuse disposal in suitable frames or containers shall
be acceptable. Oil or grease drums, paint cans, and similar salvaged
containers shall not be acceptable.
3. 1 All refuse and garbage shall be placed in suitable con-
tainers; except, it shall not be necessary to place books,
boxes, magazines, or newspapers in containers pro-
vided they are securely tied in bundles or completely
contained in disposable boxes not larger than 20 x 20 x 36
inches. Also tree limbs and brush may be securely tied
in bundles not larger than 48 inches long and 18 inches
in diameter.
3.2 Baskets, boxes and non-complying refuse or garbage cans
or containers shall be considered disposable refuse and
shall be removed by the Agency collection crews if they are
the proper size and otherwise acceptable for collection; or
shall be left uncollected if they are larger than the allow-
able size or unacceptable for collection.
EXHIBIT 5-3o
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3.3 Large bulky items such as furniture, large tree limbs
and appliances that cannot be reduced to fit approved
containers, will not be collected.
Section 4. Within the corporate limits of the City (Town) of
all garbage or refuse, consisting of waste
animal and vegetable matter, which may attract flies, dogs or rodents,
shall be drained of all excess liquid, wrapped in paper or disposable
containers, and placed or stored, until collected, in covered suitable
containers as described in Section 3.
Section 5. It shall be unlawful for any person to permit to accumulate on
any premises, improved or vacant, or on any public place in the City
(Town) of , such quantities of garbage or re-
fuse, either in containers or not, that shall, in the opinion of the Health
Officer, constitute a health or sanitation hazard.
Section 6. It shall be unlawful for any person to permit to accumulate
quantities of refuse, papers, trash, ashes, or other waste materials,
within or close to any building in the City (Town) of ,
unless the same is stored in containers in such a manner as not to create
a health or fire hazard.
Section 7. No person, firm or corporation shall engage in the business
of removing or hauling garbage or refuse from the premises of others
unless such person, firm or corporation shall have first applied for and
received a permit to do so from the City (Town) Clerk, (License Collec-
tor). Application for such permit shall specify the equipment or vehicles
to be used, the route to be traveled, the places to be served and the
name and address of the applicant. Such person, firm or corporation
shall pay an annual license fee of Five Dollars ($5.00) per year for each
vehicle engaged in such business to be paid at the office of the City (Town)
Clerk, (License Collector) in the City (Town) of , Iowa.
Such permit fee shall be payable commencing on the day of
, 19 , and shall be renewable each year
thereafter. All vehicles licensed under this section shall prominently
display the license number on the left and right sides of the vehicle in
letters not less than 3" high.
Section 8. Any person, firm or corporation authorized and licensed by
the Agency to remove or haul, garbage or refuse, shall be considered to
have met the provisions of Section 7, and no further permit or license
shall be required by the City (Town) of
EXHIBIT S-3b
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Section 9. No person, firm or corporation shall haul any garbage
or refuse upon the streets, alleys or public places of the City
(Town) of unless the same shall be in ap-
proved containers, securely fastened to prevent spillage, or in a totally
enclosed water tight vehicle. If, however, the material is a dry type
material it may be hauled in a totally enclosed vehicle, or open vehicle which
is covered with a suitable tight fitting canvas tarpaulin or similar cover to
prevent spillage. Licensed collectors who collect and haul garbage and/or
refuse shall haul these materials only in totally enclosed, watertight
vehicles or totally enclosed vehicles with water tight containers. AD
vehicles used for the collection and removal of garbage and refuse shall
be kept in a clean, inoffensive and sanitary condition. All garbage and
refuse shall be handled in such a way as to prevent the scattering, spill-
ing or leakage of same.
Section 10. No person, firm or corporation shall haul or cause to be
hauled any garbage, refuse or other waste material of any kind, to any
dumping place or site or area, within or without the corporate limits
of the City (Town) of , unless such place,
site or area is first approved by the Agency, or is an Agency operated
landfill site; in addition to complying with all applicable health and zoning
ordinances of the City (Town) of
Section 11. No person, firm or corporation shall deposit in a garbage or
refuse container or otherwise offer for Agency collection any hazardous
garbage, refuse, or waste. Hazardous materials shall be transported by
the owner, responsible person or his agent, to a place of safe deposit
or disposal as prescribed by the Agency Director or his authorized repre-
sentative. Hazardous materials shall include: explosive materials; rags
or other waste soaked in volatile and inflammable materials; drugs;
poisons; radio active materials, highly combustible materials; soiled
dressings, clothing, bedding and/or other wastes, contaminated by in-
fection or contagious disease, and other materials which may present a
special hazard to collection or disposal personnel or equipment or to the
public.
Section 1Z. No person, firm or corporation shall throw, rake, deposit,
dump, drop or spill litter, waste material or foreign material upon the
streets, sidewalks, or other public rights-of-way within the City (Town)
of . However, the Manager (Mayor) may at his
discretion proclaim a period when leaves may be placed in street rights-
of-way for collection.
Section 13. It shall be the duty of the police department and all police
officers of the City (Town) of , to enforce the
provision of this ordinance.
EXHIBIT S-3c
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Section 14. Ordinance No. and all ordinances or parts of
ordinances in conflict with this ordinance are hereby repealed.
Section 15. If any section, subsection, sentence or part of this ordi-
nance is for any reason held to be invalid or unconstitutional, such deci-
sion shall not affect the validity of the remaining portions of this ordi-
nance.
Section 16. Any person, firm or corporation violating any of the pro-
visions of this ordinance shall upon conviction be subject to a fine of
not more than $100, 00 or to imprisonment for not more than 30 days.
Section 17. This Ordinance shall be in full force and effect from and
after its passage and publication as provided by law.
PASSED AND APPROVED this day of , 19
Mayor
Attest:
City (Town) Clerk
EXHIBIT 5-3e
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EXHIBIT 5-4
METHODS OF DETERMINING A FEE FOR REFUSE DISPOSAL
There are four methods, in common usage, that are used to determine the fees
collected for the use of disposal sites. Each method is basically an approach to
measuring the quantity of waste as delivered to the landfill site, so that a fee
schedule may be adopted which will produce sufficient revenue to support the dis-
posal operation. The four methods include:
1. Fees based on tonnage of waste;
2. Fees based on the gross vehicle weignt;
3. Fees based on the gross volume of the hauling vehicle;
4. Fees based on the volume of the actual waste.
All of these methods have advantages and disadvantages. The tonnage basis is
recommended as being the fairest, most accurate and most practical to operate.
This method has the greatest initial cost because a scale house and two sets of
scales and equipment must be installed at each site. This cost has been estima-
ted at approximately $58, 000 for each site, and is included in the total landfill
site development cost presented in Part Four.
Each vehicle is weighed on the entrance scale and the gross weight of the vehicle
and load is automatically recorded on the scale mechanism and on a weight tick-
et. Upon exiting the site, the ticket is transferred to the exit scale where the
empty or tare weight of the vehicle is recorded. The net weight of the refuse
and the fee is determined and recorded on the ticket automatically. The driver
then pays the fee with a credit card, or uses prepaid coupons or may pay in
cash.
This method is fair, accurate and convenient. It removes any individual judg-
ment determination by employees or drivers. In addition, an efficient method
of record keeping and billing is built into the system.
Determining the fee by gross vehicle weight or by gross volume of vehicle are
both similar in procedure and method. They have the advantage of not requir-
ing any initial investment. The inequities in these methods are great. More
often than not, the weight or capacity of the vehicle has no bearing on the actual
amount of refuse hauled in the vehicle. Customers carrying small or partial
loads are penalized while those who overload their vehicles receive a premium.
In order to keep customer dissatisfaction to a minimum, a great deal of indi-
vidual spot adjustments and determinations must be made by the landfill atten-
dant. This leads to a general breakdown of cost and scheduling procedures.
These methods are considered satisfactory on an interim or short time basis,
where it would not be practical or economical to install scales.
EXHIBIT 5-4
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The method of determining fees by actual volume of the waste is essentially a
fair method, similar to the tonnage system. However, this is difficult to do
with most vehicles, with any degree of accuracy. It requires a judgment by
the attendant, which is always subject to argument with the customer. This
method again is satisfactory on a short time basis.
It has previously been recommended that private automobiles be allowed to use
the sites without charge. The amount of waste from this source would be neg-
ligible in the entire landfill operation. The cost of weighing and collecting from
each automobile and the resulting traffic confusion would outweight the value
of any revenues that might be collected.
The anticipated tonnages and the disposal cost per ton for the two new landfill
sites are shown and discussed in Table 5-1.
yo 586
EXHIBIT 5-
U.S. GOVERNMENT PRINTING OFFICE 1972 O - 453-956
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Environmental Protection Agency
Library, l^-ion V
1 North 'iL>.ji:>:,r Drive
Chicago, Illinois 60606
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nil n I r ip , ,
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