SANITARY LANDFILL OPERATION AGREEMENT AND RECOMMENDED STANDARDS FOR SANITARY LANDFILL DESIGN AND CONSTRUCTION DEPARTMENT OF HEALTH, EDUCATION, AND WELFARE Public Health Service ------- SANITARY LANDFILL OPERATION AGREEMENT AND RECOMMENDED STANDARDS FOR SANITARY LANDFILL DESIGN AND CONSTRUCTION This publication (SW-20ts) was jointly prepared by The National Solid Wastes Management Association The Bureau of Solid Waste Management U.S. DEPARTMENT OF HEALTH, EDUCATION, AND WELFARE Public Health Service Consumer Protection and Environmental Health Service Environmental Control Administration Bureau of Solid Waste Management 1969 ------- Single copies of this publication will be distributed as supplies permit. Address requests to the Bureau of Solid Waste Management, 5555 Ridge Avenue, Cincinnati, Ohio 45213. ------- FOREWORD THE SANITARY LANDFILL is an acceptable and recommended method for the ultimate disposal of solid wastes. This method is often maligned by being mistaken for the open burning dumps that disfigure the countryside of the United States, despite the fact that the sanitary landfill is an engineering project requiring sound planning and careful construction with detailed plans, specifications, and adequate agreements to assure proper construction. Both public and private organizations are deeply involved in the management of solid wastes, by necessity, since the efforts of both groups are needed to cope with the increasingly complex problems of solid waste management. Where government chooses to utilize private enterprise as an integral part of a total management system, mutually agreeable arrangements must be developed to protect both. The model sanitary landfill agreement and recommended standards were developed jointly by the National Solid Wastes Management Association and the Bureau of Solid Waste Management for the use of government and industry in their negotiations. To this material has been appended An Accounting System for Sanitary Landfill Operations, a Public Health Service Publication (Nc. 2007). Because of the nature of any model, individuals utilizing this model may have to modify the content to fit their particular project. The purposes of the model agreement and recommended standards are to provide the necessary framework to assure satisfactory arrangements between government and industry; and proper design and construction of the sanitary landfill. —RICHARD D. VAUGHAN, Director Bureau of Solid Waste Management ii ------- CONTENTS Exhibit A: Instructions to Bidders 3 Exhibit B: Model Sanitary Landfill Operation Agreement 7 Exhibit C: Recommended Standards For Sanitary Landfill Design and Construction 19 Exhibit D: Sanitary Landfill Cost Accounting System 27 iii ------- EXHIBIT A: INSTRUCTIONS TO BIDDERS Suggested Provisions to be Included in the Instructions to Bidders Distributed by The City or Other Governmental Agency to Prospective Bidders 1. Intent and Purpose. It is the intent and purpose of this contract on which bids are sought, to assure the healthful and aesthetic operation of a sanitary landfill, at one or more sites, for the disposal of solid waste originating within the City or for which the City has accepted responsibility. 2. Qualifications of Bidders. All bidders hereunder must furnish satisfactory evidence to the City that they have operated or are presently operating a sanitary landfill of the type and capacity involved here and that they have successfully operated a sanitary landfill of the type required by the specifications for a period of time that will insure experience in operation under all weather conditions prevailing in this area, or they must show sufficient experience in a comparable field, such as excavation and grading, to demonstrate their ability to comply with the requirements of this contract. Bidders with the experience outlined above may list all completed or existing sanitary landfill sites which they have operated, or are now operating, all of which may be subject to inspection by personnel of the City in order to determine the eligibility of the bidder selected. In the event that bidders are not available with satisfactory sanitary landfill experience the contract may be awarded to a bidder with sufficient experience in a related field, as indicated above, in which case he shall employ the services of consultants who are qualified to assist in the engineering, planning, and supervision of the operations contemplated in the specifications. The names and experience of all such consultants shall be listed by all bidders without sanitary landfill experience. 3 ------- 4 All bidders shall supply detailed inventories of their equipment, showing each type of same by model, year of manufacture, time used as of the date of the inventory and all accessories for each piece of equipment so listed. All leased equipment shall be separately listed, showing the time remaining on each leased machine and options of renewal where applicable. All bidders shall be required to demonstrate to the satisfaction of the City that they have adequate financial resources, experienced personnel, and expertise to perform the services required by the specifications and shall furnish such information and/or proof of these qualifications. No agreement (contract) will be awarded to any bidder, who, as determined by the City, is not qualified to perform satisfactory service due to an unsatisfactory record or inadequate experience, or who lacks the necessary capital, organization and equipment to conduct and complete the services in strict accordance with the specifications. All bidders shall be held to comply with the attached legislation, including the Solid Waste Disposal Act of the State of , the rules and regulations promulgated thereunder, the applicable ordinances, rules and regulations of the City, the ordinances, rules and regulations of the County (ies) of , and the Recommended Standards for Sanitary Landfill Operations, hereinafter referred to as the Standards. The contractor shall meet all requirements of the above legislation, regulations and Standards including any subsequent changes, copies of which are to be supplied to the contractor by the City. 3. Compensation. Payment will be by ton, cubic yard or load received for disposal as set forth in a schedule attached to the agreement. While exact quantities of solid waste per contract year cannot be specified, a minimum contract year compensation will be paid in the sum of $ based on an estimated weight per volume of ton per yard. ------- 5 h. Inspection of Site. All bidders shall visit the site of the proposed work and familiarize themselves with the work, including all requirements of the plan. Submission of bid shall be deemed conclusive by the City that site visit has been made and shall constitute a waiver of all claims of error in bid, withdrawal of bid or payment of extras, or any combination thereof, under the executed contract, or any revision thereof. 5. Bonds. A performance bond will be required of the successful bidder, to be executed by a surety company licensed to do business in this State and in an amount equal to 50 percent of the estimated payment of the first year of the contract and 50 percent of the compensation paid in the past year for each succeeding year. Said bond shall be obtained within 10 days of the execution of the contract. A payment bond will be required of the successful bidder, to be executed by a surety company licensed to do business in this State, in an amount to be determined by the City, conditioned to guarantee the payment of all wages, materials and supplies, including all insurance premiums used by the contractor in fulfilling the terms of the contract. Insurance premiums include, but are not limited to, workmen's compensation, liability insurance and bond premiums. It is estimated that such bond will not exceed the sums expended for wages, materials and supplies and insurance premiums expended in one quarter of operation. Bid Bond. All bidders shall furnish a bid bond executed by a surety company licensed to do business in this State, binding itself to indemnify the City against any loss, not to exceed the sum of the bond, due to the failure of a bidder to execute the agreement. Said bond shall be in the sum of $ . A certified check, payable to the City, or other personal property acceptable to the City, may be deposited in lieu of a bid bond. In such event, the three low bidders' security will be held until the execution of the agreement, at which time said security shall be returned to the respective owners. ------- 6 6. Indemnity Clause. An indemnity clause, or alternatively, liability insurance, will be required of the successful bidder, in which the successful bidder will be required to hold harmless and indemnify the City from all claims, legal or equitable, including court costs and reasonable attorney's fees, arising out of the operation of the sanitary landfill site. 7. Insurance. Motor vehicle limits for property damage and personal injury may be set by the City. Proof of all required insurance and policy limits must be shown by certificates of insurance, issued to the City by the respective companies and each policy shall have a minimum cancellation period of not less than ten days, to become effective after delivery, in writing, to the City at the address shown in the agreement. While no minimum policy period will be required by the City, it is expected that long term policies will be utilized in order to obtain lower premiums. Insurance shall include all documents issued by all insurance companies licensed to do business in this State. 8. List of Officers and Stockholders. Bidders shall submit a list of all officers and of all stockholders who own over 10 percent of their respective companies. ------- EXHIBIT B: MODEL SANITARY LANDFILL OPERATION AGREEMENT This agreement made and entered into this day of 19 , by and between (a City or a Village, County, etc.) organized under the laws of the State of , hereinafter referred to as the City (Village, etc.) and (a Corporation or a Partnership, Proprietorship, etc.) organized under the laws of the State of _____ anc* having its principal place of business at hereinafter referred to as the Contractor. WITNESSETH: Whereas, the Contractor is qualified to operate a sanitary landfill for the disposal of solid waste in accordance with the Instructions to Bidders; and Whereas, the City desires the Contractor to operate the area designated to be used for a sanitary landfill operation; Now therefore, in consideration of the mutual covenants and agreements contained herein, and of the consideration paid by the City to the Contractor, as hereinafter set forth, the City and the Contractor hereby agree as follows: 1. Disposal Site. All solid waste shall be disposed of at the location(s) specified herein, same being the property under the control of the City (or Contractor), and more specifically described as follows: [Insert Legal Description] (It should be recognized that the site may be provided either by the local government authority or the contractor). 7 ------- 8 2. Materials to be Disposed of. The Contractor shall accept all solid waste created within the jurisdiction of the City or that for which the City has accepted responsibility upon payment of fees as scheduled. Toxic, volatile, and other hazardous materials must be clearly identified to allow for special precautions to be taken during the disposal operation. 3. Inspection. The City may make inspections of the sanitary landfill site through designated personnel during business hours. 4. Operation of Site. The Contractor shall have the exclusive right and responsibility for the operation of the disposal site in accordance with the provisions of this Agreement for the term of this Agreement and any extension thereof. 5. Compliance with Laws. The Contractor shall operate the disposal site in compliance with all applicable laws, ordinances and regulations; including the Solid Waste Disposal Act of the State of , the rules and regulations of the State Board of Health and the City and/or County Board of Health, and the Ordinances of the City and/or County, copies of each being attached hereto and are hereby made a part of this Agreement. Copies of all such laws, ordinances and regulations shall be furnished to the Contractor by the City and shall include new legislation and amendments to existing legislation. In the event that there are no statutes and/or ordinances regulating the disposal of wastes, then the Contractor shall design and operate said disposal site in full compliance with the Recommended Standards for Sanitary Landfill Operation, or revisions thereof (Exhibit C attached). Said Standards for Sanitary Landfill Operation shall be revised by the City only, but the Contractor is not hereby precluded from submitting written recommendations thereon to the City. 6. Labor and Equipment. The Contractor shall furnish all labor, tools and equipment necessary for the operation of the site and shall be responsible for all required maintenance thereof. Supervision by an experienced and qualified person shall be provided at all times the sanitary landfill is open for use or operation. ------- 9 7. Service Facilities. The Contractor shall construct and maintain, at his expense, any facilities, improvements and buildings within the site necessary for the operation of the site. ([To be included if the site is City property:] The use of such land within the site shall be made available to the Contractor free of charge for the period of this Agreement or any extension thereof. At the expiration of this Agreement all permanent structures and improvements shall become the property of the City or shall be removed by the Contractor at the option of the City. [If permanent structures and improvements become the property of the City, there should be some provision for compensation to the Contractor, such as book value or fair market value. If the Contractor is required to remove such structures and improvements then he should be paid to do so.]) 8. Offsite Improvements. The City at its expense agrees to provide all required offsite improvements including any improvements required on public streets or roads, drainage facilities, etc; and shall provide to the site all required utilities including adequate power and water supplies. (If any of this work is to be performed by the Contractor, it should be included in a separate contract with detailed engineering plans.) 9. Charges For Utilities. The Contractor agrees to pay the normal and standard charges for all water, electrical power, natural gas, and phone service utilized at the site. (If any of the services are to be provided free of charge by the City, this section should be modified accordingly.) 10. Salvage. Neither scavenging nor salvage operations shall be permitted at the operating face of the sanitary landfill. (If salvage is permitted, then insert: Salvage operations shall be conducted at a location separate from the operating face of the landfill by persons licensed by the City so as not to interfere with the operation of the sanitary landfill by the Contractor.) ------- 10 11. Title to Waste. Title to waste shall vest in the owner of the fee simple estate as it is deposited. 12. Completion of the Site. Upon completion of disposal operations, the site shall be contoured and finished in accordance with the Approved Final Plan, which is attached hereto and is hereby made a part of this Agreement and the Operating Standards. Any changes of the Approved Final Plan must be agreed to by both the City and the Contractor. The liability of the Contractor under this agreement shall cease upon acceptance of the site by the City. 13. Compensation. Compensation shall be paid pursuant to the attached schedule. (A model schedule could be attached here and provide for payment by weight or volume. A minimum charge should be set out. Hazardous materials would be handled on a mandatory basis on fees paid for each type and quantity handled. Experience should soon establish fees for such materials.) (If materials are to be accepted from users other than those paid for by the City, a similar schedule of prices which the Contractor can charge these users should be established. There should be clear provisions regarding the distribution of such fees to the Contractor and/or the City.) 14. Change in Regulations. In the event that compliance with subsequent statutes, ordinances and/or rules and regulations results in change in operating costs, the parties hereto agree to renegotiate this Agreement so that the compensation herein shall reflect such change. 15. Change in Sanitary Landfill Site. In the event that the parties hereto mutually agree to transfer said sanitary landfill operations to another site, or additional sites, then this Agreement shall be renegotiated to reflect any changes required by said transfer or addition, including, but not limited to increases in compensation due to increased operating costs. ------- 11 16. Change In Cost of Doing Business. The fees and/or compensation payable to the Contractor for the second and subsequent years of the term hereof shall be adjusted upward or downward to reflect changes in the cost of doing business, as measured by fluctuations in the consumer price index published by the U.S. Department of Labor, Bureau of Labor Statistics, for the area. At the start of the second year and every six (6) months thereafter, the fees and/or compensation to the Contractor shall be increased or decreased in a percentage amount equal to the net percentage change in the said consumer price index computed as follows: Beginning with the first month of the second year the net change shall be the difference between the said consumer price index during the first month of this Agreement and the last month of the first year. Beginning with the seventh month of the second year of this Agreement and every six months thereafter, the net change in the said consumer price index shall be the change for the last preceding six month period. 17. Term. The initial term of this Agreement shall be for the -year period beginning , 19 , and ending , 19 . The initial year term of this Agreement shall be extended for successive additional -year terms, unless either party notifies the other party in writing as hereinafter provided, not less than ninety (90) days prior to the expiration of the initial year term or of any year extension thereof of its intention to terminate this Agreement. 18. Performance Bond. The Contractor shall furnish a Performance Bond for the faithful performance of this Agreement, said bond to be executed by a surety company licensed to do business in this State, and to be in a penal sum equal to one-half the minimum fee to be paid to the Contractor by the City for the first year of this Agreement, and for each year thereafter to be in the penal sum of percent of the total compensation paid by the City to Contractor for the last preceding year of this Agreement, but in no case to exceed 100 percent of the compensation paid during the prior year of this Agreement. Said Performance Bond ------- 12 shall be furnished annually by the Contractor on the first day of each year of this Agreement or any extension thereof, and shall indemnify the City against any loss resulting from any failure of performance by the Contractor, not exceeding, however, the penal sum of the bond. 19. Payment Bond. The Contractor shall, within ten (10) days of the execution of this agreement, deliver or cause to be delivered to the City a bond in the amount of $ executed by a surety company licensed to do business in this State, guaranteeing payment of wages to all employees of the Contractor at the site or sites and the cost of all supplies, materials, and insurance premiums required in fulfilling this Agreement. 20. Indemnify. The Contractor hereby binds himself to indemnify and hold harmless the City from all claims, demands and/or actions, legal and/or equitable, arising from the Contractor's operation of all disposal sites herein above described. Proof of such insurance shall be furnished by the Contractor to the City by certificates of insurance, with a minimum cancellation time of ten (10) days, said time to commence after delivery of said notice to the City at the address shown above. (Liability insurance policies approved by the City as to type and coverage, may be required by the City as a part of the indemnity provisions of this Agreement. If policies such as automobile liability, general liability or owner's protective liability are required, the type and amount of coverage should be clearly spelled out in this section. Proof of such insurance shall be furnished by the Contractor to the City by certificates for each policy, with each policy having a minimum notice of cancellation to the City of ten (10) days.) 21. Workmen's Compensation. The Contractor shall carry in a company authorized to transact business in the State of a policy of insurance fulfilling all requirements of the Workmen's Compensation Act of said State, including all legal requirements for occupational diseases. (Would not apply in monopoly States.) ------- 13 22. Standard of Performance. In the event that the Contractor shall fail to dispose of materials herein provided to be disposed of for a period in excess of five (5) consecutive days, and provided such failure is not due to war, insurrection, riot, Act of God, or any other cause or causes beyond the Contractor's control, the City may, at its option, after written notice to the Contractor as provided hereinafter, take over and operate any or all of the Contractor's equipment used in the performance of this Agreement, and provide for such operation until such matter is resolved and the Contractor is again able to carry out its operations under this Agreement. Any and all operating expense incurred by the City in so doing may be deducted by it from compensation to the Contractor ^hereunder. During such period, the liability of the City to the Contractor for loss or damage to such equipment so used shall be that of a bailee for hire, ordinary wear and tear being specifically excepted from such liability. The liability of the Contractor to third persons shall cease and all claims or demands arising out of the operation ana/or control of the site or sites shall be directed solely to the City. Provided, however, if the Contractor is unable for any cause to resume performance at the end of thirty (30) calendar days, all liability of the City under this contract to the Contractor shall cease and the City shall be free to negotiate with other contractors for the operation of said site or sites. Such operation with another contractor shall not release the Contractor herein of its liability to the City for such breach of this agreement. In the event that this contract is negotiated with another contractor(s), third-party liability of the Contractor herein shall terminate insofar as same arises from tortious conduct in operation and control of sites. 23. Arbitration. Any controversy or claim arising out of or relating to this Agreement, or breach thereof, shall be settled by arbitration in accordance with the Rules of The American Arbitration Association, and judgment upon the award rendered by the arbitrators ------- 14 may be entered in any court having jurisdiction thereof. Such controversy or claim shall be submitted to one arbitrator selected from the National Panel of The American Arbitration Association. (Arbitration Statutes are in effect in the following States: Arizona, California, Connecticut, Florida, Hawaii, Illinois, Louisiana, Maryland, Massachusetts, Michigan, Minnesota, New Hampshire, New Jersey, New York, Ohio, Oregon, Pennsylvania, Rhode Island, Texas, Washington, Wisconsin, and Wyoming. Common law governs in all other States.) 24. Landfill Inspection. To insure that the detailed specifications, regulations, and laws for the operation of a sanitary landfill are complied with, the landfill site and operation shall be inspected a minimum of once a month during the term of this Agreement by a representative of the City to assure compliance. 25. Assignment. No assignment of this Agreement or any right occurring under this Agreement shall be made in whole or part by the Contractor without the express written consent of the City, and in event of any assignment the assignee shall assume the liability of the Contractor, 26. Books and Records. The Contractor shall keep daily records of wastes received and the City shall have the right to inspect the same insofar as they pertain to the operation of the sanitary landfill site(s) for the purpose of analysis of the financial condition of said operation. The records should include the type, weight and volume of solid waste received, the portion of the landfill used (determined by cross section and survey) and any deviations made from the plan of operation and equipment maintenance and cost records. The contractor shall submit a proposed record and accounting system for approval. All information so obtained shall be confidential and shall not be released by the City unless expressly authorized in writing by the Contractor. A recommended set of acceptable records is included in Exhibit D. ------- 15 27. Bankruptcy. This Contract shall terminate in the case of bankruptcy, voluntary or involuntary, or insolvency of the Contractor. The time of termination in the event of bankruptcy shall be the day and time of the filing of the petition in Bankruptcy. 28. Number of Copies. This Agreement may be executed in any number of counterparts, all of which shall have the full force and effect of an original for all purposes. 29. Law to Govern. This Agreement shall be governed by the laws of the State of , both as to interpretation and performance. 30. Modification. This agreement constitutes the entire agreement and understanding between the parties hereto, and it shall not be considered modified, altered, changed or amended in any respect unless in writing and signed by the parties hereto. 31. Right to Require Performance. The failure of the City at any time to require performance by the Contractor of any provisions hereof, shall in no way effect the right of the City thereafter to enforce same. Nor shall waiver by the City of any breach of any provisions hereof be taken or held to be a waiver of any succeeding breach of such provision or as a waiver of any provision itself. 32. Illegal Provisions. If any provision of this Agreement shall be declared illegal, void, or unenforceable, the other provisions shall not be effected, but shall remain in full force and effect. 33. Notice. A letter addressed and sent by certified United States mail to either party at its business address shown hereinafter shall be sufficient notice whenever required for any purpose In this Agreement. 34. Effective Date. This Contract shall become effective and the City shall begin delivery of the solid waste to the Contractor days after the date of execution hereof. City: ------- 16 Contractor: IN WITNESS WHEREOF, the City and Contractor have executed this Agreement as of the day and year first above written. Approved to Form City Attorney City of A municipal corporation of the State of By By By (Name of Contractor) By By (Sealed, witnessed, and/or notarized as required by the laws of applicable State.) ------- 17 FEE SCHEDULE (Alternate methods of charge) 1. $ per ton of solid waste 2. $ per yard of compacted solid waste 3. $ per yard of uncompacted solid waste 4. $ minimum fee per load 5. $ per ton of solid waste consisting solely of material such as bricks, concrete, dirt, etc. 6. The city shall pay to the contractor a minimum fee of $ for each year, or extension, of this agreement. Toxic, volatile or other hazardous materials requiring special handling shall be clearly marked by the City and, upon payment of mutually agreed upon fees, shall be disposed of by the Contractor pursuant to the terms of Item 2 of the Contract. The Contractor shall submit billings to the City at the close of business at the end of each month for all other waste placed in the sanitary landfill and the City shall pay the Contractor on or before the tenth day of the following month, payments to be mailed to the Contractor at the address shown above. ------- EXHIBIT C: RECOMMENDED STANDARDS FOR SANITARY LANDFILL DESIGN AND CONSTRUCTION I. Site Location Requirements II. Site Design III. Operational Design Features IV. Personnel and Personnel Facilities V. Equipment VI. Construction 1. General 2. Landfilling 3. Special Waste Handling 4. Supervision and Inspection A sanitary landfill is defined as an engineering method of disposing of solid waste on land by spreading the waste in thin layers, compacting the waste to the smallest practical volume and covering the waste with earth cover each day in a manner which prevents environmental pollution. While a sanitary landfill is possible on nearly all topographies, some land formations present more difficulty than others. Because topographical considerations make each sanitary landfill somewhat different, it would be impossible to delineate the technique required by every potential configuration. However, these recommendations cover those features and procedures that are intrinsic to most sanitary landfill operations. The disposal location site shall: 1. be easily accessible by collection vehicles, private autos, and where applicable, transfer vehicles; 2. safeguard against water pollution originating from the disposal of solid waste; 3. have an adequate quantity of acceptable earth cover. The cover material should be easily workable and compactible, should be free of large objects that would hinder compaction, and should not contain organic matter of sufficient quantity and distribution conducive to the harborage and/or breeding of vectors. 4. conform with the surrounding environment; 5. conform with future development of the area. I. Site Location Requirements 19 ------- 20 II. Site Design Where the site is being provided by the local government authority, Items* II. 1, II. 2, and 11.3(a) through (d) and II. 4 shall be provided to the contractor prior to submission of bids. 1. Map or aerial photograph of the area showing land use and zoning within 1/4 mile of the solid waste disposal site. The map or aerial photograph shall be of sufficient scale to show all homes, industrial buildings, wells, watercourses, dry runs, rock outcroppings , roads and other applicable details and shall indicate the general topography. 2. Plot plan of the site showing dimensions, location of soil borings, proposed trenching plan or original fill face, winter cover stock piles, and fencing. Cross sections shall be included on the plot plan or on separate sheets showing both the original and proposed fill elevations. The scale of the plot plan should not be greater than 200 feet per inch. 3. A report shall accompany the plans indicating: (a) population and area to be served by the proposed site (b) anticipated type, quantity and source of solid waste to be disposed of at the site (c) geological formations and groundwater elevations to a depth of at least 10 feet below proposed excavations and lowest elevation of the site. Such data shall be obtained by soil borings or other appropriate means. (d) source and characteristic of cover material and method of protecting cover material for winter operation (e) type and amount of equipment to be provided at the site for excavating, earth moving, spreading, compaction and other needs (f) persons responsible for actual operation and maintenance of the site and intended operating procedures 4. The design of the sanitary landfill shall include one or more topographic maps at a scale of not over 200 feet to the inch with 5-foot ------- 21 contour intervals. These maps shall show: the proposed fill area; any borrow area; access roads; grades for proper drainage of each lift required and a typical cross section of a lift; special drainage devices if necessary; fencing; equipment shelter; existing and proposed utilities; employee facilities; and all other pertinent information to clearly indicate the orderly development, operations and completion of the sanitary landfill. 5. The sanitary landfill shall be designed by a professional engineer registered in the State of . III. Operational Design Features The disposal site should be provided with operational features and appurtenances necessary to maintain a clean and orderly operation. These minimum features are: 1. operational plans to direct and control the use of the site; 2. fencing of the site to control access; 3. an all-veather access road to the site; in some cases it may be more economical to provide a temporary landfill area adjacent to an all-weather road for inclement weather operation; 4. signs indicating traffic flow, hours of operation, and charges for disposal (if any); 5. scales for weight determination of the solid waste received at the landfill; for small landfill operation, periodic weighing at public or other scales is acceptable; 6. dust control methods; these may require use of chemicals, oils, or water sprays; 7. litter control devices; portable fences, and other suitable devices may be used; 8. communication devices for emergency use and for operational control; 9. electrical service for operations and repairs; 10. fire protection and fire-fighting facilities adequate to insure the safety of employees and provisions to deal with accidental burning of solid waste within the sanitary landfill; ------- 22 11. emergency first aid equipment to provide adequate treatment of accidents, especially those associated with hazardous wastes. IV. Personnel and Personnel Facilities In order to provide suitable staff to man and operate the site, the following are recommended; 1. a fully trained supervisor or foreman and fully trained equipment operators; 2. a shelter from inclement weather sufficient to accommodate disposal site employees; 3. a potable water supply for landfill personnel and collection crews; 4. sanitary toilets on or near the site; 5. training in the proper and safe operation of all equipment and first aid training for all employees. V. Equipment The operation of a sanitary landfill depends on mechanical equipment. To assure adequate operation the following are recommended: 1. equipment sufficient for the spreading, compacting and covering operations; 2. sufficient reserve equipment, or arrangements to provide alternate equipment within 24 hours following equipment breakdown; 3. safety devices on equipment to shield and protect the operators from potential hazards during operation; 4. equipment shelter for maintenance and storage of parts, equipment and tools. VI. Construction Certain operations must be included to perform the basic functions and objectives of a sanitary landfill. These follow. 1. General. (a) Controlled access to the site must be maintained to keep unauthorized persons out and to assist the dumping operation. Access to the site shall be limited to those times when an attendant is on duty ------- 23 and only to those authorized to use the site for the disposal of solid waste. (b) Operational records shall be maintained daily. The records should include the type, weight and volume of solid waste received, the portion of the landfill used (determined by cross section and survey), and any deviations made from the original plan of operation and equipment maintenance and cost records. A monthly report shall be prepared that describes the amounts of solid waste received, the area of the fill used, the amount of the fill used, and the amount of cover material used and submitted to the appropriate governmental agency. (c) Burning of waste material at the sanitary landfill site shall not be permitted. (d) Blowing paper shall be controlled by providing a portable fence near the working area. The entire area shall be policed daily or at more frequent intervals as may be necessary to remove unsightly accumulations. (e) Salvaging and scavenging shall not be allowed at working face of sanitary landfill. (f) Provisions shall be made for on-site control of potential gas movement from the landfill. (g) Surface run-off in the drainage area of the site must be diverted around the site to control infiltration and erosion. (h) Conditions unfavorable for the habitation and production of insects and rodents should be maintained by carrying out sanitary landfill operations promptly and in a systematic manner. The site shall be regularly inspected by an independent pest control firm and certified reports submitted to the appropriate government agency. Supplemental vector control measures shall be instituted whenever necessary. Domestic animals shall be excluded from the site and proper control measures should be used to prohibit wildlife, when necessary. (i) A detailed description and a plat of the completed fill site shall be recorded with the proper local agency responsible for maintaining titles and records to land, to provide notice to future users ------- 24 and/or owners of the site. The detailed description should include but not be limited to: type and location of all deposited solid waste; type and number of lifts; type and location of pollution controls; original and final terrain description. (j) Continual training of personnel in the proper operation of a sanitary landfill. 2. Landfilling. (a) Supervision shall be continuously available to coordinate the unloading activities. (b) Special provisions shall be made for vehicles being unloaded by hand so there is no impairment to the flow of mechanically unloading vehicles. (c) A sloped working face shall be confined to as small an area as the equipment can safely and efficiently operate. (d) The solid waste shall be spread and compacted in thin layers. In the construction of each cell the solid waste should be spread into layers not to exceed 2 feet prior to compaction. The number of layers incorporated into a cell is dependent upon the design and configuration of the site. (e) All solid waste shall be covered daily with a minimum of six (6) inches compacted soil. Daily cover has three main functions: To provide vector control, to provide fire breaks between cells, and to offer an aesthetically pleasing site at the end of the day's operation. (f) Intermediate cover shall be applied where daily cover will be exposed more than thirty (30) days. (Final cover, not intermediate, should be used if future fill is not planned within a period of one (1) year.) Compacted thickness of graded intermediate cover shall not be less than one (1) foot and should have characteristics comparable to those of daily cover. (g) Final cover shall be applied to any surface that represents the final grade of the sanitary landfill. A minimum of two (2) feet of a well-graded soil compacted and graded will usually fulfill the requirements of final cover. In some cases, where other soils are used or where trees are planted, etc., additional cover may be necessary. Suitable ------- 25 grasses, etc., should be planted to help minimize erosion and surface deterioration. Final cover shall be placed over any completed section of the fill within one (1) week following the placement of solid waste within that portion. (h) The grade of the final cover shall drain the surface runoff water to predetermined points in the drainage system and prevent ponding. For this reason, it is best to slightly overdesign initial grades so that when settlement occurs the surface will be sufficient for good drainage. 3. Special Waste Handling. (a) Disposal of waste sludges and liquids shall be done with special consideration of water pollution, odors, and the health and safety of employees. Appropriate provisions shall be made for the handling of these waste materials. (b) Hazardous wastes shall be evaluated and appropriate provisions shall be made accordingly before incorporation into the sanitary landfill. (c) Large bulky items shall be reduced in volume and covered daily. If necessary for efficient operation, separate areas on the site may need to be designated solely for the disposal of bulky items, but even in separate areas daily cover is required. 4. Supervision and Inspection. (a) Supervision of the operation shall be the responsibility of a qualified individual who has experience in the operation of a sanitary landfill. (b) Routine inspection and evaluation of landfill operations shall be made by a representative of the State and/or local health department. A notice of any deficiencies, together with any recommendations for their correction, shall be provided to the owner or agent responsible for the use of the land and the appropriate individual or firm or governmental agency responsible for the landfill operation. (c) Inspection of the completed sanitary landfill shall be made by a representative of the State or local health department, before the earthmoving equipment is removed from the site. Any necessary corrective work shall be performed before the landfill project is accepted as ------- 26 completed. Arrangements shall be made for the repair of all cracked, eroded, and uneven areas in the final cover as required during the years following completion of the fill. ------- EXHIBIT D Reprinted from Public Health Service Publication No. 2007 ^OOOXJISTTIlSrO- SYSTEM for sanitary leincLfill operations Erie R Zausner The increasing costs and complexities of solid waste hand- ling require new, more sophisticated management tech- niques Data on performance and the costs of operation and ownership are essential for the use of these management tools. Hence, an adequate information system is a prerequi- site to effective management. Although cost accounting represents only one part of the total information system, its design, installation, and utilization can represent the most significant step in the development of effective solid waste management. Present information on landfill activities and associated costs is both inadequate and nonstandardized. The proposed system provides a guide to the type and quantity of informa- tion to be collected, its classification, and the method of collection. It is intended to be of use to municipal or private personnel involved in landfill operation and ownership. Installation of a cost accounting system can aid the land- fill manager in controlling the costs and performance of the operation, and also in planning for the future. 27 ------- 28 System Benefits Implemenlalion of a system such as ihe one described herein has several important advantages, as follows: 1. It facilitates the orderly and efficient collection and trans- mission of all relevant data. In fact, much of the recom- mended data is probably already being collected, although haphazardly and inefficiently. Hence, the added cost of implementing the system is minimal. 2. Reports are clear and concise, presenting only data re- quired for effective control and analysis. Because they can be completed and understood by landfill personnel, opera- tion of the system can be made almost foolproof. 3. The data is grouped in standard accounting classifications. This simplifies interpretation of results and comparison with data from previous years or other operations. In turn, this allows analysis of relative performance and operational changes. 4. The system accounts for all relevant costs of operations. 5. Accumulated data from ihe system can over a period of lime lead to standards of performance and efficiency. These standards are used to control costs. They indicate what costs are high and what is causing them. The landfill supervisor may then take corrective action. 6. The system includes automatic provisions for accounta- bility. Cost control becomes more effective when the in- dividual responsible for cost increases can be pinpointed. 7. The collected data aids in short-range and long-range forecasting of operating and capital budgets. This facilitates estimation of future requirements for equipment, manpower, land, cash, etc., which, in turn, aids planning at all levels of management The data is also available for later evalua- tion and analysis, using operations research techniques. 8. With only minor modifications, the system is flexible enough to meet the varying requirements of landfills of different size and scope. ------- 29 Reports and Information Flow The cost system is designed for medium-size sanitary land- fills. It assumes that the community or private firm has an accounting section or department to aid in preparation of the summary reports. The system also assumes that a scale is on-site. Actual measurement of solid waste quantities is possible only with scaled weights. Due lo the system's flexi- bility, however, neither of these assumptions is critical. Only minor modifications are required to adopt the system to sig- nificantly larger or smaller operations Due to the diversity of disposal operations no attempt will be made to suggest all of the possible variations. The flow of information through the cost system is by means of reports (Diagram I). The eight reports transmit in- DIAGRAM I INFORMATION FLOW DIAGRAM MANAGER FORM 81 Total - cost j Feedback T0RM5\ Operat- ) vjng cost J Total calculated depreciation ACCOUNTING DEPT FORM 4 Daily activity FORM 6 Equip cost FORM Facility cost FORM 2 Weekly labor FORM 3 Equip maint Billing of external expenses and charges Verbal and visual information for Forms 2, 3, 4 LANDFILL SUPERVISOR X /FORM l\ I Truck J N^weight J I LANDFILL OPERATIONS Determination of facility and equipment costs KEY. Direction of flow Report ------- 30 formation from the field where data is recorded to the poinl of data use — various levels of supervision and management. The reports are most easily classified as those that are pre- pared daily and those that are prepared at less frequent intervals. Cost control, responsibility accounting, and the preparation of periodic summary statements cannot be accom- plished without the daily recording of all pertinent activity and cost information Data not recorded daily is not retriev- able at some later date. Daily Iruck weight record (Form 1). This form records the quantities, sources, and types of solid wastes delivered to the site. Cover material, if it is delivered from off-site, may be recorded on this form. If the cover material is acquired on the site, the "cover material" column may be deleted or a daily estimate of cubic yards may be recorded. The information is recorded manually on this form for the entire day If the landfill has a scale that automatically records the weight data, that part of the form would be replaced by the weight ticket. Each delivery is recorded separately by the weigh- master. A second weighing of the empty iruck may be taken, or the vehicle's tare weight (as determined by a licensing agency, etc.) may be substituted Truck identification, load weight, and solid waste type are useful in billing private concerns and others for the privilege of using the landfill. The record of truck delivery times and frequency, along with Iruck identification, load weight, and waste type, are an important aid to operation and control of a municipal collection system. Weekly labor ticket (Form 2). This record of labor activity is recorded in duplicate at the landfill. One copy is for- warded to the payroll department for determining weekly wages. The other copy is used by the landfill supervisor for computing total labor hours and the assignment of these hours to the landfill's various activities. Monthly equipment maintenance record (Form 3). This form facilitates the detailed collection of equipment opera- tion and associated cost data. A separate sheet is used for each piece of equipment at the site. Daily entries are made as appropriate. The form is used for an entire month. ------- DAILY TRUCK WEIGHT RECORD FORM 1 SITE DATE / i SIGNATURE. Truck ident Time* Wastes Weight in Weight out (tare weight) Amount delivered Source) Type* Solid waste Cover mat'l Totals X X X X X Instructions To be completed by weighmaster for each truck, each time it makes a delivery If scales are not available, an estimate of cubic yards is acceptable * Only record tirr.d at 15-minute intervals t Sources R = residential, I = industrial, C = commercial, A = agricul- tural, etc t Types H = household refuse, D = demolition/construction wastes, T = tires, B = bulky waste — furniture, refrigerators, etc BSWM (7/69) 31 ------- FORM 2 WEEKLY LABOR TICKET SITE DATE. / / SIGNATURE: Employee ident. Day 1 Day 2 DAY 3 DAY 4 DAY 5 DAY 6 DAY 7 Indiv- idual totals Note causes of absences, extra hrs to be paid, etc Job Hrs Job Hrs Job Hrs Job Hrs. Job Hrs Job Hrs Job Hrs w Totals X X X X X X X XXXXXXXXXXXXXXXXXX Instructions- Landfill supervisor to complete this form daily List all employees separately including temporary help. "Hrs" refers to hours worked daily "Job" refers to the job description* At the end of each week, forward one copy to the payroll department and retain the original for further use *TD = tractor driver, W = weightmaster, ME = equip maint, MB = building maint, etc Tractor driver activity may be divided into spread and compact refuse(s) and cover operation (c) BSWM (7/69) ------- FORM 3 MONTHLY EQUIPMENT MAINTENANCE REPORT SITE PERIOD from to EQUIP IDENT- Day Hours operated Fuel cost Maintenance Type of repair or service Hours down Labor hours Labor cost Parts cost External cost Total cost 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 25 24 26 27 28 29 30 31 Totals XXXX Instructions To be completed by the landfill supervisor at the end of each day Entries under maintenance should be made only as they occur This sheet is only for one piece of equipment BSWM (7/69) 33 ------- 34 Daily activity summary (Form 4). This form summarizes the truck deliveries, solid waste quantity disposed of, man- hours worked, machine hours utilized, cover material used (if measured or estimated), and miscellaneous expenses in- curred. Since this provides a continuous cover material in- ventory, it is useful in keeping the landfill supervisor advised as to his present status and when more cover material will be required. The form is used for an entire month. It is com- pleted at the end of each day by the landfill supervisor. At the end of the month, it is forwarded to the accounting department. Less Frequently Prepared Reports These reports may be prepared as often as desired. The Operating Cost Report is used for control purposes. Hence, the more frequently it is prepared (perhaps even weekly), the more useful it would be. The remaining reports are summary reports (preparation quarterly would be sufficient) Landfill operating cost report (Form 5). This report sum- marizes the landfill's operations. It is compiled from all the daily tickets. As a summary of the landfill's total operating costs, it may be used to hold the supervisor responsible for any adverse trends in costs. In addition, the calculated unit cost and efficiency factors are helpful to the supervisor in analyzing these adverse cost trends and controlling them. This is more fully discussed under system utilization. If most of the expenses incurred in operating the facility are billed directly to the municipality, the necessary cost data required for preparation of this form would not normally be available to the supervisor. Under these circumstances, the supervisor should forward the information he has col- lected (the daily tickets) to the accounting department. This department will then compile the complete Operating Cost Report and send a copy back to the landfill supervisor. A more detailed breakdown of the expenses that should be included under each category is in Form 5a. Form 5a need not be prepared,- it is only shown to indicate the rele- vant cost groupings. ------- 1 2 3 4 5 6 7 8 9 10 11 12 ~13~ 14 15 16 17 18 19 20 21 22 23 24 25 26 27 28 29 30 31 FORM 4 DAILY ACTIVITY SUMMARY SITE DATE: / / SIGNATURE Solid waste Loads Tons Cover material Begin Rec'd Used Remain Man hrs. Machine hrs Expense* Use Down $ Type Site hrs. Instructions To be completed by landfill supervisor at the end of each day Some of data is to be summarized from Forms 1 and 2 Record cover material in either tons or cubic yards Today's beginning cover material equals yesterday's remaining * Record only miscellaneous expenses that would not be recorded by the accounting department and are incurred at the site BSWM (7/69) 35 ------- LANDFILL OPERATING COST REPORT FORM 5 SITE PERIOD OF REPORT from to Data Actual this period % var from budget % var. from last period % var this period last year Totals Total tons received Total operating cost Total operating cost/ton Unit costs* Labor/ton Cover material/ton Equip operation/ton Overhead/ton Cover material util Efficiency factors* Overtime hours/total labor hours Labor efficiency Equip % downtime Equipment utilization Equipment efficiency Instructions To be completed by accounting department from Forms 1, 2, and 3 One copy to landfill supervisor * Calculations Unit cost = aggregate cost — tons solid waste received Note that cover material unit cost is cover material - tons of solid waste received Cover material utilization = cover material used — tons of solid waste received Labor efficiency = tons received - labor hours Equipment utilization = tons received — equipment hours Equipment efficiency = equipment cost - equipment hours Equipment % downtime = total hours down — total equipment hours BSWM (7/69) 36 ------- 37 FORM 5a OPERATING COST CLASSIFICATIONS Labor costs Include all wages at base pay, plus all overtime pay, and labor fringe benefits.* Cover material costs Include all costs for the delivery of cover material. This category may be excluded if cover material is not de- livered from off the site. The cost of labor, equipment, and overhead required to obtain on-site cover may be substituted. Machine operating costs Include oil, gasoline, grease, equipment repairs, and maintenance. Overhead costs Include all utilities, supervisor's salary, building re- pairs and maintenance, liability and property insurance, and charges from other departments. 'Labor fnng« benefits include group insurance, pension costs, social security contributions, vacation costs, etc, whether actually budgeted to the operating agency or absorbed in municipal general funds ------- Equipment and facility cost reports (Forms 6 & 7) These two reports are compiled at the landfill site or wherever the data is available. They are then updated only when addi- tional equipment or facilities are acquired The periodic depreciation charges are then computed and posted by the accounting department. Landfill total cost summary (Form 8). This report summar- izes all the activities and costs incurred by the landfill during the period. It is compiled from data available in present and past Operating Cost Reports and the depreciation data avail- able on the Facility and Equipment Cost Reports. Report Flow Summary A brief summary may help to put the system in perspec- tive. Operating reports are generated daily at the landfill site and transmitted periodically to the accounting depart- ment. The accounting department combines these reports with additional information it accumulates to produce total operating costs. System Utilization Now that the actual system has been described and one possible set of forms illustrated, utilization must be discussed. Only with efficient and intensive utilization of the informa- tion generated, can the additional time, effort, and money required to implement and maintain the system be justified. All the factors which affect the quality and effectiveness of sanitary landfill operations can be translated into costs. Extent of cover material use, the size of the face, degree of compaction, litter control and dust control, among others, determine how good a job of sanitary landfilling is performed, and they are more costly than simple operation of an un- attended open dump. Cost control at a landfill does not call for economizing at the expense of quality. To the con- trary, once a level of acceptable operation has been determ- ined along with the attendant costs, the cost control system can help the supervisor maintain that level of operation. The routine control of costs is slightly more complicated Effective cost control has two prerequisites recognition of ------- FORM 6 LANDFILL EQUIPMENT COST REPORT SITE DATE: / / tg dept. only) Type Model no Model year Mfg name Date of purch. Cost Est life % Time used by other dept Annual depreciation Monthly depreciation ^0 Totals X X X X X X l Instructions To be filled out by accounting dept or supervisor "Est life" should be based on supervisor's esti- mate of remaining life Use of equipment by other dept should be based on percent of time (working day) equipment is away from the landfill Depreciation may be on a straight-line or accelerated basis. BSWM (7/69) ------- FORM 7 LANDFILL FACILITY COST REPORT SITE: DATE: / / dept. only) Item or category Descrip- tion Date put in use New cost Est total life Other comments Annual depreciation Monthly depreciation All land XXXXXX XXXXXX OV Improvements 1 Roads Lights Fences Surveys Other Facilities Scales Garages Buildings Other Totals X X X X Instructions: To be completed by supervisor or accounting dept., if they have data available "Est total life" should be based on remaining life as estimated by the supervisor Land purchased subsequent to the original land purchase should be included Depreciation may be either straight-line or on an accelerated basis BSWM (7/69) ------- FORM 8 LANDFILL TOTAL COST REPORT SITE: PERIOD OF REPORT: from to Data For this period Budget —this period Year to date Budget —year to date Tons of solid waste received Total operating cost Total depreciation cost .0 i—• Total cost Operating cost per ton Depreciation cost per ton Total cost per ton Instructions To be completed by the accounting department, when requested or periodically, from data available in operating cost report or capital cost reports Copies sent to the city manager (or his equivalent). BSWM (7/69) ------- 42 excessive cosls and identification of responsibility for the increased cosls. By comparing present unit cosls with the currently budgeted unit costs and the actual unit cosls of the previous period and the same period lasl year, some determination can be made of whether present costs are excessive. The determination of responsibility is facilitated by the efficiency factors. The system described allows both of these critical factors to be determined. Corrective action may then be effectively initiated. At the highest level of management, the Total Cost Report indicates whether costs are excessive, in which case the supervisor of the particular sanitary landfill can be held responsible. The supervisor, in turn, can use the cost system to determine the cause of increased cosls. He may trace the increased costs to the particular cost element, and pos- sibly to the employee, piece of equipment, or method of operation responsible. All of the needed data is in Form 5 (the Operating Cost Report). To aid the supervisor in the analysis of Form 5, a decision tree may be used (Diagram II). It illustrates the methodology required to analyze the cause of increased cosls. For clarity, a hypothetical situation will be examined. Let us assume that the landfill supervisor receives his copy of the Operating Cost Report from the accounting department. His analysis of the data starts at ihe extreme left of Diagram II. Quite obviously, the first question to be answered is whether any analysis is required. If total operating cos! per ton is less lhan or equal to ihe budget, the answer is No. However, if tolal cost per ion is greater lhan ihe budget, additional analysis is indicated. Next, it is desirable to iso- late the cost element which is abnormally high. It may be one or more of the four shown (labor, cover material, equip- ment, or overhead). Let us assume that only labor cost per ton is higher than its budgeted amount. (We are now on the uppermosl branch.) We must determine why labor cost per ion increased, so that corrective action can be taken Several factors are listed which may be relevanl. Assume "overtime hours per tolal labor hours" is excessive This implies lhal either scheduling is poor, there is a temporary peak load, the ------- DIAGRAM II DECISION TREE FOR SANITARY LANDFILL COST VARIANCE ANALYSIS labor efficiency — overtime/total hr Why7 $/ton Labor cover mat'l util 0- Why? $/ton cover mat'l cost Cover mat'l. What type of cost? r©~ Total cost equip, util. _ equip, efficiency ton 0- analysis needed? Why? $/ton — Equip. no 0- Why? — tons received $/ton Over- head KEY B, = Total cost/ton budgeted Bj = Labor cost /ton budgeted Bs = Cover mat'l cost/ton budgeted B^ = Equip cost/ton budgeted Bs = Overhead cost/ton budgeted employees are working overtime when nol required, or per- haps more regular employees are required. Under any of these circumstances, corrective action could be initialed by the supervisor This example is an over-simplificalion of actual operations Nevertheless, it does illustrate the use of the decision tree (Diagram II) and more importantly, the methodology needed 43 BSWM (7/69) ------- 44 to pinpoint and correct factors which might have caused increased costs. In addition to routine cost control, the data collected is useful in doing special analyses of trends in composition and quantity of wastes, peak load hours, on-site waiting limes, and equipment evaluations These and other quantitative evaluations can improve performance and reduce the costs of operation. ------- |