Decision Support Tool for the Management of
Debris from Homeland Security Incidents
S. Thorneloe*, P. Lemieux **, M. Rodgers0, R. Christman0, and K. Nickel00
* U.S. EPA, Office of Research and Development, National Risk Management
Research Laboratory, Research Triangle Park, North Carolina 27711, USA
**U.S. EPA, Office of Research and Development, National Homeland Security
Research Center, Research Triangle Park, North Carolina 27711, USA
°Eastern Research Group, Inc., Chantilly, VA 20151, USA
°°U.S. EPA, Office of Research and Development, National Homeland Security
Research Center, Cincinnati, Ohio, 45268, USA
SUMMARY: Unique challenges exist for the handling, transport, and disposal of debris
resulting from homeland security incidents, disasters or other national emergencies. Safe and
timely disposal of disaster debris is critical to helping restore a community or region and prevent
further contamination or spread of disease. The U.S. EPA's Office of Research and
Development is conducting research to develop a suite of decision support tools that provide
quick and easy access to information needed for making decisions associated with handling,
transport, and diposal of disaster debris. The DSTs provide location-specific information to
identify specific facilities and contacts for making debris management decisions. The DSTs
provide references to technical information, regulations, and other information to provide
decision makers with assistance in disposal decisions that are important for the protection of
public health, first responders, and the environment. This research is being conducted in support
of the U.S. Department of Homeland Security and in partnership with other U.S. government
agencies, EPA program offices, industry, and state and local emergency reponse programs.
1. INTRODUCTION
Pollution incidents of national significance can be caused by industrial accidents; natural
disasters such as hurricanes, floods, and earthquakes, terrorist attacks; weapons of mass
destruction; and disease outbreaks impacting the safety of the U.S. food supply. These incidents
require an integrated response from federal, state, and local government. The Department of
Homeland Security (DHS) has updated the National Response Plan (NRP) and the National
Incident Management System for responding to Homeland Security incidents of national
significance. Within the NRP, the DHS has identified 15 National Planning Scenarios that every
federal, state and local emergency response agency is to create emergency plans for. Each of
these 15 scenarios involves decontamination and disposal of contaminated material. As a result,
disposal decision making has become more complex and emerging issues have surfaced that
make it critical that emergency response plans have tools available to assist decision makers in
effectively managing debris from incidents of national significance so that there is no further
threat to human health and the environment. Ensuring safe, cost effective, and timely disposal of
waste debris is critical in minimizing the impact on human health and the environment. The
Proceedings Sardinia 2007, Eleventh International Waste Management and Landfill Symposium
S. Margherita di Pula, Cagliari, Italy; 1-5 October 2007
©2007 by CISA, Environmental Sanitary Engineering Centre, Italy
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Sardinia 2007, Eleventh International Waste Management and Landfill Symposium
National Science and Technology Council estimates that disasters cost an average of $52 billion
per year in terms of lives lost, property destroyed, disruption of commerce, and emergency
response (NSTC, 2005). The Solid Waste Association of North America captured key lessons
learned from the aftermath of the Hurricane Katrina response that are important to address in
current emergency response plans (SWANA, 2005). Current regulations and waste management
plans and practices need to be reassessed to ensure that they are adequate to deal with the unique
threats and challenges confronting Homeland Security in the 21st Century.
There are a wide range of potential events that can lead to large volumes of waste debris or
potentially difficult-to-manage waste. Traditional hazards include wildland and urban fires,
floods, oil spills, transportation accidents, earthquakes, hurricanes, tornadoes, and pandemics.
More difficult challenges are faced from either deliberate or accidental contamination with
industrial chemicals, biological/chemical warfare agents, or radiological dispersal devices (i.e.,
dirty bombs). Foreign animal disease outbreaks and emerging infectious diseases also pose
disposal challenges and occur worldwide. The goal is to prevent further outbreaks or minimize
further spread of the disease. The foot- and- mouth disease outbreak in the United Kingdom in
2001, chronic wasting disease in North America, and the avian influenza outbreaks currently
occurring in Asia, resulted in a large volume of animal carcasses to dispose of and highlighted
some of the uncertainties on how this type of disposal could be managed.
In 2002, the National Homeland Security Research Center (NHSRC) of the U.S.
Environmental Protection Agency was created. As part of the NHSRC research effort, guidance
and tools are being developed to help respond to incidents of national significance. A part of this
program specifically addresses waste disposal issues resulting from such incidents. This waste
disposal research program is coordinated through the Department of Homeland Security, other
federal agencies, and with state and local government officials, industry, and international
research partners. One of the major outputs from this research is the development of a suite of
Disaster Debris Management and Disposal Decision Support Tools (DDMD-DSTs). (Lemieux,
2004) The objective for the development of these tools is to provide assistance to (1) emergency
responders who have to determine the most appropriate options for handling, transport, and
disposal of disaster debris; (2) state and local agencies who have responsibility for facility
permits and ensuring compliance with applicable regulations; and (3) waste management and
water utility industries that provide safe disposal of these wastes without affecting the operation
of their facilities, violating any applicable regulations, and providing safe working conditions for
their employees.
It is important to note that this tool is not intended to override existing regulatory or legal
requirements that apply to the disposal of materials. Rather it provides a starting point for
cleanup activities. Final disposal decisions can only be made after contacting the appropriate
persons at state and regional regulatory offices and coordinating with the disposal site. The
DDMD-DSTs also provide quick reference to technical information, regulations, and guidance to
assure safe and efficient removal, transport, and disposal of incident debris.
2. DESIGN PHILOSOPHY AND TECHNICAL APPROACH
The objective of the DDMD-DSTs is to help reduce restoration time by providing a stepwise
approach in the decision making process for disaster debris management. Guidance is provided
that is specific to the types of materials and contaminants involved. This guidance is also
specific for the unique issues or challenges faced with ensuring public and worker safety
throughout the packaging, transportation, treatment, and disposal process. Rather than providing
massive quantities of information to the user, the tool tries to distill information while
maintaining links to more detailed information if desired. The tool is web-based to link the user
to more detailed sources of data and information. Using a web-based platform also facilitates
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Sardinia 2007, Eleventh International Waste Management and Landfill Symposium
more frequent updates to guidance, facility information, and points of contact. DSTs are
available to address:
¦ Building decontamination residue disposal;
¦ Decontamination wastewater disposal;
¦ Water system materials disposal;
¦ Natural disaster debris disposal; and
¦ Agricultural biomass disposal.
Waste streams that are covered include aqueous solutions and building debris from
decontamination of buildings, including furniture, ceiling tiles, wall hangings, and carpeting
With hurricane events, there can be significant quantities of waste that are contaminated from
damaged chemical and industrial facilities, mold, and other pollutants. Cleanup of contaminated
water treatment and distribution systems may involve the disposal of pumps, filters, piping, and
other equipment. The waste also includes personal protective equipment from the cleanup crews,
which may be contaminated with residual agents at varying and possibly unknown levels. For
agricultural biomass and animal carcass disposal, there can be other unique issues regarding the
urgency in response time and need to minimize further impacts.
Figure 1 provides a screenshot of the login page. The tool is password-protected and enables
users to create a decision scenario and save it for later reference or revision. Each user has a
unique username and password based on three different user groups: (1) EPA and other federal
agencies; (2) State and local agencies; and (3) industry, trade associations, or other users. The
user can share scenarios that are created or limit access. To create a scenario, a user must
specify the incident location and the type and characteristics of waste material. The user follows
a stepwise approach to determine the quantity and inventory of waste material, potential disposal
facilities, and transport options. For example, back-of-the-envelope waste quantity estimators
are available for determining building residue from the decontamination of hotels, offices,
schools, shopping centers, theaters, and residences. Links to guidance and training modules for
the disposal of agricultural biomass and animal carcasses are also available through the U.S.
Department of Agriculture.
EPA's Suite of Disaster Debris Management and
Disposal (DDMD) Decision Support Tools
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Figure 1. Screenshots from the Disaster Debris Management and Disposal Tool
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Sardinia 2007, Eleventh International Waste Management and Landfill Symposium
The information that is contained within or accessible through the DSTs includes:
¦ Disposal facility information with a database of incinerators, landfills (hazardous waste,
municipal solid waste, and construction/demolition debris), wastewater treatment facilities,
electric arc furnaces, wood-fired boilers, aluminum and copper recylers, and medical waste
autoclaves;
¦ Building residue characteristics and quantity estimates and guidance and/or regulations for
worker protective equipment, building decontamination residue removal, packaging and
shipment;
¦ Water systems materials characteristics and equipment and guidance for disposal of water
treatment facility residues;
¦ Agricultural biomass disposal (including animal carcass disposal) guidance;
¦ Natural disaster debris characteristics and guidance;
¦ Contaminant and decontaminant characteristics;
¦ Worker protection information; and
¦ Library of resources to assist in the decision making process.
3. OVERVIEW OF DSTS FOR DISASTER DEBRIS MANAGEMENT
3.1 DST for Disposal of Building Decontamination Residue
The DST for disposal of decontaminated building debris is the first one to be developed with
work beginning in 2003. This DST was developed in response to the cleanup of buildings from
anthrax attacks on government and news media buildings in 2001. The DST was developed by
working closely with stakeholders who had first hand experience in dealing with the aftermath of
September 11th and anthrax attacks. Industry and others who have expertise or concerns
associated with developing appropriate guidance for disposal of incident debris were also
involved in the DST development. (U.S. EPA, 2003)
The DST can help an end user in planning, as well as responding to a potential event. For
most expected applications, the initial response and decontamination activities will have
occurred prior to use of the DSTs to determine disposal options. It can also be used in helping to
plan decontamination to look at scenarios based upon the selection of different decontamination
technologies to estimate waste quantity and characteristics. Porous materials are more difficult
to decontaminate and it is difficult to guarantee that there is no remaining contaminant. When
developing waste categories, materials are classified taking into account the ability to ensure that
the material has been decontaminated. Waste classification categories include hazardous waste,
municipal solid waste, constuction and demolition waste, and special waste. The DST provides
assistance or guidance to the address the following:
Estimating waste quantities and debris characteristics to generate waste profile information;
Identifying available disposal options and capacity for the different categories of waste on a
geographical basis, including contact information for the range of potential disposal
facilities. [The range of disposal facility types include incinerators, landfills (hazardous
waste, municipal, construction and demolition debris), autoclaves, and wood-fired boilers];
On-site preprocessing and packaging of waste materials to make the material more amenable
for disposal in a given facility;
Guidance for transporting the waste materials;
Guidance to minimize risk to workers handling the waste materials, to the disposal facility
workers, and to people along the transportation route to the disposal facility, and to minimize
potential for contaminating the disposal facility; and
Methodology for calculating initial estimates of potential disposal costs.
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Sardinia 2007, Eleventh International Waste Management and Landfill Symposium
A summary screen from an example scenario and a screenshot for the back-of-the-envelope
estimator is provided in Figure 2. The DST provides information on potential disposal facilities
including contact information and links to operating permits. The DST also provides links to
relevant packaging regulations and guidance on performance requirements for containers.
Finally, the DST has a list of possible suppliers of hazardous material transport containers.
Once a potential disposal facility has been located, maximum container size requirements for
that facility can be combined with the waste inventory database to estimate whether additional
size reduction will need to be performed prior to shipment to the disposal facility. A list of
potential methods for size reduction is presented, along with potential suppliers for the size
reduction equipment.
The DST for decontaminated building debris also contains external links to the various
transportation regulations as well as transportation companies suitable to haul the materials to
the disposal facility. The DST has an external link to "SafeStat", where potential haulers can be
evaluated for their safety records. Finally, the DST provides a link to the U.S. Department of
Energy's Transportation Routing Analysis Geographic Information System (TRAGIS) tool (U.S.
DOE, 2006). This is a Geographical Information Systems based tool that allows appropriate
transportation routes to be created.
Sample Sceiuuio
Scenano descrlpllort
Scenario Conl«-*•:
Shopping Mall
¦ncideirt Adili ess:
1 2-3 Maun Street
San Diego, OA 891 21
Selected C oiil,»mliiaril Decoitr.iiiiin.iii1:
B.iclt-of-ttie-Ei iwUxiie Par s:
Gross Leasable Area (sq 11} 500,000
56% slores/arwhors
2.2'% ai>pare!
3%- furniture
3% electronic
5%. semces/specialtv stores
5% booksfloys
2%^ jewelry
2^S» resjaurants
2% fast foodffood court
Ois|><>s.il Facility Tyi>ecrtal».--Ji ?-
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Sardinia 2007, Eleventh International WasteManagement and Landfill Symposium
DSTs have been developed to address potential contamination. The different DSTs are
identified in the home page for this module (Figure 3). For developing a scenario, the incident
location and system characteristics are specified. For the disposal of debris from the
Hottms ConrlaaJt U* *loZ Index UEagTufl Resources Hcto Loo OH
Water System Materials Disposal Decision Support Tool
Home
Drinking waler treatment plants. water supply networks, the water using commuiuty, and
waslewaler treatment pflants are linked together in an integrated system In the event that chemical
or biological contamination *s tn&oduced art some poim in this system,, the tf »sposal requuemenjs
associated with each component of Bhe system differs. Therefore., this module of EPA's Suite of
Dispos al Decision Support Tools has b ®en organraeel imo four subcomponents You can access
each Ov clicking on the links below. These tools are Intended to provide guidance 1o personnel who
are responsible for disposing of materials contaminated with chemical or biological agents
-P-ig.Bqrw'.O.w.teiwtSwByt Tw?l
water Snooty Dis1rit>micn> system Disposal Decision SmaporlTool
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wastewater Trearme-rai Plant D-«eLft Disposal Potismn Sup it rut Tool
tl is important to understand thai the Information provided m these tools does not override existing
regulatory or legal requirements that apply to Bhe disposal or materials This information should be
used as a slatting point for understanding some of the options ava iiaore tor disposal of these
materials Final disposal decisions cam only be made alter contacting the appropriate people at
sJaSe and regional regulatory offices and coordinating with the disposal srte
More detailed instructions far using the tools are contained In the Help System
'Mote 1Iii.iI yosi will lie r eipiu erl lo ie lo-tjiri iiftei 15 iiamdes of «iro-
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Sardinia 2007, Eleventh International Waste Management and Landfill Symposium
solid (e.g., sludge, filter media) waste that may require disposal in the event of chemical or
biological contamination at a wastewater treatment facility. This is based on operating
parameters such as throughput and information on unit operations (e.g., rotating biological
contactors, anaerobic digesters). The end result is information on the quantity and inventory of
waste to be managed. The final step is guidance on handling, transport, and disposal options.
3.4 Agricultural biomass disposal
The Agricultural Biomass DST has been developed in collaboration with the U.S. Department of
Agriculture (USDA). It is intended to provide guidance to personnel who are responsible for
disposing of animal carcasses or plant materials in the aftermath of an event. The USDA has
developed several training modules that can be accessed within the tool by clicking "Disposal
Options" from the left navigation menu. Access to several other key resources for additional
guidance is provided using hyperlinks to the National Center for Animal Health Emergency
Management and the National Animal Health Emergency Management System Guidelines. The
USDA is developing a best practices handbook on carcass disposal which the DST will link to
once it is available. Figure 4 provides screenshots of the home page and an example screen to
evaluate disposal options for carcasses resulting from avian flu, and an example screen for
accessing information on lessons learned from previous incidents.
3.5 Natural disaster debris disposal
The Natural Disaster Debris Disposal DST is intended to provide guidance to personnel who are
responsible for disposing of debris in the aftermath of a natural disaster. It provides access
planning and guidance documents for the management of such debris. The tool provides access
to a large number of natural disaster case studies, preparedness guidance documents, and
pplicable rules and regulations. The natural disaster debris DST addresses the situation where a
contaminated facility is demolished rather than restored. It also contains a database of disposal
facilities and recyclers. Development of this DST began in 2006 and is in the early stages of the
development process and has limited content and functionality. An initial release was provided
to stakeholders in February 2007 to obtain their feedback. Information available includes:
¦ Case studies organized by disaster type (e.g. hurricanes, tornados, earthquakes, floods);
¦ Considerations for handling mass debris including hazardous, non-hazardous, and
special wastes;
¦ Disaster debris reduction/recycle/disposal methods and equipment;
¦ Applicable regulations and disposal guidance; and
¦ Identification of potential facilities and contact information for providing safe disposal of
disaster debris and opportunities for materials recovery for recycling programs.
Figure 5 shows a screenshot of the home page and information gateway that provides
emergency responders quick access to information relevant to their needs.
4. NEXT STEPS
Stakeholder feedback is used to set priorities and determine additional modules and revisions.
As each version of the DSTs is completed, a workshop is held with stakeholders to obtain
feedback and expert review. Typically this is done by assigning "homework" as part of each
workshop to determine the ease of use in working with the DST and if it succeeds in providing
needed information for the decision making process. For those having responded to previous
events, it is particularly helpful to get their insight and guidance.
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Sardinia 2007, Eleventh International Waste Management and Landfill Symposium
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Sardinia 2007, Eleventh International Waste Management and Landfill Symposium
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Figure 5. Screen shots from the Natural Disaster Debris Management DST
The different DSTs are in various stages of development. The decontaminated building debris
DST was the first to be created and the only remaining changes are to add additional calculators
for other facility types (i.e., hospitals, airports, arenas). A major focus over this next year will be
to complete the DSTs for disposal of agricultural biomass and natural disaster debris. These are
both being closely coordinated with stakeholders and other government agencies. For example,
as additional training modules are completed by the USDA and as additional guidance is
available for disposal of carcasses from contagious animal diseases, we will include updated
links within the DST. For the natural disaster debris DST, we plan to link to estimation
algorithms that were developed by the U.S. Army Corp of Engineers as well as incorporate
lessons learned from recent events. Finally, a complex and high-priority module is being
developed for disposal of waste after detonation of a radiological dispersion device.
In parallel to this research, the NHRSC is conducting research to study the thermal destruction
of chemical and biological contaminants absorbed on building materials. Porous materials can
be very challenging particularly when soaked in chlorine beach. Information on the types of
materials, residence time, and temperatures are being determined to ensure effective destaiction
of potential contaminants. (Lee et al., 2005; Serre et al, 2005; Lemieux et al., 2004; Lemieux et
al., 2006; Dennison et al., 2001; Dennison et al., 2005; Sieber et al., 2005) Research is also
being conducted to understand the potential fate of any residual biological or chemical
contaminants on debris that is landfilled. This research is to address any potential changes
needed in the design and operation of a landfill to ensure worker protection as well as ensuring
that disposal in a landfill will provide protection of human health and the environment. (Bartelt-
Iiunt et al., 2006)
5. CONCLUSIONS
EPA's Office of Research and Development has developed a suite of web-based decision
support tools that will assist in the decision making process for the disposal of disaster debris.
The use of the DSTs will provide decision makers information that is location-specific and
contact information for disposal facility options and obtaining appropriate permits. Guidance is
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Sardinia 2007, Eleventh International Waste Management and Landfill Symposium
also provided for handling and transportation that is specific to the different types of disasters
and contaminants. Outputs from the tool such as waste profiles and characterization information
can be shared with facilities and transportation companies. DST outputs are also helping in
planning activities and understanding the costs for different disposal options. The tool is not
intended to override existing regulatory or legal requirements that apply to disaster debris
handling, transport, or disposal.
REFERENCES
Bartelt-Hunt S. L., Barlaz M. A., Knappe D. R. U., P. Kjeldsen P. (2006) Fate of Chemical
Warfare Agents and Toxic Industrial Chemicals in Landfills," Environ. Sci. & Technol., 40,
13, p. 4219-25.
Denison M.K., Montgomery C.J., Sarofim A.F., Bockelie M.J., Magee R., Gouldin F., McGill G.
(2001) "Detailed Computational Modeling of Military Incinerators," presented at the 20th Int.
Conference On Incineration and Thermal Treatment Technologies, Philadelphia, PA, May.
Denison M., Montgomery C., Zhao W., Bockelie M., Sarofim A., Lemieux P. (2005) "Advanced
Modeling of Incineration of Building Decontamination Residue," submitted - AWMA's 98th
Annual Conference & Exhibition; Minneapolis, MN, June 21-24.
Lee C.W., Wood J.P., Betancourt D., Linak W.P., Lemieux P.M., Novak J. (2005) "Study of
Thermal Destruction of Surrogate Bio-contaminants Adsorbed on Building Materials,"
submitted - Air and Waste Management Association's (AWMA's) 98th Annual Conference &
Exhibition; Minneapolis, MN, June 21-24.
Lemieux P. (2004) "EPA Safe Buildings Program: Update on Building Decontamination Waste
Disposal Area," EM, Vol. 29-33.
Lemieux P., Stewart E., Realff M., Mulholland J. A. (2004) "Emissions Study of Co-firing Waste
Carpet in a Rotary Kiln," Journal of Environmental Management, Vol. 70, pp. 27-33.
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