Agenda 10/26/2010 Item #10DAgenda Item No. 10D
October 26, 2010
Page 1 of 15
EXECUTIVE SUMMARY
Recommendation to authorize Waste Management Inc., of Florida, to submit an
application to the Florida Department of Environmental Protection to increase the height
of the Collier County Landfill to a maximum elevation of 200 feet above grade to gain
additional disposal capacity, saving ratepayer funds, and maximize existing resources.
OBJECTIVE: Authorize Waste Management Inc., of Florida (WMIF), to submit an application
to the Florida Department of Environmental Protection (FDEP) to increase the height of the
Collier County Landfill to a maximum elevation of 200 feet above grade.
CONSIDERATION: The Solid Waste Management Department (Department) is responsible
for ensuring that the Collier County Landfill (Landfill) has sufficient capacity available for the
disposal of the county's solid waste. A component of the Department's Integrated Solid Waste
Management Strategy, approved by the Board of County Commissioners (Board) on December
5, 2006, is the vertical expansion of the Landfill to increase its disposal capacity and extend its
useful life. Additionally, the Board approved on January 25, 2007, as Agenda Item F2, the
county's Growth Management Plan (GMP) Amendment 2007 -12, including the Solid Waste
Sub - Element. Policy 2.4, # 2, of the GMP mandates the county to increase the permissible
elevation of the Landfill to gain additional airspace capacity, as a major objective.
Pursuant to the Landfill Operations Agreement (LOA), WMIF is responsible for submitting
permit applications to the FDEP for the construction and operation of the Landfill. WMIF
already has a FDEP permit to build the Landfill to an elevation of 108 feet above grade. With
Board approval, WMIF will prepare the necessary plans and seek a permit modification to allow
expansion to a maximum of 200 feet above grade.
Based on an initial analysis by WMIF, the Landfill's actual disposal capacity can only be raised
another 70 feet to a height of 178 feet above grade. Applying for a maximum elevation of 200
feet will provide the flexibility to add any future needed instruments or structures necessary to
operate the landfill, such as gas collection well heads, a weather station, monitoring equipment,
final cover material and liners.
Increasing the crest elevation of the Landfill will provide approximately 11.8 million cubic yards
of additional disposal capacity. Based on current projections, it is estimated that the vertical
expansion will provide enough additional capacity to meet the county's needs for an additional
19 years beyond the current 2039 capacity set forth in the FY10 AUIR, increasing the Landfill's
useable life to 2058.
Construction of new landfills requires specific zoning, which is typically declined due to public
opposition. The FDEP considers the need for a new landfill, as well as technical requirements.
With the new rules developing that will restrict landfills over karst (limestone region) geology,
only limited areas of Florida will be viable for new landfill construction, from a geotechnical
perspective. Therefore, maximization of our existing resource provides the best value option for
providing additional disposal capacity for our community.
Agenda Item No. 10D
October 26, 2010
Page 2 of 15
The Department's "good neighbor policy" is an integral component of best value services, and
requires neighborhood information meetings with the residents within the area of development,
or in advance of a change to current collections or disposal conditions.
• The Department held the first neighborhood information meeting relative to the potential
vertical expansion of the Landfill on Thursday, June 5, 2008. The meeting notes and
public notice are provided in Exhibit B and B -1.
• A second neighborhood information meeting was held on Tuesday, October 12, 2010.
The meeting notes and public notice are provided in Exhibit C and C -1.
WMIF and Department staff agree that the vertical expansion will not affect the general
operations at the Landfill (e.g., traffic, odors, environmental compliance). Staff evaluated the
visual impact of the vertical expansion and concluded that the impact will be negligible from off -
site vantage points. It is important to note that there will not be a sudden increase in the
Landfill's height; rather, the height will increase gradually.
FISCAL IMPACT: There is no cost to the county associated with the vertical expansion of the
Landfill. Based on current tipping fees and Landfill operating expenses, it is estimated that the
vertical expansion of the Landfill has a dollar value of $100 million dollars in landfill disposal
(airspace) capacity (Exhibit D). Pursuant to the LOA, WMIF will pay all the costs associated
with the FDEP permitting process. WMIF also will pay all the costs for the construction and
operation of the Landfill. Consequently, the county will not incur any new, direct costs for the
vertical expansion of the Landfill.
If the Board authorizes WMIF to proceed with the FDEP permitting process, but subsequently
decides not to proceed with the vertical expansion, the county may be obligated to reimburse
WMIF for the engineering services and other costs incurred pursuant to Section 5.5 of the LOA,
"Should the County decide not to proceed after receiving the proposed change order, it shall so
advise the Contractor in writing within fifteen (1 S) days; in this event, the Contractor shall be
reimbursed for design engineering services, or other services as documented by cost
substantiation submitted in support of the proposed change order", (Exhibit A). WMIF has
agreed that, if such circumstances arise, WMIF will not request reimbursement for more than
$100,000 dollars, even if WMIF's actual expenses are greater.
LEGAL CONSIDERATIONS: Staff has advised me that the vertical expansion will not
increase the footprint of the landfill. This item is ready for Board consideration and approval.
HFAC
GROWTH MANAGEMENT IMPACT: Vertically expanding the Collier County Landfill is
compliant with the Collier County Growth Management Plan, Objective 2 (Disposal), Policy 2.4,
#2, which specifically calls for vertical expansion and will (a) provide additional disposal
capacity, which is essential to the county's long -term plans for growth management; (b) enable
the county to comply with the Solid Waste Sub - Elements of the Growth Management Plan; and
(c) implement the requirements of the 2006 amendments to the Growth Management Plan.
Agenda Item No. 10D
October 26, 2010
Page 3 of 15
RECOMMENDATION: Authorize Waste Management Inc., of Florida, to submit an
application to the Florida Department of Environmental Protection to increase the maximum
elevation of the Collier County Landfill to 200 feet above grade.
PREPARED BY: Daniel R. Rodriguez, M.B.A., CFM, Director, Solid Waste Management
Department
Agenda Item No. 10D
October 26, 2010
Page 4 of 15
COLLIER COUNTY
BOARD OF COUNTY COMMISSIONERS
Item Number: 10D
Item Summary: Recommendation to authorize Waste Management Inc. of Florida, to submit an application to
the Florida Department of Environmental Protection to increase the height of the Collier
County Landfill to a maximum elevation of 200 feet above grade to gain additional disposal
capacity, saving ratepayer funds, and maximize existing resources. (Jim DeLony, Public
Utilities Administrator)
Meeting Date: 10126/2010 9:00:00 AM
Approved By
Linda Best
Compliance Manager
Date
Public Utilities Division
Solid Waste Management Department
10/8/2010 10:53 AM
Approved By
Thomas Wides
Director - Operations Support - PUD
Date
Public Utilities Division
Utilities Finance Operations
10/11/2010 8:25 AM
Approved By
Dayne Atkinson
Project Manager
Date
Public Utilities Division
Public Utilities Engineering
10/11/2010 11:13 AM
Approved By
Margie Hapke
Operations Analyst
Date
Public Utilities Division
Public Utilities Division
10/12/2010 8:59 AM
Approved By
Daniel R. Rodriguez
Director- Solid Waste
Date
Public Utilities Division
Solid Waste
1011212010 3:49 PM
Approved By
Heidi F. Ashton
Section Chlef /Land Use - Transportation
Date
County Attorney
County Attorney
10/13/2010 9:09 AM
Approved By
James W. DeLony
Public Utilities Division Administrator
Date
Public Utilities Division
Public Utilities Division
10/1412010 1:35 PM
Approved By
OMB Coordinator
Date
County Manager's Office
Office of Management & Budget
10/14/2010 4:06 PM
Approved By
Randy Greenwald
Management/Budget Analyst
Date
Office of Management &
Agenda Item No. 10D
October 26, 2010
Page 5 of 15
Budget Office of Management & Budget 10/16/2010 11:18 AM
Approved By
Leo E. Ochs, Jr. County Manager Date
County Managers Office County Managers Office 10/16/2010 3:01 PM
Agenda Item No. 10D
October 26, 2010
Page 6 of 15
Exhibit A
LOA
Section 5.5
5.5 Changes requested by the County. The County may request changes in the scope of work
under the Agreement which it deems necessary, beneficial or expedient. Such requests shall be
submitted in writing by the County to the Contractor and shall describe the requested change and
request a non - binding budget and time estimate. Within ten (10) days of receipt of the County's
request, the Contractor shall prepare, and submit to the County a budget estimate in line item
detail showing estimated amounts for labor, materials, subcontractor costs, and design cost and
Contractor profit. The County shall promptly review each budget and time estimate submitted
by the Contractor and, within thirty (30) days following receipt, shall advise the Contractor of
the County's decision as to whether to proceed with the requested change. In the course of its
review, the County may request a conference(s) with the Contractor for purposes of discussing
and negotiating specific details regarding scope, cost and tine requirements for the requested
change. Should the County decide to proceed, it shall direct the Contractor in writing to prepare
a proposed change order supported by engineering drawings, specifications, cost substantiation
and detailed time schedule and to submit the change order for further review by the County on or
before a date specified in the County's written directive to proceed. If the County determines the
proposed change order to be acceptable, it shall execute the change order and return an executed
copy to the Contractor within thirty (30) days following its receipt. Should the County decide
not to proceed after receiving the proposed change order, it shall so advise the Contractor in
writing within fifteen (15) days; in this event, the Contractor shall be reimbursed for design
engineering services, or other services as documented by cost substantiation submitted in support
of the proposed change order.
Agenda Item No. 10D
October 26, 2010
Exhibit B Page 7 of 15
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lit o+�o y
Public Utilities Wsion
Solid WastL
Vertical Expansion
Neighborhood Information Meeting
June 5, 2008
The Solid Waste Management Department held an informal public information meeting relative
to the subject project on Thursday, June 5, 2008, between 5:00 pm and 7:00 pm, in Room C of
the Golden Gate Community Center, 4701 Golden Gate Parkway. We advertised the meeting to
the public through paid advertisements in the Collier Citizen (all three zones) on May 23, and
May 30. We alerted the media to the meeting through a press release issued on May 27. FOX -4
news did an interview with Dan Rodriguez, Solid Waste Management Department Director, in
advance of the meeting that aired during the 10:00 pm broadcast on May 26. ABC -7 contacted
me the morning of the meeting but, after discussion of the topic, decided the meeting did not
warrant coverage.
County staff in attendance included:
Margie Hapke, PUD Public Information Coordinator
Dan Rodriguez, Solid Waste Management Department Director
Dayne Atkinson, PUED Project Manager
Sue Zimmerman, Real Property Management Property Acquisition Specialist
Two members of the public attended the meeting:
Robert Alonso who listed himself as "Commission Candidate/Resident"
Kaydee Tuff who listed herself as "resident/Collier Citizen"
Mr. Alonso completed a comment sheet before leaving the meeting; I've attached it for your
review.
Kaydee Tuff emailed two follow up questions to me on June 6. Those questions were addressed
and I expect to see an article in this Friday's edition of the Collier Citizen (June 13).
Scott Dobroski, morning reporter for ABC -7, has requested an interview with Dan Rodriguez at
the landfill on Wednesday, June 11. The interview will cover not only the proposed vertical
expansion of the landfill, but also the reclamation of landfill cells one and two, and the proposed
landfill gas -to- energy project.
Agenda Item No. 10D
October 26, 2010
Exhibit B-1, Page 8 of 15
Advertisement for Collier Citizen (all three zones) May 23 and May 30, 2008
PUBLIC INFORMATION MEETING
Thursday, June 5, 2008
5:00 pm — 7:00 pm
Golden Gate Community Center
4701 Golden Gate Parkway
Room 4`C"
The Solid Waste Management Department is responsible
for ensuring the Collier County Landfill has sufficient
capacity available for the disposal of the County's solid
waste.
The public is invited to attend an informal public
information meeting regarding a proposal to increase the
vertical height of the landfill from its present permitted
height of 100' above grade, to up to 200' above grade. The
purpose of this project is to increase the solid waste
disposal capacity of the landfill to address a critical need of
the County's residents; implement the requirements in the
County's Growth Management Plan and the Integrated
Solid Waste Management Strategy; and, extend the
estimated useful life of the landfill.
Collier County Solid Waste Management Department staff
will be on hand to answer questions related to the proposed
project. For more information, contact Margie Hapke,
Public Information Coordinator, at (239)252 -2679.
If you are a person with a disability who needs any accommodation in
order to participate in this proceeding, you are entitled, at no cost to you,
to the provision of certain assistance. Please contact the Collier County
Facilities Management Department located at 3301 East Tamiami Trail,
Naples, Florida, 34112, (239) 252 -8380; assisted listening devices for
the hearing impaired are available in the County Commissioners' Office.
Agenda Item No. 10D
October 26, 2010
Exhibit C Page 9 of 15
Co) iier County
Public Utilities Division
Solid waste
Collier County Landfill Vertical Expansion Project
Neighborhood Information Meeting - October 12, 2010
The Solid Waste Management Department held an informal neighborhood information meeting relative to
the subject project on Tuesday, October 12, 2010, between 5:00 pm and 7:00 pm, in Rooms A and B of
the Golden Gate Community Center, 4701 Golden Gate Parkway. The meeting was noticed through a
press release to all local media on October 5, a posting on the county's web site, and a posting on the
Golden Gate Community Center's facility sign.
Additionally, the Director of Solid Waste, Dan Rodriguez, forwarded a copy of the press release to the
Vice President of the Golden Gate Civic Association, Mike Ramsey, for distribution to the association
members. The Operations Manager of the Collier County Landfill, Beth Ryan, called the homeowners
directly adjacent to the landfill to personally notify them of the meeting and requested their attendance.
WINK TV taped an interview with Solid Waste Management Department Director Dan Rodriguez on
Tuesday, October 5 that aired that evening and again during the next morning's news cycle. The Naples
Daily News ran a front page article and photo on October 12.
County staff in attendance included Linda Best, Solid Waste Management Department Compliance
Manager; Dan Rodriguez, Solid Waste Management Department Director; Dayne Atkinson, PUED
Project Manager; and Margie Hapke, PUD Public Information Coordinator.
Seven residents attending the meeting, including two representing the Golden Gate Civic Association.
The meeting was covered by FOX4, WINK TV, NBC -2, and the Naples Daily News. One resident
expressed concern about potential odors. The concerns were address by staff AND by other residents in
attendance. Another resident indicated his belief that the county should investigate a waste -to- energy
(incinerator) facility similar to the one in use in Lee County. He also suggested we investigate hauling
solid waste to Lee County to bum in its incinerator, rather than burying the waste in the Collier County
Landfill. Dan Rodriguez indicated the county is investigating that option.
Coverage of the meeting aired during the last news cycle October 12, and again through the morning
news cycle on October 13.
hftp://Www.nbc-2.com/Global/story.asp?S=l 3313248
http://Www.fox4now.com/global/story.asp?s=l 3313723
http: / /www.winknews.com /Local - Florida /2010 -10 -12 /Residents- speak- out -about landfill
expansion
http: //w ww.winknews.com /Local- Florida /2010 -10 -06 /Landfill- plans -to- expand vertically
http: / /www.naples news. com/ news / 2010 /oct/11 /collier-county-landfill-double-height-20-stories/
http: / /www.naplesnews.com /news /2010/oct/12/increase-collier-landfill-height-75-feet/
Collier Coun
Public Utilities Division
3301 E. Tamiami Trail
Naples, FL 34112
October 5, 2010
Exhibit C -1
Government
FOR IMMEDIATE RELEASE
Agenda Item No. 10D
October 26, 2010
-.A6-Qe 10 of 15
c'
1 41�1
(239) 252 -2679
www.collier2ov.net
NOTICE OF NEIGHBORHOOD INFORMATION MEETING
PROPOSED VERTICAL EXPANSION OF THE COLLIER COUNTY
LANDFILL
TUESDAY, OCTOBER 12, 2010
5:00 p.m. - 7:00 p.m.
The Collier County Solid Waste Management Department will hold an informal neighborhood
information meeting Tuesday, October 12, 2010, from 5:00 p.m. to 7:00 p.m. in Rooms A & B of the
Golden Gate Community Center, 4701 Golden Gate Parkway, Naples. The meeting is an opportunity for
the public to learn more about the operations of the Collier County Landfill and a proposal to increase
the vertical height of the landfill from its present permitted height of 108' above grade, to a maximum
200' above grade.
The meeting will be held in an informal, open house format; there will not be a formal presentation.
Interested members of the public may attend between the hours of 5 p.m. and 7 p.m. to review project
displays and to talk one -on -one with staff. Information will be provided on the purpose of the project —
to increase the capacity of the landfill to address the critical need for future disposal space. Vertically
expanding the landfill also implements requirements of the county's Growth Management Plan, and the
Integrated Solid Waste Management Strategy. The proposed expansion will extend the estimated useful
life of the landfill by approximately 20 years.
If you are a person with a disability who needs any accommodation in order to participate in this
proceeding, you are entitled, at no cost to you, to the provision of certain assistance. Please contact the
Collier County Facilities Management Department, located at 3301 E. Tamiami Trail, Naples, FL
34112, (239) 252 -8380, at least two days prior to the meeting.
For more information contact: Margie Hapke, Public Information Coordinator at 239 - 252 -2679
-End-
Agenda Item No. 10D
October 26, 2010
EXHIBIT D Page 11 of 15
DEPARTMENTAL MEMORANDUM C0 �' Comity
Integrated Solid Waste Management Strategy
Workshop - Vertical Expansion
PREPARED FOR: Daniel Rodriguez, Director, Solid Waste Management Department
PREPARED BY: Solid Waste Management Department
COPIES: Project Delivery Team
DATE: September 24, 2010
Bottom Line
The Collier County Landfill is currently permitted to an elevation of 108 feet. Based on
information available at this time, it appears to be possible to increase the height of the
landfill to provide additional disposal capacity. This memorandum examines increasing the
height from 108 feet to 150 and 200 feet (an increase of 42 and 92 feet above existing
permitted height).
The estimated volume and tonnage for the vertical expansion is summarized on the
following exhibit.
Crest Elevation Vertical Expansion
Cubic Yards
Existing Permit -108 feet 0
150 feet 7,160,000'
178 feet 11,800,000'
Tons
Existing Permit -108 feet 0
150 feet 5,012,000'
178 feet 8,260,000'
Based on current tipping fees and Landfill operating expenses, it is estimated that the
vertical expansion of the Landfill an estimated dollar value of $100 million dollars in landfill
disposal (airspace) capacity.
The estimated cost to construct and operate the vertical expansion would be similar to the
current contractual cost Collier County experiences with Waste Management, Inc. There is a
potential for a slight reduction in cost per ton, since additional disposal capacity is being
provided with only minor construction cost impacts (access roads, LFG collection,
stormwater).
Advantages
- Increased disposal capacity without the need to construct addition lined landfill cells
Agenda Item No. 10D
October 26, 2010
Page 12 of 15
- Continued use of existing site infrastructure (scale house, leachate collection and
treatment, etc.)
- Does not require the purchase of additional property
- No impact on tipping fee
1 Totals updated with FY10 data.
In order to vertically expand the landfill, the following needs to be completed:
1. Conduct a detailed technical evaluation of the vertical expansion. This evaluation
should include a geotechnical evaluation, waste and liner stability analysis, leachate
collection and stormwater management analysis. The County has requested and
received a proposal from WMI to perform this work.
2. Complete the FDEP permitting process
- Submit an Application for Permit to Modify a Waste Management Facility to
FDEP under FAC 62- 701.900 regarding vertical expansion
- Publish a Notice of Permit Application in a newspaper of general circulation in
the area where the facility is located
- Mail a notice of application to the Chair of the Board of County Commissioners
and each State Senator and Representative serving the jurisdiction in which the
project is located
- After the Department completes the permit review, the Department shall send a
copy of the notice of intent to issue or deny the permit to these same elected
officials
- A public hearing may be held by the FDEP if requested by elected officials or the
public
Background
Collier County Board of Commissioners approved an integrated solid waste management
strategy for the next 50 years and beyond that is the best value to the County. In order to
maximize the use of existing assets, the County has examined options to expand the useful
life of the Collier County Landfill.
Information contained herein is also based on the September 17, 2006 letter report prepared
by Waste Management, Inc. entitled Conceptual Vertical Landfill Evaluation presented to
the Collier County Solid Waste Management Department.
This memorandum addresses landfill volume and potential capital cost only. A detailed
technical evaluation of the alternatives needs to be completed. This evaluation should
include a geotechnical evaluation, waste and liner stability analysis, leachate collection and
stormwater management analysis. The results of these technical evaluations may limit the
maximum vertical height of the landfill. In addition, specific permitting and policy issues
related to vertical expansion must be reviewed.
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WASTE MANAMMMiT
Linda L. Jackson Best, M.B.A.
Strategic Planning and Contracts Manager
Solid Waste Management Department
Collier County Public Utilities Department
3301 Tamiami Trail East
Bldg H
Naples, FL 34112
Subject: Vertical Expansion of Collier County Landfill
Dear Linda:
Agenda Item No. 10D
October 26, 2010
Page 14 of 15
September 3, 2010
CENTRAL DISPOSAL
2700 NW 48th Street
Pompano Beach, Florida 33073
(954) 984 -2000
(954) 984 -2042 Fax
This letter provides information related to the potential process and timeframes -associated with
permitting a vertical expansion of the Collier County Landfill. Once the general concepts of a
potential vertical expansion of the landfill are outlined and a professional consulting engineering
firm is selected to prepare a formal submittal to the Florida Department of Environmental
Protection the process will take the, following course:
• An Application for a Major Modification of the* Construction and Operating Solid Waste
Permit for Vertical Expansion of the Landfill is submitted to FDEP (an application of this
magnitude typically takes approximately 6 months to prepare),
• An.Application for a Major Modification to the Environmental Resources Permit is also
submitted to FDEP to address the storm water system *(this application is typically.
prepared simultaneously to make sure that the changes to the landfill are accommodated
in the ERP),
• The FDEP has 30 days to review and deem the application complete or Request
Additional Information (RAI),
• The Applicant has 90 days to respond to the RAI and then FDEP has 30 days to review
the response and either issue another RAI or deem the application complete, (this process
often repeats one or two times, usually over a 3-4 month period), .
• Once the FDEP deems the application complete they send a letter stating this and then
they have 90 days to draft the new permit language,
• The FDEP simultaneously provides language that they want used in the publication called
Notice of Intent (NOI) to Issue Permit,
• The Applicant is then required to publicize the NOI in a newspaper that meets the FDEP
criteria and the public has 14 days to send a Petition for Public Heariiag to FDEP. If there
is a successful Petition for Public Hearing then a date is set for the Public Hearing,
• If there is no successful petition then the FDEP will provide the Applicant a draft of the
permit language. There is typically a period of a couple of weeks where both parties
work together to make sure the permit reflects the intent of the application and the FDEP
rules to assure the final language is appropriate.
From everyday collection to environmental protection, Think Green® Think Waste Management.
0 Mrrted on 1W% pattn ureeWelpopec
Agenda Item No. 10D
October 26, 2010 -
Page 15 of 15
In summary, this is typically a year long process unless there is a public hearing. The addition of
public hearings can add 3 months to several years to the process. Based on my understanding of
the technical aspects of this site I am optimistic that a public hearing.process is unlikely and this
vertical expansion can be permitted close to the one year timeframe.
If you have any questions please feel free to contact me.
Best regards,
Bryan Tindell
South Florida Area Director of Disposal Operations