July 6, 2015 - The Mariposa Grand Jury 2014-2015 Final Report included an investigation into the Mariposa County Landfill and Compost Facility.


SUMMARY

The Grand Jury conducted an overall review and evaluation of the Mariposa County Landfill and Compost Facility. This review was independently generated and examined the current operational status of the facility, as well as current and future issues Mariposa County will face regarding solid waste management.

The Grand Jury found the facility to be well managed and operating at a high level of efficiency considering the current state of equipment, staffing levels, and the regulatory mandates it must meet.

However, several serious issues involving the longevity of the Landfill, alternative plans for solid waste management, and the efficient operation of the Compost Facility currently face County  management. Some of these issues require timely decision making and implementation for Mariposa County to meet state mandated requirements, to commit to advantageous economic offerings, and to ensure County residents are well served by their government.

GLOSSARY

AB 939 - The Califomia Integrated Waste Management Act of 1989

ADC - Altemative Daily Cover (composted)

CalRecycle - The California Department of Resources Recycling and Recovery

DPW - Mariposa County Department of Public Works

MRF - Material Recovery Facility (commonly referred to as a "MuRF")

SWRD - Solid Waste & Recycling Division


BACKGROUND

The responsibility for the management of solid waste in Mariposa County belongs to the Mariposa County Department of Public Works (DPW) and its Solid Waste & Recycling Division (SWRD). SWRD operates the Landfill, Recycling Center, and Compost Facility, which are located on the same site approximately two miles west of the town of Mariposa on State Highway 49 North.

The outlying areas of the county are served by four transfer stations where citizens can take their household waste which is then transported to the single County landfill.  Historically, Mariposa County has had up to eleven solid waste landfills in various areas of the County. Over time, and as state regulations and environmental concerns evolved, all but one of these landfills were closed. This single landfill, which began operation in the 1950's, serves not only the approximately 18,000 County residents but also upwards of 3-4 million annual visitors to Yosemite National Park.

Unlike other DPW functions which are far more visible and affect citizens on an almost daily basis, such as roads, county building maintenance, and parks and recreation, the SWRD operates quietly in the background of County government. Most citizens visit the Landfill once or twice a month, dump their trash, and drive off. Little thought is given to what happens to their garbage once they leave.

The Landfill does not only provide a place to dump your trash, it also serves a vital role in protecting the public's health and safety. As one can imagine, a plethora of diseases and health hazards can be brought into the Landfill or generated by the Landfill itself. Proper, competent, and professional management of the Landfill protects us all.

The Landfill is permitted by the State of California as a Solid Waste Disposal Site (Permit # 22-AA-0001). The area encompasses a total of 58 acres with 40 acres designated for use as disposal areas. The Landfill is permitted to accept mixed municipal waste, sludge (bio-solids), dead animals, construction and demolition debris, and tires. It was orginally designed and engineered with five modules. Each module is an area where solid waste can be placed and its life span varies with the amount of trash flow. As the waste is placed in a module it is compacted and covered according to strict state regulations. When a module reaches capacity a new module is opened and the old one is permanently closed, again according to state regulations.

Currently the Landfill is operating with two open modules. The state estimates that if all five modules are used, the Landfill would reach its maximum permitted capacity by the year 2065.

The California Environmental Protection Agency, through the Department of Resources Recycling and Recovery (CaIRecycle), has ultimate regulatory authority over all solid waste landfills in the state. In recent years California has trended towards the elimination of small landfills with a preference for large capacity regional landfills that are lined to prevent enviromnental contamination. The Merced County Landfill on Highway 59 and the Fairmead Landfill in Madera County are examples of such regional landfills.

The Mariposa Landfill is a small capacity, unlined landfill. As such, the state has given direction to Mariposa County to revitalize the remaining Landfill modules by lining them or to close the Landfill altogether.

In 1989 the state passed AB 939 which mandated local jurisdictions to meet solid waste diversion goals of 25 percent by 1995 and 50 percent by 2000. Due to poor governing and decision making, Mariposa County delayed the planning and implementation of any solid waste reduction program and, as a result, failed to meet the 1995 and 2000 mandates. After receiving many time extensions from the state, the county ultimately decided to purchase a composting system for installation at the Landfill to meet the state mandates. In 2006 the County acquired the necessary state permit (Permit #22-AA-0013) and began operating the Compost Facility.

The type of composter the county settled on is called a stationary in-vessel composter or an SV Composter. At the time Mariposa committed to this type of system, only West Yellowstone, Montana had an identical system from the same company, Engineered Compost Systems, Inc. in Seattle, Washington. That composter began operating in 2003.

The Composting Facility was, and still is, a subject of great debate and skepticism by county residents. This skepticism is not without its reasons. The Composting Facility was mismanaged from the beginning. There was a great deal of criticism and debate within the community that this type of composter was too costly, was untested, and its overall efficiency questioned.

The project was poorly marketed to County residents who generally believe the County did not get what it paid for. This was partly due to a misconception citizens had about the functioning and purpose of the Compost Facility. Poor management and poor public marketing, combined with a high price tag and many mechanical failures, resulted in a public perception that the Compost Facility was a waste of taxpayer dollars.

Furthermore, Yosemite National Park provided a substantial amount of the funding, approximately $1 million, needed to purchase and construct the Compost Facility. It is widely accepted that because of the delays, mechanical failures, and the overall inefficiency of the Compost Facility, as well as being charged an exorbitant amount for their trash considering their contribution, the Park was generally dissatisfied with the project and their investment.

The Composting Facility was subject to two previous Grand Jury Reports. The 2007-2008 and 2009-2010 Grand Jury Reports discussed different aspects of the facility and the decision making process that went into its planning and development.

METHODOLOGY

The Grand Jury conducted interviews with DPW and SWRD staff, and with current and former County supervisors. Additionally, the Grand Jury toured both the Landfill and Composting Facility.

Publicly accessible documents and web sites were also reviewed.

Information sources included:

I. CalRecycle

http://www.calrecvcle.ca.gov


2. Mariposa County Compost Facility Permit and Information

http://www.calrecvcle.ca.gov/SWFacilities/Directory/22-AA-0013/Detail/


3. Mariposa County Landfill Permit and Information

http://www.calrecvcle.ca.gov/SWFacilities/Directory/22-AA-0001/Detail/


4. Mariposa County Budget FY 14-15

http://www.mariposacountv.org!DocumentCenter/View/36296


5. Engineered Compost Systems, Inc.

http://www.compostsvstems.com/


DISCUSSION

General

The Landfill operates as an Enterprise Fund within the county budget. As an Enterprise Fund, the operation of the Landfill is generally self-supporting, generating its revenue mainly through the collection of tipping fees and the bulk sale of recyclable goods. Little, if any, General Fund money supports Landfill operations. Because of poor supervision and mismanagement the Landfill has a history of accumulating severe budget deficits.

However, recent positive management changes and wise decision making by the current SWRD Manager, have allowed the Landfill to run significant budget surpluses for the past two years. The budget surplus in 2013 was $200,000. In 2014 the Landfill had a budget surplus of $400,000.

During the 2012-13 Mid-Year Budget review a new fund, The Solid Waste Fund, was established where these budget surpluses would be deposited. This dedicated fund is used primarily for the purchase and replacement of equipment at the Landfill.

It is important to note that, despite the significant budget surpluses generated during his tenure, the SWRD Manager remains one of the lowest paid solid waste managers in the state. Fair and appropriate compensation should be reflective of, and commensurate with, the experience, knowledge, and management skills of any County program manager.

Landfill

The lifespan and long-term functioning of the Landfill is of significant concern for Mariposa County as a whole. The State of California and its regulators foresee small municipal landfills, such as the Mariposa Landfill, closing in the next few decades, if not sooner. Political, environmental, and regulatory pressure is being placed on the managers of these small landfills to submit long-term plans in a short amount of time. Mariposa is now at a crossroads as to the future of the Landfill.

As stated earlier, the Landfill consists of five modules for the placement of mixed municipal waste (essentially household garbage). None of the five modules are lined to prevent contamination. Modules I and 2 are currently being used and have an estimated remaining life span of 7-10 years. This, of course, depends on the volume of the incoming trash stream, the compaction of the trash, the required air space between trash layers, and the efficient removal of recyclables.

The Composting Facility was constructed on top of module 5 leaving it unusable. It is unknown whether this was an engineering oversight or was purposefully done. Most of the individuals who were closely involved in the construction of the Composting Facility no longer work for Mariposa County. Nevertheless, this left the Landfill with two remaining unused modules for future use.

Modules 3 and 4 are unused at this time. Opening and using these modules would extend the total lifespan of the landfill approximately 40 years. However, current regulations would require that each newly opened module be lined with a contamination barrier before it could begin operation. The estimated cost of lining both of these modules is $10 million. Mariposa County does not have the funding to invest in a landfill the state desires to close.

For a County of roughly 18,000 citizens, the decision making process for County managers regarding the Landfill may not seem to be a pressing matter. In fact, as in the case of the Composting Facility, County government tends to procrastinate in making these types of decisions. Short-term decision making is easier and politically more palatable than those that may not come to fruition until decades later.

But Mariposa County is unique amongst most counties in California. As the "Home of Yosemite" it is not just the County residents that are generating a trash flow, it is also the nearly 4 million visitors to one of the crown jewels of the National Park System, Yosemite National Park. This one factor alone places both the County and the Landfill in a very precarious position. Mariposa County depends on the vitality of the tourist industry to Yosemite. However, the waste stream generated by the tourists  creates enormous  pressure on the Landfill, as well as the entire infrastructure of the County.

The state regulates landfills based on population. The diversion mandates, meaning what can be separated from the waste stream and recycled from that which requires burial, is generally based on the number of residents of each county. The state calculates a daily value of trash which is theoretically generated by each resident. In 2013 (the most current data available) the statewide disposal rate was determined to be 4.4 pounds/person/day (ppd). AB 939 mandates a 50% reduction, meaning Mariposa County's diversion goal is 2.2 ppd. Mariposa County is curently at 3.4 ppd (down from 3.7 ppd).

With only its 18,000 residents using the Landfill, Mariposa County would likely meet the 2.2 ppd goal. However, with the addition of the millions of Yosemite tourists, meeting those mandates is an incredibly difficult task, one which has yet to be accomplished. The state has been made well aware of this issue. So far, state regulators have refused or are reluctant to take into consideration the impact the Yosemite waste stream has on the County Landfill. Because of this, the per capita diversion mandate for Mariposa County has not been adjusted accordingly. As a result, the state is requiring the County to meet a legislated goal that it simply cannot meet at this time.

For now, the state has granted Mariposa County "Good Faith Effort" status and has not been punitive towards the County for not meeting the diversion goal. However, as time goes on, it is likely state regulators will become less forgiving if they perceive inaction and procrastination on the part of the County to meet the diversion goal. If this occurs the County may face harsh penalties and sanctions by the state. For this reason it is imperative the Board of Supervisors prioritize their decision making on this issue.

Viable solutions to this problem, which are both cost effective and result driven, are elusive but available and achievable.

One alternative that has been widely discussed and actively pursued is the exportation of waste material to one of the regional landfills. There are many advantages to this alternative, but in order for it to be the most advantageous for the County, some infrastructure changes may need to be made. For example, in order to reduce the overall amount of trash to be transported, and thus lower its costs, it would be wise to separate all recyclable material and only transport that waste which needs to be buried. On its face, it seems like a simple proposition, but the implementation would require a commitment and an investment by County managers.

The County basically has three options for the Landfill.

The first option is to line the two available modules at a cost of about $10 million and hope for a life expectancy of maybe 40 years. This option would go against the long-term plans of California regulators and assumes regulatory approval would even be granted.

Secondly, the County could close the Landfill altogether and export all of its waste to a nearby regional landfill. Closing a landfill is a complicated and long-term process and the estimated cost would be roughly $5-10 million and take 3-5 years to complete. Closing the Landfill would render the Composting Facility obsolete.

The third option would be to keep the Landfill open and invest in equipment to more effectively and efficiently sort and separate the incoming trash into recyclables and compostable material. It would also require negotiation and agreement with a regional landfill to accept waste that requires burial. State regulations place limits on the amount of trash that can be exported from one landfill to another. This sliding scale of percentage of exported trash over time is termed “trickling". This "trickling" requirement complicates the decision making and planning process. County managers would need to strike a balance between complying with the "trickling" regulations, meeting diversion mandates, and the demands of the regional landfills during any negotiations.

The Fairmead and Merced Landfills are the two closest regional landfills to Mariposa County. The distances from Mariposa to either facility are essentially equal. This means transportation costs would be fairly similar. Presently, both landfills do not have an adequate inflow of waste to meet their goals or business models. The sheer size and massive capacity of these landfills require huge amounts of incoming trash. Simply stated, both regional landfills are looking for more trash. However, in order to satisfy their needs, it is generally an "all or nothing" proposition for them.

Combining all of these factors places Mariposa County in a delicate position. There are competing factors applying pressure from all sides. Assertive, yet flexible, negotiation tactics are imperative to best serve Mariposa County and its residents.

Using a simple "supply and demand" principle places Mariposa County in a unique and advantageous position for negotiations. In fact, County managers have been in informal negotiations with one or both of these landfills. A low cost, long-term agreement with either is a definite possibility. But again, time is of the essence when making these decisions and entering into agreements.

Presently, the cost and terms of such an agreement favor Mariposa County. But management priorities change and economic conditions constantly fluctuate. Delay and procrastination in decision making by County managers may lead to the equation reversing leaving Mariposa County with the disadvantage.

Compost Facility

The Compost Facility suffers from an identity crisis. The problem essentially lies in the word "compost". When it was first proposed, then through its planning, construction, and finally operation, the public's perception of what the facility would do was far from what it was designed to do.

Most people identify the word "compost" as being an organic, rich, fertile, and clean soil amendment for use in home gardens and flower beds. The idea of producing such a product from garbage at the Landfill, and made available to the public, is a wonderfully appealing and worthwhile pursuit by the government.

However, in the solid waste management world, the word "compost" has an entirely different meaning. To a landfill manager compost is cover material. More specifically, the end product is termed composted Alternative Daily Cover (ADC). Regulations, which are strictly enforced, require that the working face of a landfill be adequately covered when the landfill is not operating. The working face is the area where the garbage is actively being dumped. The requirement to cover an open trash pit is extremely important not only for a landfill but for the surrounding community. Covering reduces odor emissions, disease vectors, scavenging by animals, and trash
from being blown or washed out of the landfill.

The sole purpose of the Compost Facility is to provide usable cover material for the landfill.

The theory behind landfill composting is fairly straightforward. Garbage comes in to a sorting area where recyclables and large, bulky inorganic items are removed. The material is then processed by the sorting machinery where metal, plastic, and other unwanted material is sorted out either manually or mechanically. What's left is mainly organic material, such as food and green waste (plants), and some smaller inorganic items that could not be removed during the initial sorting process. This material is then loaded into the eight composting vessels. The vessels are heated to the appropriate temperature where the natural decomposition process takes place at an accelerated rate. Once the process is complete the ADC is removed from the vessels and processed through a trommel with a one inch square screen. The larger pieces of plastic, metal, wood, and other items are separated out and the usable ADC falls through the screen. This is the end product of the composting process. This ADC, which is sometimes mixed with dirt or straw, can now be used as landfill cover.

The final product is not suitable for use by the homeowner in their garden or flower bed. The "compost" still contains small amounts of glass, plastic, metal, etc. While not for the home garden, it is ideal for covering landfill garbage. It reduces what goes into the Landfill and produces a product necessary for the Landfill to operate.

Besides being required to comply with the AB 939 mandates, the Compost Facility, in theory, would reduce the amount of outside material brought into the Landfill for cover material. If proper cover material wasn't available at no cost from contractors or other government entities, it would need to be purchased.

In 2014, $17,416 was spent on acquiring cover material.

It should be noted that the Ferguson Rockslide Project has provided Mariposa with a unique, and free, source of cover material. The rockslide material is being transported by truck from the project location to the Landfill. On-site machinery is then crushing the large rocks and boulders into a size and composition that can be used as cover material. The material will be stockpiled and used as needed. Having this available will provide adequate cover material for 4-8 years, saving Mariposa County upwards of $900,000.

As Mariposa County found out, what works in theory doesn't always translate to reality. The composter that the County purchased operates most efficiently when the incoming trash stream is mostly food and green waste. The study that was conducted to support this type of composter assumed a 70% stream of food and green waste. With a 70% organic waste stream entering the facility, sorting and separating non-compostable items is not an overwhelming task for the workers and equipment.

However, the organic waste stream is actually approximately 20-25% of the incoming trash. With such a low level of organic waste, the task of sorting and separating is labor intensive, time consuming, and not at all an efficient way to operate the composter. The result is a poor end product, many mechanical failures, and an inadequate amount of product being produced.

The Mariposa Compost Facility is good in theory and poor in practice. When trash arrives it is placed on the tipping floor inside the building. When the composter is operating the trash is placed on a conveyor belt leading to separating machinery. Worker's must manually open bags of trash and begin the initial sorting process. The trash then passes through a series of stations that are designed to separate plastics, metal, glass, and plastic shopping bags. When working properly the system is fairly efficient, but inadequate.

One of the biggest problems the system has had was in the separation of plastic shopping bags. The machinery that did this was not very efficient and was prone to breakdowns. When breakdowns occur the entire system ceases to function. Having plastic bags in the final compost product was not acceptable. Recently, the magnetic belt that pulls metal from the waste stream was not functioning. Because of these and other maintenance and equipment problems the Compost Facility was not in operation for most of 2014.

The consensus among Landfill staff is that the composter is in need of upgrade or replacement. Retrofitting parts on an as needed basis is an option, but is not economically sound. The cost of upgrading the sorting and composting system as a whole is estimated at being approximately $3 million and would likely increase the recovery rate of recyclables 20-30%.

The technologies to optimize, modernize, and bring into compliance the entire solid waste issue facing the county exists. But, as stated above, a solid commitment by the Board of Supervisors to fund and follow through with their decisions is required.

There are two pieces of equipment that would significantly increase the efficiency of both the Landfill and the Compost Facility. Acquisitions of both pieces of machinery are stated as goals for the SWRD in their 2014-15 budget which was approved by the Board of Supervisors.

The first recommended piece of equipment is a Materials Recovery Facility (MRF - pronounced MuRF). A MRF is a processing facility that receives and sorts through municipal waste to recover recyclable materials, including wood, metal, plastic, glass, and paper materials. What's left over is taken to the landfill. The configuration of the MRF depends on the needs and expectations of the user.

The most efficient types of MRF's are the Single Stream and the Source Separated. Although very similar in design and function they rely on the pre-sorting of recyclables from other trash by residents. This requires the use of separate trash and recycling bins, and generally curbside pickup.

As a rural county with little to no curbside trash collection, these MRF's would not be practical for Mariposa County.

A mixed-waste MRF, sometimes referred to as a "dirty MRF", is suitable for Mariposa County. In this type of MRF unsegregated mixed waste is processed using various technologies to separate mixed recyclable materials from waste.

The conversion of the composting facility to a MRF has significant advantages over the current process. The MRF is an automated system that begins by breaking open the trash bag. As the trash moves along, bulky items, contaminants, or items that could damage downstream equipment are manually removed. The material continues through a series of sorters and separators to remove any recyclables. The remaining product can then be placed in a landfill. In the case of Mariposa the resulting organic material can then be processed through the existing composting vessels to produce cover material for the landfill. The recyclables that would be more efficiently removed could then be sold adding to that which is already being sold.

The MRF is a highly efficient system and is used by many municipalities to reduce their waste stream into landfills. The cost of converting the current system to a MRF is estimated to be at least $3 million.

The second recommended piece of equipment is a baling system for recyclables. Having an adequate baling system would greatly enhance the operation of the Landfill. When a citizen brings recyclables to the Recycling Center, whether it be aluminum cans, plastic bottles or cardboard, all of the recyclables are re-sold in bulk to various buyers. The money from the bulk sale goes back into the operation of the facility as a function of the Enterprise Fund. Without a baling system to consolidate or densify the recyclable commodities into rectangular cubes called bales, the materials are shipped loose and sold at a much lower rate. Baling the aluminum, cardboard, or plastic improves transportation efficiency and is a more desirable commodity to buyers. As such, the price paid for the material is much higher. It is estimated that a proper baling system would save the County upwards of $40,000 per year in transportation costs and increase the resale value of the recyclables approximately 25%.

A baling system that would meet the long-term needs for the County would cost approximately $200,000. With the higher bulk sale rates the system could pay for itself in five years and have an estimated lifespan of 30 years.

FINDINGS

I. Mariposa County is near critical mass in the decision making process for the Landfill.

2. State laws and regulations do not favor long term operation of a landfill within Mariposa County.

3. The Compost Facility is inadequate for the waste stream the County produces. Investment in equipment and upgrades at both the Landfill and Compost Facility is needed to meet state mandates and to better serve the County.

4. Current conditions favor Mariposa County in negotiations regarding waste exportation.

5. The newly hired DPW Director and the current SWRD Manager are well aware of, and thoroughly understand, the issues discussed in this report. Both are highly knowledgeable, experienced, and forward thinking in the field of solid waste management.


RECOMMENDATIONS

I. The Board of Supervisors and other County managers should prioritize the decision making process regarding the Landfill. The County should learn from past mistakes and not delay in determining which direction is most favorable for the County and its residents. Solid commitments and long-term follow through should be part of any decision making.

2. The Board of Supervisors need to take serious notice that state regulations and trending management priorities regarding landfills and waste diversion will only become stricter, less flexible, and punitive action a possibility. Being proactive would benefit the County and its residents.

3. The Board of Supervisors should seriously consider investing in the conversion of the Compost Facility to a much more efficient MRF system as well as in a proper baling system.

4. The Board of Supervisors should not delay in any negotiations with a regional landfill for waste exportation. To do so could lead to the County paying excessive costs which may be avoidable by timely decision making.

5. The Board of Supervisors should place a high value on the expertise, ideas, plans, and recommendations proposed by the DPW Director and the SWRD Manager regarding the Landfill and Compost Facility.


UPDATE

At its May 12, 2015 meeting the Board of Supervisors approved a resolution authorizing the Department of Public Works to enter into a Lease/Purchase Agreement for a Baler and Conveyor System for use at the landfill. We applaud the Board for its approval of the purchase. We also commend DPW and SWRD staff for their continued efforts to improve the facilities at the Landfill.

RESPONSES

The Grand Jury requests responses to this report from the Board of Supervisors.
Source: Mariposa Grand Jury 2014-2015 Final Report