This lesson identifies key debris management planning concepts. This lesson includes the following topics:

• Impact of disaster debris
• Types of debris
• Debris management plan overview
• Importance of a debris management plan
• Elements of a debris management plan

There are many types of debris generating disasters and each has common debris types.

Hurricanes are characterized by high velocity winds sometimes exceeding 155 miles per hour, storm surge, wave action, and inland flooding. Significant damage may occur to buildings, utilities, roadways, and vegetation, generating large quantities of all types of debris.

Tornadoes are characterized by high velocity winds, sometimes up to 300 miles per hour, with a narrow path of impact that can extend many miles. Significant quantities of building and vegetative debris is typically mixed and widely scattered.

Flash Floods are characterized by high velocity flows, structural damage, and erosion. Debris is typically mixed.

Riverine Floods are characterized by the slow rise and fall of water elevation over a period of time, inundation of nearby land, and depositing of large amounts of sediment. All types of debris may be generated as flood waters rise and fall and debris collection may extend for long periods of time.

Earthquakes are characterized by shockwaves, movement along fault lines, and aftershocks., sometimes for days or weeks. Debris will be generated from damaged buildings, infrastructure, equipment, and personal belongings. Vegetative debris, boulders, and sediment may result from landslides.

Wildfires are characterized by extensive burn areas and may be accompanied by landslides. Wildfires can generate a significant amount of mixed debris in developed areas.

Ice Storms are characterized by significant accumulation of ice and snow resulting in damage to structures, utilities, and especially to vegetation.

Tsunamis are characterized by forceful, fast-moving, surging and retreating water in coastal areas following earthquakes. Receding waters may pull back debris and severely impact marine areas.

Volcanoes are characterized by explosive, molten lava and ash which may be dispersed locally or over wide areas. Landslides and mudslides may also occur. Vegetative debris, boulders, mud, and structural debris often result from volcanoes.

Acts of Terrorism are characterized by random, unpredictable incidents that can produce conventional and unconventional debris. Debris clearance and removal may require extended periods of time due to crime scene investigations.

Types of Debris

The various debris generating events create a wide range of debris types. Select the advance button to learn more about specific types of debris.

Vegetative debris consists of whole trees, tree stumps, tree branches, tree trunks, and other leafy material.

Soil, mud, and sand are often deposited by floods, landslides, and storm surges.

Sandbags used to protect against flooding may be contaminated with pollutants from flooded sewage treatment plants, pesticides, herbicides, and other chemicals.

Construction and demolition (C&D) material may include disaster- damaged building materials and damaged contents.

Utility system debris may include utility poles, wiring, conduit, and other items from power, telephone, cable TV, and other utilities.

Household furnishings and personal effects will become debris as a result in many disasters.

Household hazardous waste (HHW) includes paints, solvents, cleaning supplies, insecticides, pool chemicals, propane, gasoline, oils, and other residential chemicals. Electronic waste (e-waste) refers to hazardous materials in electronics, such as televisions, computers, cell phones, and batteries.

Hazardous waste is waste with properties that make it potentially harmful to human health or the environment. Hazardous waste is regulated under Resource Conservation and Recovery Act (RCRA). In regulatory terms, a RCRA hazardous waste is a waste that appears on one of the four hazardous waste lists or exhibits at least one of the following four characteristics: ignitability, corrosivity, reactivity, or toxicity. The State/Tribal environmental office and U.S. Environmental Protection Agency (EPA) provide first response in the event of commercial, agricultural, industrial, or toxic waste spills.

Metal debris may include roofing, mobile homes, automobiles, and other ferrous materials. Some metals may be suitable for recycling.

White goods include washers, dryers, freezers, clothes dryers, and stoves. Any refrigerants in these materials must be removed by certified technicians.

Vessels and boats are unique types of debris in that their removal and disposal is the owners’ responsibility and must be coordinated by appropriate governing authorities.

Putrescent Debris such as carcasses of domestic and wild animals and decomposition of other fleshy organic matter present unique debris issues, especially after floods. Precautions should be taken in the removal and disposal of putrescent debris in order to address potential environmental and health issues.

Vehicles may become debris after many types of disasters. Removal and disposal of damaged vehicles is generally the owners’ responsibility.

Infectious waste is capable of causing infections in humans. Animal waste, human blood and blood products, medical waste, pathological waste, and discarded sharp objects are examples of infectious wastes. Clearance, removal, and disposal of these wastes may be the authority of Federal or State agencies.

An effective debris management plan:

• Facilitates response and recovery activities
• Facilitates the quick return of a community to normalcy
• Reduces impacts to humans and the environment
• Ensures effective use of resources
• Helps to control and minimize costs
• Aids in complying with applicable local, state/tribal/territorial, and Federal regulations

The human, financial, environmental, and political costs associated with insufficient debris management planning can be devastating. 

• Disaster debris can complicate and delay disaster response activities such as medical care, transportation of victims or relief teams, fire fighting, and provision of shelter, food, and water to disaster survivors. Facilitates the quick return of a community to normalcy.
• Disaster debris can complicate and delay the short and long term recovery of the community and its return to normalcy.

In some disaster events, the amount of debris generated can be equivalent to years, if not decades, of normal solid waste production in the affected jurisdictions. Landfill capacities may be overwhelmed, roads may be damaged by debris hauling, debris may be disposed of without adequate controls, and the debris may present a general public health and safety hazard.

The lesson learned is that debris management planning is necessary and that it must be tailored to the specific needs of the jurisdiction.

A comprehensive debris management plan should address, at a minimum, the following elements :

Overview

Incident and assumptions

Debris collection and removal

Debris removal from private property

Public information

Health and safety requirements

Environmental considerations and other regulatory requirements

Temporary debris management sites and disposal locations

Force account or contract resources and procurement

Monitoring Debris Operations

Overview

• Purpose of the DMP and its overarching goals
• How the DMP was developed and who participated in the development
• Whether the DMP is officially adopted by the governing body

Incidents and assumptions

• Types and severity of incidents most likely to occur along with estimates of types of debris and amounts generated
• Types of handling and equipment necessary to safely manage the debris
• Description of general terrain, land use, and accessibility for areas most likely to be impacted and how these characteristics might affect debris operations

Debris collection and removal

• Identify and prioritize facilities that may be impacted by debris
• Define the priorities during both response and recovery operations
• Describe the coordination process with other entities responsible for managing debris
• Identify roles and responsibilities for all entities and departments involved
• Describe the methods that will be used to collect debris (e.g., curbside collection, community drop-off bins)

Debris removal from private property – when it is in the public interest to remove debris from private property, the DMP should include:

• Identification of the circumstances under which the jurisdiction will take such action
• The enabling laws that allow government to intercede in private property matters
• The process the jurisdiction will use to obtain permissions to enter onto private property
• The process the jurisdiction will undertake to recoup costs (such as insurance proceeds)

Public information – the DMP should:

• Identify the public information strategy to ensure residents receive accurate and timely information about the parameters, rules, and guidelines for debris removal

Health and safety requirements – the DMP should identify:

• Specific details on safety rules and procedures to protect workers and the public
• Specific measures for adherence to safety rules and procedures

Environmental considerations and other regulatory requirements 

• Identify all debris operations that may trigger compliance with environmental and historic preservation laws, regulations, and Executive Orders
• Identify how compliance will be achieved

Temporary debris management sites and disposal locations

• Identify locations where debris will be segregated, reduced, and disposed and whether it will be recycled
• Identify the potential permits that will be required to establish a facility
• Address traffic circulation at each of the disposal sites, disposal capacity, and how debris will be managed if there is a lack of landfill capacity
• Identify the final disposal site of whole, reduced, or recycled debris

Force account or contract resources and procurement

• Identify the types of work that the jurisdiction will perform with staff resources versus contracted services
• Describe the process and procedure for acquiring competitively procured contracted services
• Identify specific contract requirements and explain how contractor qualifications are established

Monitoring debris operations

• Include details as to how the jurisdiction will monitor its debris removal contractor at pickup sites and all disposal sites
• Identify who will perform the monitoring and describe each monitoring task
• Identify measures to avoid conflicts of interest in awarding monitoring contracts and between monitoring and debris removal contractors

This lesson identifies key debris management planning concepts. This lesson includes the following topics:

• Plan development initialization
• Plan development resources
• Plan publication and maintenance

The debris management plan development process consists of 3 phases.

• Plan Development Initialization
• Plan Development
• Publication and Maintenance

These three phases and the tasks associated with them are described in this lesson. We will begin with a discussion of the first phase: Plan Development Initialization

The following tasks should be completed at the beginning of the plan development process and be revisited as needed throughout the planning process:

Identify existing planning and procedural documentation

Confirm the plan development budget

Form a plan development team

Establish methods for communication and completion of the work

Establish the plan development schedule

Identify internal/external technical resources to assist with plan development

Plan Development is the second phase of the Debris Management Plan Development Process. During this phase, the tasks of collecting information, analyzing the information, organizing the information, and preparing the written planning document are completed. Resources in the form of people and information will also be required to help accomplish this phase of the process. A planning development team assists in this effort and the planning document addresses the elements presented in Lesson 2.

In addition to this course, there are other documents and resources available that jurisdictions may use to support debris management plan development. Examples of additional resources include:

• FEMA Public Assistance Program and Policy Guide (PAPPG)
• FEMA training course E0202, Debris Management Planning for State, Tribal, Territorial, and Local Officials. Jurisdictions interested in obtaining more information about the course should contact their state office of emergency management.
• Copies of previous and current debris management plans developed by other jurisdictions. Plans for some jurisdictions are available online and can be located using Internet searches.

The elements of a debris management plan are repeated as a reminder below. The overview of a debris management plan and descriptions of the other elements were presented in Lesson 2; the other elements are covered in detail in the remainder of this course. The elements are:

• Overview
• Incident and Assumptions
• Debris Collection and Removal
• Debris Removal from Private Property
• Public Information
• Health and Safety Requirements
• Environmental Considerations and other Regulatory Requirements
• Temporary Debris Management Sites and Disposal Locations
• Force Account or Contract Resources and Procurement
• Monitoring Debris Operations

Plan development resources in the form of people and information will be needed during the plan development phase. The people included in this phase should consist of internal and external stakeholders in the debris management process. Individuals and organizations to consider include:

• Departments within the jurisdiction, such as public works, emergency management, police, fire, and health
• Other local or regional jurisdictions
• State agencies, such as emergency management, solid waste, environmental, police and health
• Federal entities, such as the U.S. Army Corps of Engineers (USACE), Federal Highway Administration (FHWA), Environmental Protection Agency (EPA), and U.S. Coast Guard (USCG)
• Public service providers and key private sector entities, such as solid waste firms and electricity, water, natural gas, and communications utilities

Involved individuals from external entities should occupy a role in their organization that is appropriate for the type and level of input they provide on the plan development process.

Ideally, the internal and external staff involved in the plan development process are the same staff that will be involved in the management of debris following a disaster event, as that allows for the staff to develop stronger professional relationships in advance of the disaster event.

The third phase in the Plan Development Process is Plan Publication and Maintenance. Tasks associated with final publication of the plan include:

• Completing the appropriate procedure for formal adoption of the plan by the jurisdiction. For example, a resolution by the local governing board or council to adopt the plan, or a memorandum regarding the plan adoption issued by a department head.
• Identifying who the plan will be distributed to and the timing (e.g., announcement in meetings and newsletters) and method (e.g., hardcopy distribution, electronic distribution, electronic posting) of distribution.

Tasks associated with plan maintenance include:

• Establishing a schedule and process for reviewing and updating the plan.
• Incorporating the plan into preparedness training and exercises, to familiarize staff with the plan content and identify potential gaps or issues not fully addressed by the plan.

This lesson describes the organization, roles, and responsibilities of a debris management team. This lesson includes the following topics:

• Debris management team organization
• Debris management team roles and responsibilities

The debris management team is the group of personnel that will have direct responsibility for managing debris operations for the jurisdiction before, during, and following a debris-generating disaster event.

A successful debris operation requires effective coordination between organizational elements within a jurisdiction, as well as with external entities such as regulatory agencies, local, state/tribal/territorial, and Federal emergency management officials, the private sector, and the general public.

The debris management team may include personnel from within the jurisdiction and representatives from external entities. Key considerations when identifying debris management team personnel include:

• Coverage must be provided for all of the different functional areas that are required to manage a debris operation.
• The staff must be available to fill their role on the team before, during, and following the disaster, and be able to dedicate the necessary amount of time to fulfill their role and responsibilities on the team. Primary and secondary backups for team members should be identified in advance.
• When considering including personnel from external entities on the team, ensure that the personnel have a sufficient understanding of the jurisdiction’s organization and processes, and that they will have sufficient decision making authority to be effective. When external personnel are used, the jurisdiction should still maintain ownership and visibility of their debris management activities, as the activities are still ultimately their responsibility.
• When considering contractor resources for the team, assess the cost of utilizing those resources relative to the cost and availability of using internal or other resources.

Once a jurisdiction identifies the functional areas that will be represented on the debris management team, it should develop an organization structure for the team and identify the individual roles and responsibilities of team members.

Key considerations when developing the debris management team organizational structure include:

• Consistency with the components of the jurisdiction’s organizational structure during non-disaster periods. For example, if a jurisdiction has organizational elements that facilitate a certain division of responsibilities and coordination process for procuring contracted resources, that existing structure should be taken into account when defining the portion of the debris management team organizational structure that has responsibility for procuring contracted services.
• Consistency with components of the jurisdiction’s organizational structure used to manage disaster events. For example, in situations where the Incident Command System (ICS) is implemented, personnel performing the debris management functions should integrated into the overall ICS organizational structure.

The following slides further describe the typical responsibilities of the functional areas that are commonly involved in debris management operations.

The ICS is a standardized management tool for meeting the demands of small or large emergency or nonemergency situations. It represents "best practices" and has become the standard for emergency management across the country. It may be used for planned events, natural disasters, and acts of terrorism and is a key feature of the National Incident Management System (NIMS).

ICS Resource Center (Available at https://training.fema.gov/emiweb/is/icsresource/index.htm)

Development of the debris management team roles and responsibilities for a jurisdiction should start with an assessment of which functional areas of the jurisdiction’s overall organization will be directly involved in debris management efforts and should be represented with a role on the debris management team.

Different functional areas that may be involved include:

• Project management
• Operations
• Administration
• Public information
• Planning/engineering
• Contracting/procurement
• Legal

The jurisdiction must also determine the level of involvement expected for each functional area. For example, some functional areas may need full time representation on the team for the duration of the debris operation, while others may only need part time representation, or may require full time representation during one phase of the operation and part time representation during other phases.

The operations functional area is responsible for implementing the debris removal operation and providing overall project supervision. Examples of debris operations activities include:

• Position equipment and resources for the response and recovery debris removal operations
• Develop staff schedules and strategies
• Provide communication, facilities, services, equipment, and materials to support the response and recovery activities
• Monitor and direct force account and contract labor
• Distribute response and recovery resources
• Operate and manage the collection, temporary debris management site, and disposal strategies
• Create a demolition strategy for structures if necessary
• Report progress for distribution to the debris management planning staff

The administration functional area may include financial and human resources activities and be responsible for tasks such as:

• Developing budgets
• Tracking expenses
• Maintaining documentation
• Ensuring funds are available for personnel, equipment, supplies, and contract services
• Managing the onboarding and release of debris management staff

The public information functional area may be responsible for tasks such as:

• Creating and updating public information content
• Disseminating public information content in a timely and effective manner.

Public information is a good example of a functional area that may be centralized in another area of a jurisdiction’s overall organization, which could mean that representation of that functional area on the debris management team may consist of a full- or part-time liaison between the debris management team and the centralized public information function.

The planning/engineering functional area provides technical support for debris management.

Examples of planning and engineering activities include:

• Estimating debris quantities and mapping haul routes
• Developing the debris collection strategy
• Assessing available landfill space
• Selecting and designing temporary debris management sites
• Identifying and resolving environmental issues
• Issuing and obtaining permits
• Determining reduction and recycling methods
• Developing contract scopes of work, conditions, and specifications
• Developing a demolition procedure for public and private structures

The contracting/procurement functional area may be responsible for tasks such as:

• Develop contract requirements in draft form ready for advertisement
• Establish contractor qualifications
• Prepare and advertise bid solicitations
• Provide instructions to bidders
• Evaluate bids
• Negotiate and award contracts
• Participate in overseeing that work is performed in compliance with the terms of the contract
• Establish a pre-disaster list of pre-qualified contractors
• Establish a post-disaster contracting procedure, if necessary

The legal functional area may be responsible for tasks such as:

• Reviewing debris removal contracts and land lease agreements
• Evaluating building condemnation processes
• Evaluating legal processes for private property demolition and debris removal
• Providing guidance on right-of-entry and hold harmless agreements
• Providing guidance on mutual aid agreements

This lesson describes the disaster events and assumptions element of a debris management plan. This lesson includes the following topics:

• Design disaster event
• Resource inventory and needs assessment

Planners use a “design event” to calculate and forecast the amount of debris that will be generated in various disaster scenarios. The resulting analysis is called the “design disaster event”. Historical data is often used to determine the design event for hurricanes, tornadoes, ice storms, wildfires, and floods. Earthquake design events should be analyzed for reasonableness and practicality; e.g., assuming that a portion, not all structures, would be damaged or destroyed by the earthquake. Terrorist events have limited historic data; therefore, analyzing the jurisdiction’s vulnerabilities may provide insight into the types and quantities of debris that could occur.

Determining the design disaster event and assumptions during the debris management planning process will assist with defining:

• Required elements of the debris management operations
• Organizational structure of the debris management team
• Resources needed
• Number and size of temporary debris management sites
• Final debris disposal

The quantity and type of debris generated from a disaster is a function of multiple factors, including:

• Type of event
• Magnitude, duration, and intensity of event
• Land use and terrain types in the impacted area

• The debris management planning process should define the likely type, size, and extent of a potential disaster that will be used as the basis for the plan.
• Historical data is most often used to determine the design event for hurricanes, tornadoes, ice storms, wildfires, and floods.
• The design disaster event should take into account historic events and additional research that considers all potential scenarios.
• The planning process should consider how variances between the forecasted event and an actual event will impact the plan components.

Recall Lesson 2 where the description of types of events and debris generated by them were provided. Use that information to summarize the types of events and associated debris that might affect your jurisdiction.

The debris management plan should discuss the proper handling and disposal methods for each type of debris that could be generated during the design disaster event.

Vegetative

Construction and demolition (C&D)

Personal property/household items

Hazardous waste

Household hazardous waste (HHW)

White goods

Soil, mud, and sand

Vehicles and vessels

Putrescent

Electronic waste

Sandbags

Vegetative

Construction and demolition (C&D)

Personal property/household items

Hazardous waste

Household hazardous waste (HHW)

White goods

Soil, mud and sand

Vehicles and vessels

Putrescent

Electronic waste

Sandbags

Vegetative

Construction and demolition (C&D)

Personal property/household items

Hazardous waste

Household hazardous waste (HHW)

White goods

Vehicles and vessels

Putrescent

Electronic waste

Vegetative

Construction and demolition (C&D)

Personal property/household items

Hazardous waste

Household hazardous waste (HHW)

White goods

Soil, mud, and sand

Vehicles and vessels

Putrescent

Electronic waste

Sandbags

Construction and demolition (C&D)

Personal property/household items

Hazardous waste

Household hazardous waste (HHW)

White goods

Soil, mud, and sand

Electronic waste

Vegetative

Construction and demolition (C&D)

Personal property/household items

Hazardous waste

Household hazardous waste (HHW)

White goods

Soil, mud, and sand

Vehicles and vessels

Electronic waste

Vegetative

Hazardous waste

Vegetative

Construction and demolition (C&D)

Soil, mud, and sand

Construction and demolition (C&D)

Hazardous waste

Vehicles and vessels

Putrescent

Electronic waste

Impact of Land Use and Geography

Understanding the local land use and geography provides information on the types of debris that will be generated and the type of handling that will be necessary to manage the debris.

Land Use

Rural areas may have more vegetative debris, while urban residential areas may have more construction and demolition debris. Industrial areas may have additional special environmental concerns when compared to parks and recreation areas.

Geography

Accessibility and terrain of various locations within a jurisdiction will help determine the methodology of debris management operations. Remote areas may require safely storing the debris until accessibility is established. Identifying debris contractors, recyclers, and disposal facilities in remote areas may be challenging.

After the disaster parameters and geographic extent are established as part of the debris planning, forecast the expected debris quantities using information below.

Examples of historical data include contract and force account records for routine solid waste activities and debris clearance, removal, reduction, and recycling, as well as landfill disposal records.

Data from neighboring or similar jurisdictions include assumptions that may be made based on the experience of other jurisdictions.

Aerial and/or satellite mapping and similar information may be used alone or in combination with targeted field surveys to forecasting amounts and types of disaster debris.

USACE has developed a model for estimating potential amounts of hurricane-generated debris.

FEMA has developed a forecasting tool for the impacts of flood, hurricane winds, and earthquake events.

Some private vendors offer services that include debris forecasting tools and support.

The debris management planning process should compare existing resources to anticipated needs of the design event and address any shortfalls. Considerations include:

• Force account labor/temporary labor
• Force account equipment
• Mutual aid
• Volunteers
• Contracted services
• Recycling/disposal capacity
• Subject matter experts/technical advisors
• Potential state and federal resources

When assessing available resources and anticipated needs, keep in mind that disaster events can impact the quantities of resources available and performance of service commitments. For example, neighboring jurisdictions expected to provide resources via mutual aid may also be affected by the same disaster as your jurisdiction.

This lesson described the disaster events and assumptions element of a debris management plan, including the design disaster event and resource inventory and needs assessment.

This lesson describes the debris operations strategy element of a debris management plan. This lesson includes the following topics:

• Debris removal priorities
• Debris collection methods
• Temporary debris management sites
• Debris disposal and recycling

The debris operations strategy should establish collection priorities based on response and recovery needs.

Response-focused activities include initial debris clearance and removal performed during and immediately after an event. Typically, the response phase of debris removal efforts focuses on clearing/removing debris that obstructs emergency operations or access to emergency/critical facilities, and that poses an immediate threat to public health and safety.

Recovery-focused activities are performed after response priorities have been sufficiently addressed. Typically, the recovery phase of debris removal efforts involves removal of remaining debris from residential neighborhoods and public areas, reduction, recycling, temporary debris management sites, and final disposal.

The transition from response phase to recovery phase debris management activities is often a gradual process with some degree of overlapping activities.

Examples of specific response phase debris removal activities that should be identified and prioritized in the debris management plan include:

• Fire, police, and ambulance service routes
• Access routes to hospitals, trauma centers, and critical care units
• Major arterial routes
• Access to critical government facilities such as emergency operations centers and facilities involved in debris operations
• Routes to emergency supply distribution centers
• Communication towers and utility locales
• Routes to shelters, assisted care facilities, etc.

Response phase debris removal efforts should be coordinated with any concurrent, overlapping efforts by other entities, such as State transportation agency and National Guard activities.

Depending on the circumstances of the disaster, response phase activities may be limited to temporarily clearing debris out of the way, as opposed to removal of the debris to another location. 

The recovery phase of the debris management plan should include a systematic method based on clearly defined criteria for the routing and scheduling of debris removal. Debris removal is primarily accomplished through either a corridor approach or an area/grid approach.

Criteria to consider when prioritizing which areas or corridors will be cleared first include:

• Population density
• Location of important facilities (schools, nursing communities, etc.)
• Environmental justice issues (predominantly minority neighborhoods, lower income neighborhoods, etc.).
• Other factors such as air quality, noise, traffic patterns, and environmental impacts

As with response efforts, recovery phase debris removal should be coordinated with any concurrent, overlapping efforts by other entities.

There are several methods that jurisdictions can use to collect disaster debris. Common collection methods used include:

Curbside collection

Community drop-off bins/collection centers

Round-ups for specific debris types.

Typically, curbside debris collection is subdivided into two categories:

Source-segregated debris – Residents sort debris by material type and place it at the curb in separate piles for collection. Trucks designated for a particular debris type then collect the assigned debris. This method may require more trucks to collect the different types of debris; however, the cost of that increased effort may be offset by avoiding the effort to separate the debris later, if separation is necessary prior to reduction, recycling, and disposal. This method is important when collecting hazardous and environmentally sensitive debris, such as household hazardous waste and white goods.

Mixed debris – Residents place a mixture of various debris types at the curb for collection. This method is the most convenient for the public, but may result in greater effort and cost if some degree of later separation is necessary prior to reduction, recycling, and disposal. Even if the mixed debris is directly disposed of at a landfill, a higher cost may be incurred because debris that could have been reduced or recycled is brought directly to the landfill.

The debris management plan should outline the approach that will be used to evaluate the efficiency and effectiveness of the debris collection methods. Examples of areas to evaluate and specific metrics to measure could include:

• Review debris collection routes, including frequency of collection, number of routes, and planned completion date
• Review recycling activities, including types of items being recycled and the cost effectiveness of recycling versus landfill disposal

Key debris management site evaluation criteria include:

Location

Size

Environmental considerations

Debris management site development considerations include:

Leases

Assessments

Site preparation/closeout

Environmental permits and land use variances may be required. Several agencies may be involved in issuing permits and land use approvals for disaster temporary debris management sites. Jurisdictions should contact their State or local environmental enforcement agencies in advance for information on permitting requirements.

Advance consideration of site engineering and layout will help ensure rapid site development without compromising efficiency and safety during subsequent site operations. The site should be designed to allow safe maneuvering and operation of heavy equipment. It should also accommodate the placement of equipment related to the various operations at the disaster temporary debris management site. Grading of the site may be required to prevent runoff of contaminants.

When temporary debris management site operations are complete, the property must be restored to its original condition before returning the site to the property owner. Restoration of a site involves removing all traces of the operations and possible remediation of any contamination that may have taken place during operations.

Jurisdictions should identify the planned functions of the disaster debris management site. Typically, the three main functions consist of materials separation, volume reduction, and temporary staging.

Materials separation – sorting disaster debris into different categories, such as separating mixed debris into recyclable and non-recyclable materials. Another example is the separation of household hazardous waste, white goods, and electronic waste from the primary debris stream.

Volume reduction – conserves landfill space and reduces debris into manageable loads for safe and efficient transportation. The most common reduction methods are incineration and grinding/chipping. Often used for metal, compaction/baling is another method for reducing the volume of debris. Debris volume can be reduced between 75 and 95 percent of its volume depending on the type of debris and reduction methods that are implemented.

Temporary staging – a debris management site may be used as a temporary debris staging location if a change in the method of debris transportation needs to occur or if rigorous management of the day-to-day debris quantity throughout to subsequent processing facilities is required.

Proper staffing of the temporary debris management site is important for ensuring effective and efficient management of site operations. Examples of potential site staff roles include site manager, traffic control, safety, contract compliance monitoring, environmental compliance monitoring, and site security.

If a jurisdiction utilizes contracted resources to manage a temporary debris management site, they should ensure that procedures are in place to provide the contractor staff with authority to enforce compliance, or have a process in place for the contracted personnel to report noncompliance so that corrective measures can be taken.

There may also be representatives from regulatory and funding agencies present at the site. Examples include state and Federal occupational health and safety and environmental protection entities with monitoring and/or enforcement authority.

If the general public will have access to the site for the purposes of activities like dropping off household hazardous waste, the presence of the general public on site must be accounted for in the site management approach.

The debris management plan should address the following considerations regarding the recycling of disaster debris:

• A process for determining if recycling disaster debris is feasible
• A list of the types of debris materials that can be recycled or reused, as well as identification of the specific markets/buyers for the materials
• Method and cost of collection and transportation
• Specifications regarding physical properties such as size

The level of market demand for individual types of recyclable disaster debris will influence the feasibility of recycling. Examples of end-uses for recyclable debris include aggregate for roads, mulch, stock metals.

The debris management plan should include the assessment of landfill and recycling facilities. Considerations include:

Types of materials accepted

Site capacity

Site location

This lesson describes the private property debris removal and demolition components of a debris management plan. This lesson includes the following topics:

• Types of private property
• Private property removal criteria
• Private property removal procedure
• Demolition of private structures criteria
• Demolition of private structures procedure

The debris management plan should give careful consideration to private property debris removal and demolition of private structures, due to the important legal, financial, and political concerns involved.

When considering private property debris removal and demolition of private structures, it is important to assess the potential types of private property involved, such as:

• Residential private property
• Commercial private property
• Gated communities
• Mobile home parks
• Marinas

Private property laws generally limit when jurisdictions can conduct activities on privately-owned property. However, in situations where the general public is exposed to immediate health or safety threats, jurisdictions may need to take specific actions allowed by law to address the threats.

Debris management plans should include a clear process to determine the specific conditions allowed by law under which the jurisdiction will take responsibility to safeguard the general public by abating debris-related health or safety threats. The plan should also cite the specific laws that would be invoked and include the steps outlined in law that would ultimately allow the jurisdiction to abate the threats on private property.

The jurisdiction must identify the laws that provide legal responsibility to enter private property to remove immediate threats. Typically, the legal responsibility is provided under their existing health and safety codes, solid waste codes, and/or building and safety codes. Condemnation/nuisance abatement authority normally falls under one of these three types of codes.

Jurisdictions should identify the basis for their authority and responsibility to enter private property to remove debris. The legal basis for this authority and responsibility should be established by law, ordinance, or code in effect at the time of the disaster. Moreover, it should be relevant to the post-disaster condition representing an immediate threat to life, public health, or safety, and not merely define the jurisdiction’s uniform level of services. Typically, basic solid waste disposal ordinances are considered part of a jurisdiction’s uniform level of services.

The debris management plan should describe the legal and administrative procedures the jurisdiction will follow to enter onto private property to remove debris. The plan should address the two following scenarios:

Voluntary debris removal through property owner permission – the property owner allows entry onto their property via a voluntary right-of-entry, which includes hold harmless and indemnification clauses. Involuntary debris removal through

Executive Order and/or court order – the authority to remove debris from private property without property owner permission, granted via an executive order made under the emergency declaration by an authorized official. The authority to involuntarily remove debris from private property may also stem from a court order.

In order to remove debris from mobile home parks, jurisdictions will likely need to obtain permission from the park property owner to enter the mobile home park itself, as well as from each mobile home owner.

A jurisdiction may need to take action to demolish private structures in certain circumstances.

The jurisdiction should determine the conditions under which private structures may be condemned and demolished. Conditions that may result in the need for a jurisdiction to demolish a private structure include an immediate threat to life, public health, or safety resulting from the disaster event.

Jurisdictions should also identify the basis for their authority and responsibility to demolish the structure. The legal basis for this authority and responsibility should be established by law, ordinance, or code in effect at the time of the disaster. Moreover, it should be relevant to the post-disaster condition representing an immediate threat to life, public health, or safety. Specific criteria for condemnation and demolition are often based on local or State public health and safety codes, building codes, fire codes, etc.

The debris management plan should describe the legal and administrative procedures the jurisdiction will follow to demolish private structures. Many of the procedures may overlap with those required for the removal of debris from private property. Laws, ordinances, and codes related to health and safety normally provide jurisdictions with specific guidelines regarding the condemnation and demolition of structures determined to pose a threat to the public.

The debris management plan should include procedures that will assist personnel in accomplishing demolition safely and in compliance with all applicable requirements. The debris management plan should also include a process for recovering costs associated with demolition of private structures from the owner, such as applicable insurance proceeds received by the owner.

This lesson describes the contracted services element of a debris management plan. This lesson includes the following topics:

• Types of contracted services
• Procurement processes and procedures
• Types of contracts
• Federal funding considerations
• Debris contract monitoring

Some debris management-related activities can be accomplished through contracted services, such as:

• Debris clearance, collection, reduction, and recycling
• Leasing, construction, and management of temporary debris management sites
• Debris removal monitoring
• Project management
• Environmental monitoring

Jurisdictions may find it necessary to contract for debris management services if operational needs exceed their force account resources, or if it is otherwise determined that securing contracted services is in their best interest.

A combination of contracted and internal resources may also be used by jurisdictions, such as leasing equipment under a contract and operating it with force account personnel.

The debris management plan should establish the process and procedures for contracting debris management services. These processes and procedures must adhere to applicable local and State procurement laws and requirements, and must also follow federal laws and requirements when applicable.

Note: Receipt of FEMA PA Program funding is subject to the procurement and contracting requirements of 2 CFR Part 200.

Links to additional resources:

2 CFR Part 200 

FEMA’s Procurement Disaster Assistance Team

Processes and procedures for contracted services should also identify the criteria for selecting contractors. The technical criteria for selecting a debris contractor should be consistent with the information provided in the operational strategy portion of the debris management plan.

Jurisdictions can be better prepared to implement debris management contracts immediately following a disaster event by pre-qualifying contractors and by developing model contracts that include general contract provisions.

• Contractor pre-qualification criteria may include licensing, bonding, labor, equipment, safety requirements, specialized expertise, etc.
• The model contracts can be modified following a disaster event to include disaster-specific debris management activities.

FEMA provides a contractor registry tool on its website as a resource for locating debris removal contractors based on needs and/or geographical area. This registry tool was developed to assist state/tribal/territorial and local governments in identifying and contacting debris removal contractor resources.

The information in the registry is provided and maintained by contractors and their representatives. FEMA does not verify and takes no responsibility for the accuracy of any information in this database. FEMA does not endorse, approve, or recommend any contractors. State/Tribal/Territorial and local governments should perform all appropriate due diligence prior to entering into a contract. Contracting with any of the entities in this database does not assure a state/tribal/territorial or local government of reimbursement under a Federal grant. State/Tribal/Territorial and local governments should follow their own competitive procurement procedures when selecting a contractor.

Debris Removal Contractor Registry (Available at https://asd.fema.gov/inter/drcr/home.htm.)

Contracts for debris-related services typically fall into one of the following contract types:

Lump sum – Contracts for work within a prescribed boundary with a clearly defined scope and a total price.

Unit price – Contracts for work done on an item-by-item basis with cost determined per unit.

Cost plus fixed fee – A lump sum, unit price, or time and materials contract with a fixed contractor fee added into the price.

Time and materials – Contracts where the contractor bills the jurisdiction for labor, equipment, materials, and overhead.

Cost plus percentage of cost – Contracts where the contractor fee increases or decreases in proportion to the reimbursable cost of the work.

Some contract types are more appropriate than others for a particular situation and debris management activity.

Contracts may also be a combination of types, such as a unit price contract with a time and materials provision for a particular work activity.

For all contract types, a complete and well-defined contract scope of work is critical.

Jurisdictions should carefully weigh the benefits and risks associated with each contract type before deciding which to utilize for a particular debris management activity.

If a jurisdiction is pursuing FEMA PA Program funding for debris-related work under a Federal declaration, Federal funding considerations must be addressed.

• Time and materials contracts
• Piggyback contracting
• Cost plus percentage of cost contracts
• Contracts with debarred contractors

Monitoring of contracted services involves comprehensive observation of contractor activities to ensure that contractors perform work efficiently and in accordance with the terms of the contract. The debris management plan should include procedures for monitoring contractor activities. Specific topics that should be covered include:

• Organizational structure and reporting relationships for monitoring personnel
• Debris monitor training requirements
• Examples of debris monitoring documents and reports, including references to any electronic tracking and reporting tools
• Specific debris monitoring procedures, based on contract type and contract scope
• A list of required debris monitor equipment and supplies, including personal protective equipment and special tools such as Global Positioning System (GPS) units

The specific monitoring procedures necessary for contracted services are dependent on the type of contract involved.

Time and materials contract – Monitoring procedures for a time and materials contract focus on validating the time worked, equipment used, and materials consumed. Common areas of concern include time management by contractor personnel and use of appropriate equipment.

Unit price contract – Validation of the quantity and quality of the units of work completed is the focus of unit price contract monitoring procedures. Common areas of concern include accurate documentation on quantities and types of debris.

Lump sum contract – Monitoring procedures for a lump sum contract focus on validating complete and proper execution of the contract scope of work.

The scope of services for each type of contract will also affect the monitoring procedures involved. For example, specific monitoring procedures for a time and materials debris collection contract will likely be different than the monitoring procedures for a time and materials contract for operation of a tub grinder at a temporary debris management site.

The debris management plan should include specific monitoring procedures, along with guidance on the types of contracts and scopes of work to which they apply. Examples of debris monitoring procedures include:

• Measuring and certifying truck capacities on a regular basis to ensure they have not been altered, such as the removal of sideboards
• Completing and physically controlling truck load tickets, both at debris collection locations and transfer points
• Inspecting trucks to ensure they are not artificially loaded, such as excess water intentionally added to increase weight or debris intentionally not compacted to increase volume
• Validating the completion of discrete work items, such as the removal of stumps, hanging limbs and leaning trees
• Ensuring that trucks are accurately credited for their loads, such as when a quantity of cubic yards is estimated for a partially filled truck
• Ensuring compliance with the environmental and safety requirements contained in the contract, such as air monitoring and traffic control requirements

The overall objective is to ensure that contractors perform work efficiently and in accordance with the terms of the contract.

A description of the requisite skills and experience for debris monitoring personnel should be included in the debris management plan, as that will assist jurisdictions in quickly engaging the necessary staff and ensuring they are appropriately qualified. Basic personnel qualifications may include the ability to estimate debris quantities, differentiate between debris types, and correctly complete monitoring documentation. The ability to follow directions and adhere to procedures such as health and safety instructions is also important.

Jurisdictions may use force account staff such as permanent and temporary employees to complete monitoring activities, or they may use contractor staff. A combination of force account and contractor staff is also an option. The strengths and weaknesses of different options should be carefully weighed.

Using force account resources may bring the advantage of staff that are familiar with the jurisdiction and understand the priorities of the debris management plan. If contractor personnel perform debris monitoring, the jurisdiction will still be responsible for overall management and oversight of both the monitoring contractors and the contractors completing the debris removal, processing, etc.

The jurisdiction should ensure that the extent of monitoring activities and the associated costs are consistent with the effort required to effectively monitor the debris operations.

If contractor personnel are used to complete debris monitoring activities, conflicts of interest must be avoided. For example, a single contractor must not be responsible for both completing and monitoring debris collection; a separate party must perform the monitoring.

Debris monitoring is a key project management activity. Jurisdictions should take ownership of contractor monitoring, even when debris monitoring activities are outsourced to contractor personnel.

This lesson describes the health and safety element of a debris management plan. This lesson includes the following topics:

• Description of work activities and hazards
• Health and safety strategy

The health and safety strategy should identify potential hazards during debris collection and at temporary debris management sites. Examples of potential hazards include:

• Use of heavy equipment
• Uncovered loads while hauling debris
• Overloaded trucks on hauling routes
• Lack of coordinated traffic control
• Unstable debris monitoring towers
• Flying debris from tub grinders at temporary debris management sites
• Hazardous materials exposure, such as asbestos and household hazardous waste

These hazards can pose a risk to both debris management personnel and the public.

Jurisdictions should include a health and safety strategy for debris operations in their debris management plan. The strategy should establish minimum health and safety standards for force account and contractor personnel to follow.

General public health and safety may also need to be considered, as components of debris management operations are often undertaken in proximity to the public.

The health and safety strategy should address the following topics:

• How health and safety information will be distributed to all personnel, including necessary training
• How the jurisdiction will monitor compliance with the minimum safety standards, including corrective actions to be taken if personnel do not comply with the minimum safety standards
• Identification of hazards associated with job tasks
• Guidelines on the selection and proper use of hazard controls and personal protective equipment
• How any health and safety incidents will be managed and documented

Pre-drafted scopes of work for contracted services should address safety-related contract requirements so the jurisdiction has a basis for holding contractors accountable for following safety requirements.

This lesson describes the environmental and other regulatory requirements element of a debris management plan. This lesson includes the following topics:

• Major environmental and historic preservation laws
• Temporary debris management site environmental considerations
• Permits for debris operations

Clean Water Act

Clean Act

Endangered Species Act

Coastal Barrier Resources Act

Resource Conservation and Recovery Act

National Historic Preservation Act

Wild and Scenic Rivers Act

Executive Orders, e.g., EO 11988, EO 11990 and EO 12898

All state/tribal/territorial and local requirements must also be considered in the planning process.

Executive Order 11988, Floodplain Management, requires Federal agencies to minimize or avoid activity that adversely affects floodplains.

Executive Order 11990, Protection of Wetlands, requires Federal agencies to avoid activity that adversely affects wetlands and to encourage the preservation and enhancement of beneficial functions of wetlands.

Executive Order 12898, Environmental Justice, requires Federal agencies to identify and address disproportionately high and adverse human health or environmental effects on minority and low-income populations as a result of their actions.

The debris management plan should consider the application of environmental and other regulatory requirements to all aspects of debris operations, including collection,  temporary debris management sites, reduction, recycling, disposal, and the handling of hazardous materials.

Examples of application of the requirements could include:

• Putting appropriate controls in place when conducting debris operations in or near environmentally or historically sensitive areas such as wetlands, critical animal and plant habitats, sole source aquifers, freshwater well fields, historic districts, tribal sites, tribal burial sites, and archeological sites
• Ensuring that temporary debris management sites are not established within a floodplain, or at a site that contains hazardous materials which could be disturbed by site activities
• Ensuring that temporary debris management site selection criteria take into consideration any disproportionately high or adverse impacts on minority or low income populations

The debris management plan should include specific processes and procedures for establishing and operating debris management sites in a manner that meets environmental and other regulatory requirements.

• Baseline data collection
• Periodic environmental sampling
• Reporting
• Site closure

Environmental permits and land-use variances may be required to establish a temporary debris management site, conduct reduction and recycling activities, and operate disposal facilities. Several agencies may be involved in issuing permits and granting land-use approvals. The planning process should identify the potential permits that may be required and include procedures for obtaining them. Local regulatory authorities, the State environmental office, and U.S. EPA can be valuable resources in identifying permitting and land-use requirements. Specific permits and approvals that may be required include:

• Waste processing and recycling operations permits
• Temporary land-use permits
• Land-use variances
• Transportation permits
• Air and/or water quality permits
• Coastal commission land-use permits
• Household hazardous waste permits
• Fire department permits

This lesson describes the public information element of a debris management plan. This lesson includes the following topics:

• Public information strategy
• Information to communicate
• Methods of communication
• Pre-disaster preparations

The dissemination of debris operations information to the public is critical to the effective and efficient management of disaster debris. The debris management plan should include a public information strategy designed to ensure that the public receives accurate and timely information on the parameters, rules, and guidelines of all debris operations that involve or impact the public. The plan should identify:

• What types of information need to be distributed
• Procedures for distributing the information
• Procedures for updating, distributing, and redistributing information as debris operations progress
• A method for allowing the public to express concerns, questions, and complaints, as well as what follow up action will be taken to respond to the input

Ultimately, a thorough public information strategy will make execution of debris operations easier and more effective.

Frequent and consistent messages to the public that include the parameters, rules, and guidelines of debris operations should be disseminated, so that the public conducts personal recovery activities in a coordinated manner. The staff responsible for developing and writing the information must present it in a clear, direct, and organized manner. The language must be simple and easy for all residents to understand. Avoid using jargon and acronyms, as they can lead to confusion and be ineffective. Information may have to be distributed in more than one language for it to be understood by non-English speaking populations and neighborhoods.

Examples of specific topics covered by public information include:

• Segregation of all debris types, including recyclables
• Debris collection routes and schedules
• Keeping curbside debris piles away from fire hydrants, inlets, signs, mailboxes, etc.
• Reporting illegal dumping (telephone hotline)
• Debris drop-off locations
• Private property debris removal/demolition procedures (voluntary and involuntary)

The public information strategy should take advantage of multiple communication methods to the extent possible. Many times the best carriers of information are the emergency management and debris operations personnel in the field. The general public recognizes their role and frequently asks questions regarding debris operations. Stocking field equipment and trucks with flyers, pamphlets, and other print media allows personnel to perform their duties while also satisfying the public’s need for information.

Other examples of communication methods include:

• Traditional media outlets (newspapers, TV, radio)
• Social Media (Twitter, Facebook)
• Internet/electronic bulletin boards
• Unused billboards
• Town halls/public meetings/athletic and public events/utility bill inserts
• Telephone hotlines
• Direct mailings/door hangers/flyers (door-to-door, at intersections, posted on storefronts, etc.)
• Emergency operations/disaster assistance centers

The public information strategy should also consider how disaster-related impacts to infrastructure, such as possible loss of power for extended periods of time, will affect the availability of public information efforts.

Additional pre-event preparedness considerations include: generic templates for press releases and announcements; pre-scripted information for the Public Information Officer and telephone hotline; identification of public information service providers, such as printing contractors; and information on volunteers willing to support public information activities.

When identifying public information service providers, consider their ability to provide services after a disaster event when utility service may be disrupted and their facility may be damaged or destroyed.

Local organizations and clubs may be a conduit for identifying volunteers and may view their participation as an opportunity for a service-related project for their members.

The plan may also include pre-event communication activities, such as public service announcements, handing out flyers/brochures during community events, and public speaking engagements.