Georgia solid waste management plan 1997

Cif\ C4Qc; .M\
llG\1

",,< / i <<<<<<~<<<<<;<<<<<<<<<<

<<<<<~'<<:::<<<<<<<<<<<<'~/'7"""""~"'>"""""'S'"

/,"'. .< / / ", / ~ ."~/~//~//".,,,/~ ' ~ i <.

~I

/,

:

DECEMBER 1997

Georgia Department of Community Anairs

Acknowledgments
Foreword
ANewPlan How to Read this Document
I. IntJtoduction
What is Solid Waste? Historical Perspective Major Accomplishments Since 1990 New Directions in Solid Waste Management
II. The Changing Solid Waste Management Environment
Changing Role 01 Local Government New Directions lor Commercial and Industrial Solid Waste Generators The Goal 01 Solid Waste Reduction Tracking Waste Reduction Progress
III. Goals, Objectives, and Strategies
Five-Year Work Program
Glossary 01 Terms Notes

60 Executive Park South, NE Atlanta, GA 30329-2231 (404) 679-4950

i

1 AnEllual
1 OPPOI'tunity 2 Employ,I'

3

3

4

B

If you are disabled and would like to receive

7 this publication in an alternative format,

8 please contact the
Georgia Department of

8 Community Affairs at
(404) 679-4915 or

9 1 (800) 736-1155 (TOO).

10

11

13

14 37

II>\ Printed on \:J:1 Recycled Paper

40

Acknowledgments
The 1997 Georgia Solid Waste Management Plan evolved from the hard work and dedication of many organizations and individuals.
More than a hundred Georgians participated in focus groups, helping to assess the current conditions and needs of the State's system of solid waste management. The University of Georgia's Institute of Community and Area Development facilitated these groups and summarized their comments for consideration in the planning process.
In addition to participating in some of the focus groups, members of the Department of Community Affairs' Waste Reduction Advisory Council shared their expertise throughout the update process. Their combined experiences brought a variety of professional perspectives to the planning process.
Local government officials participated both directly, through focus groups and public meetings, and indirectly, through input from the Association County Commissioners of Georgia and the Georgia Municipal Association.
This entire effort was led by the four State agencies with primary solid waste-related responsibilities: the Department of Community Affairs, the Department of Natural Resources' Pollution Prevention Assistance and Environmental Protection Divisions, and the Georgia Environmental Facilities Authority. With direction from their boards and input from focus groups and advisory council members, staff of these organizations developed the nuts and bolts of the plan.
Finally, the University of Georgia's Carl Vinson Institute of Government, and Dr. James Kundell in particular, gathered all the pieces together and compiled a plan to lead Georgia's system of solid waste management into the next century.

Foreword
In 1990, the Georgia General Assembly enacted the Seol'gia CompI'ehensive Solid Waste Management Act (the Act), which established two dramatically new directions for solid waste management in Georgia. First, it provided legislative support to adopt new, more environmentally protective landfill standards consistent with federal Subtitle D requirements. Second, the Act established, for the first time, a statewide goal to reduce the amount of municipal solid waste being sent to disposal facilities and set forth a host of activities designed to accomplish this goal.
With the new focus on waste reduction, the complexity of waste management increased. Not only was it necessary to collect and dispose of waste in an environmentally sound manner, it was now necessary to develop and implement strategies to reduce the waste stream; ensure that adequate infrastructure was in place to accomplish this task; analyze recycling market conditions and promote policies supportive of markets; educate residents about waste reduction options; and determine how waste reduction efforts affect the financing and operation of waste collection and disposal efforts.
This increase in complexity underscored the need for planning, both at the State and local/regional levels. The Act called for the preparation of the Georgia Solid Waste Management Plan by the end of 1990, followed by the development of local or regional solid waste management plans. The State plan, which was developed by the Department of Community Affairs (DCA) and the Department of Natural Resources (DNR) in cooperation with the Georgia Environmental Facilities Authority (GEFA) and local governments, set forth 24 State and local goals and the actions necessary to accomplish those goals. In its 1994 report on solid waste management in Georgia, DCA included an evaluation of progress made in reaching the goals. It was apparent from this effort that it would be necessary to revise the State plan and adjust the goals to reflect the lessons learned since the plan was developed.

ANew Plan

This document represents the first revision of the Georgia Solid Waste Management Plan since its original adoption in 1990. It was developed by DCA and DNR, with assistance and input from GEFA, local governments, the University System of Georgia, private businesses and the general public.
In revising the plan, issues and needs were identified through:
a number of surveys and studies conducted by DCA and DNR, including the Solid Waste Management Survey and Full Cost Report, 1992-1996; a survey of landfill operators; a recycling rate survey; a household hazardous waste and recycling survey; two yard trimmings surveys; and a survey of other states' efforts in dealing with commercial and industrial waste; and
a series of focus groups, facilitated by The University of Georgia's Institute of Community and Area Development, involving local governments, local recycling coordinators, solid waste handling and recycling businesses, commercial and industrial solid waste generators, environmental organizations, DCA's Waste Reduction Advisory Council and State agency staff. The input received through these efforts was compiled by UGA' s Carl Vinson Institute of Government.

Georgia Solid Waste Management Plan: 1997
Three major shifts in direction form the basis of the new plan, which will guide the State's activities over the next five years:
the evolving role of local governments in the solid waste management field and the resultant changing need for State assistance;
the expanding ability of the State to work with the commercial and industrial sectors to reduce the waste they generate; and
improved methods for monitoring, reporting and tracking waste reduction progress.
While the emphasis is changing, the overall intent of this plan is the same as the original plan-to reduce the amount of waste being generated and disposed of in Georgia and to ensure that the balance is managed in an environmentally and economically sound manner. In addition to new activities intended to accommodate the shifts in emphasis, there is a continuing need to carry out many efforts already underway. Certainly, the State must continue toward full implementation of Subtitle D requirements for landfills and for full compliance by waste-to-energy, composting, and other solid waste handling facilities. So too, technical assistance to local governments on waste reduction and other solid waste management efforts must continue. Combined, these efforts should effectively improve solid waste management and reduction in Georgia.

How to
Read this
Document
This document is divided into three major sections:

I. Introduction II. The Changing
Solid Waste Management Environment

The first section provides definitions of the various types of waste and recovered materials discussed in the plan; a historical perspective of the State's involvement in solid waste management since the early 1970s; a discussion of major accomplishments made since passage of the 1990 Georgia Comprehensive Solid Waste Management Act and completion of the first Georgia Solid Waste Management Plan; and a look, under New Directions in Solid Waste Management, at how State agencies have organized to tackle new issues affecting solid waste management and reduction.
Next is an examination of the issues that have necessitated changes in State solid waste management policy and the revision of goals and strategies to carry out those changes.

Ill. Goals, Objectives and Strategies

The final section represents the core of the updated Georgia Solid Waste Management Plan. The goals and objectives set forth the direction the State will take in addressing solid waste management, and the strategies listed in the Five-Year Work Program comprise the scope of work that will be undertaken by the various agencies in carrying out their solid waste management responsibilities.

Acronyms Frequently Used in this Publication
DCA Georgia Department of Community Affairs DNR Georgia Department of Natural Resources EPD Georgia Environmental Protection Division
(DNR)

GCB Georgia Clean & Beautiful GEFA Georgia Environmental Facilities Authority
KAB Keep America Beautiful P2AD Georgia Pollution Prevention Assistance
Division (DNR)

2

Georgia Solid Waste Management Plan: 1997

I. Introduction

What Is Solid Waste?
The Five General Categories of Solid Waste
M unicip"al Solid Waste (MSW)
Commercial Waste
Industrial Waste
Construction and Demolition (C&D) Waste Inert Waste

The term solid waste is a general phrase used to refer to any solid or contained solid, liquid, semi-solid, or gaseous waste material. Five general categories of solid waste have been defined by the State of Georgia: municipal, industrial, commercial, construction and demolition, and inert waste. These wastes vary in composition, potential environmental and healthrelated concerns, and management requirements. Each of these will be discussed in this plan.
Generators of solid waste can also be divided into four general categories: residential, commercial, institutional, and industrial. The type of solid waste generated by each of these categories may vary depending on the waste characteristics and method of waste management utilized.
Municipal solid waste (MSW) is the waste commonly referred to as garbage or trash, and includes waste generated by residential and nonresidential sources (e.g., institutional, commercial, and industrial generators) that is comanaged with residential waste. MSW typically includes items such as food scraps, paper, discarded appliances, and packaging materials. Under Georgia law, it does not include yard trimmings, lead acid vehicle batteries or used tires, all of which have been banned from being mixed with MSW and disposed of in MSW landfills. In Georgia, MSW is most commonly taken to a landfill for disposal.
Commercial waste is nonresidential solid waste generated by businesses such as stores, restaurants, and warehouses that are not involved in manufacturing products. In Georgia, most commercial waste is disposed of in MSW landfills, along with other types of solid waste. Business owners usually rent or purchase large waste containers (i.e., green boxes, Dumpsters) and contract with a local government or private company for waste collection and handling services. The cost of these services depends upon the size and number of containers and the number of times per week (or month) they are emptied.
Wastes generated by the production of metals, chemicals, plastics, pulp and paper, textiles, transportation equipment, food stuffs, leather, and most other manufactured goods are examples of industrial waste. Collection and disposal of industrial waste is usually similar to that described in the previous paragraph for commercial waste, with a notable exception: a substantial number of the state's industrial waste generators operate landfills located at their manufacturing plants, for the purpose of disposing of wastes produced on those sites. These on-site disposal facilities are not permitted to receive wastes from other companies or individuals.
Construction and demolition (C&D) waste is made up of materials and debris resulting from construction, renovation, and demolition work on buildings, homes, roads, and bridges. It includes sheetrock, bricks, concrete, wood, metal, and other materials associated with construction. Although there are over 30 landfills in Georgia specifically permitted to receive C&D waste, a significant amount is disposed of in regular MSW landfills.
Inert waste (waste composed of earth and earth-like products such as land clearing debris and other materials not likely to contaminate the groundwater or produce leachates) is also disposed of in C&D landfills. In addition, there are hundreds of inert disposal facilities in the state.

3

Georgia Solid Waste Management Plan: 1997

The concern with all five categories of solid waste is that, if they are not handled properly, they can cause problems such as contaminated water resources, illegal dumping, and unsightly litter. Although Georgians have made great strides in the past decade in the areas of waste reduction, reuse, and recycling, there is still concern over the amount of materials being generated, the amount of resources being discarded, and the use of expensive disposal capacity for materials that need not be placed in Subtitle D landfills. This is especially true for commercial, industrial, and C&D wastes, which, combined, make up about 60 percent of all solid waste currently disposed in Georgia's landfills.

Recovered Materials

Unlike solid waste, recovered materials have known use, reuse or recycling potential and have been diverted or removed from the waste stream for sale, reuse or recycling. The vast majority of residents in the state have the opportunity to separate certain materials for recycling (usually aluminum cans, newspapers and glass, at a minimum) prior to collection and disposal. Many businesses, governmental institutions, and other nonresidential generators of MSW also have recycling opportunities available to them. In some areas, recyclables from residences are placed in specially marked containers and set out at the curb for pickup by either the regular waste collector or another collector. In other areas, residents and businesses deliver their recyclables to drop-off centers or community recycling bins.

Historical Perspective

In 1971, results of a solid waste survey in Georgia showed that per capita daily production of MSW was 2.81 pounds. l While four MSW incinerators burned approximately 1,500 tons of refuse per day, an estimated 98 percent of Georgia's waste was disposed of in the 416 open dumps in use in the state. A survey of these dumps found that 29 percent were never covered (with soil), 81 percent allowed open burning, 78 percent had rodent problems, and 16 percent had potential ground water pollution problems.
Efforts to effectively manage solid waste in Georgia began shortly after the survey with the enactment of the Georgia Solid Waste Management Act of 1972. Responsibilities for implementing the solid waste requirements under this law were assigned to the Environmental Protection Division (EPD) of the newly created Georgia Department of Natural Resources (DNR).
Between 1972 and 1990, all 416 open dumps were shut down and replaced by 180 permitted sanitary landfills. So too, all four solid waste incinerators, which could not meet the air quality standards enacted during the 1970s, were closed.2 Thus, the 1972 law was effective in addressing concerns with solid waste as they were understood when the law was passed.
By the late 1980s, however, conditions relating to solid waste in Georgia had changed considerably. There were approximately two million more people in the state, and the per capita production of solid waste had increased to at least six pounds per day. About three-fourths of the 180 sanitary landfills were expected to be filled to capacity by the early 1990s. Developing new disposal facilities had become difficult due to growing public opposition to locating landfills anywhere near inhabited areas.

4

Georgia Solid Waste Management Plan: 1997
In addition, changes in the Resource Conservation and Recovery Act, enacted by Congress in 1984, directed the Environmental Protection Agency (EPA) to promulgate environmentally protective landfill standards. These Subtitle D standards were released in draft form in 1988 and showed what would be required of new landfills, including synthetic liners, leachate collection systems, ground water monitoring systems, closure requirements, and provision of postclosure care. Although these new requirements would result in greater assurance that landfills would not cause environmental degradation, the cost of landfilling solid waste would increase considerably. Consequently, the increased costs and problems associated with siting new landfills spurred action in the Georgia General Assembly. Sweeping changes to the 1972 solid waste law were passed during the 1990 session of the General Assembly. The new Georgia Comprehensive Solid Waste Management Act established a statewide per capita waste reduction goal of 25 percent, to be achieved by July 1, 1996. The Act also required that: EPD and DCA develop a State solid waste management plan by January 1,
1991 ; each city and county in the state develop or be included in a solid waste
management plan by July 1, 1993, with the proviso that no solid waste permit, grant, or loan be issued in the absence of a plan; each plan must include assurance of ten years' disposal capacity and handling capability, identification of sites unsuitable for solid waste handling facilities, a strategy for providing an effective, affordable waste reduction program, a strategy for providing solid waste education, and an implementation and financing element; all landfill operators be certified by the State and maintain accurate written records of the amount of solid waste, measured in tons, received at the landfill; whole scrap tires and lead acid vehicle batteries be disposed of in some way other than Iandfilling;3 and each local government report annually to DCA on the status of solid waste management and the total annual cost of providing solid waste management services in its jurisdiction, with DCA, in tum, required to report annually to the Governor and General Assembly on the status of solid waste management in Georgia.
5

Georgia Solid Waste Management Plan: 1997

Major Accomplishments Since 1990

Since passage of the Act and completion of the 1990 Georgia Solid Waste Management Plan, the State has made significant strides toward improving solid waste management and reducing Georgia's waste stream. For example, in 1990 few local recycling programs existed statewide; in 1996, however, recycling programs and serVIces existed in over 500 communities, covering some 96 percent of the state's population. Similarly, solid waste public education efforts were carried out in only a handful of communities in 1990, but by 1996 about 260 cities and counties had education programs in place, covering nearly 83 percent of the state's population. Other examples of progress made since 1990 include the followmg:
Of the approximately 180 MSW landfills operating in 1990, only eight were lined. In 1996, 35 of the 101 MS W landfills were lined facilities. There is at least 14 years of remaining capacity in Georgia because the newly permitted landfills are designed with much larger capacity.
All but two small cities have participated in the solid waste management planning process called for in the Act. Over 99.9 percent of the state's population is covered by a solid waste management plan.
In 1990, there were no certified landfill operators in Georgia. In 1996, there were over 625 certified landfill operators. Essentially all operators have been trained and certified.
The Act imposed a $1.00 retail sale fee per tire on all new replacement tires beginning July 1, 1992. The proceeds from this fee go into the state's Solid Waste Trust Fund. With a portion of these proceeds, nearly 4 million scrap tires have been recycled since the program began.
In 1996, Georgia was one of the nation's top three states in paper recycling capacity.
Green box collection systems, which tend to be sources of considerable litter and illegal dumping problems for local governments, are being replaced in Georgia by other collection methods, such as centralized and staffed drop-off centers. Fewer than 50 percent of counties and 10 percent of cities in Georgia were served by green ,boxes in 1996.
In 1990, the governmental cost of solid waste management was not generally reflected in fees; it was mostly supported through the property tax. In 1996, 63 percent of local governments providing residential collection charged a fee for the service.
In 1990, only one local government in the state used a variable rate or unitbased pricing system. In 1996, 26 local governments used this type of fee structure, covering some 8 percent of the state's population.
A new division of DNR, the Pollution Prevention Assistance Division (P2AD), was established in 1993 to offer technical assistance to businesses to reduce, reuse, and recycle materials and to lower demand for raw materials, water, and energy.
Although Georgia's 1990 recycling rate is unknown, at least one-third of the potential solid waste generated in the state in 1995 was recycled, placmg Georgia's recycling rate among the top ten in the nation.
A 1993 amendment to the Act placed restrictions on the disposal of yard trimmings in lined landfills. Even before the ban's September 1996 effective date, most of Georgia's local governments had taken steps to implement it. In 1996, 76 percent of local governments were requiring separation of yard trimmings from solid waste prior to collection, and the majority had measures in place to keep yard trimmings out of lined landfills.
The Georgia Recycling Market Development Council, which sunset in 1995, determined that markets for recovered materials were welldeveloped in Georgia and that these markets were expanding. The Market Development Council also produced, in cooperation with the Carl Vinson Institute of Government, the Georgia Recycling Fact Book,4 which provides information and guidance on recycling in Georgia.
As these accomplishments suggest, considerable progress has been made since passage of the Act in 1990 to better manage solid waste in Georgia.

6

New Directions in Solid Waste Management

Georgia Solid Waste Management Plan: 1997

To serve as a forum for coordinating activities, sharing information, and mobilizing State resources to build on these accomplishments, DCA, DNR's Environmental Protection Division (EPD) and Pollution Prevention Assistance Division (P2AD), GEFA, the Georgia Building Authority (GBA), the Department of Administrative Services (DOAS), the Department of Agriculture, the Association County Commissioners of Georgia (ACCG), and the Georgia Municipal Association (GMA) established the Intergovernmental Solid Waste Coordinating Council. The agencies with primary solid waste management responsibilities (DCA, EPD, P2AD, and GEFA) later agreed to a Memorandum of Understanding (MOU) concerning their respective roles and disbursement of Solid Waste Trust Fund monies. In summary, the MOU defines the role of each agency as follows:

DCA: EPD: PlAD: GEFA:

Providing technical assistance to local governments in recycling, waste reduction, and other solid waste management issues; administering an annual local government solid waste survey and preparing an annual report of statewide solid waste activities; administering local government solid waste planning activities; providing staff support for the Waste Reduction Advisory Council; implementing the Georgia Clean and Beautiful program; and developing and coordinating solid waste management education activities.
Administering compliance inspection and permitting of landfills and other solid waste handling facilities; assisting local governments in the development of solid waste regulatory programs and with regulatory compliance, code development and enforcement, and alternative waste disposal methods; evaluating new waste handling technologies; and administering the Solid Waste Trust Fund.
Providing assistance in industrial, commercial, and institutional waste reduction; developing programs and activities to encourage businesses and industries to implement waste reduction measures; preparing a strategic plan outlining strategies to reduce waste in the industrial, commercial/institutional, and agricultural sectors; implementing a household hazardous waste prevention and management program; and implementing a used automotive fluids management program.
Serving as a conduit through which the State provides financial assistance to local governments and local solid waste management authorities; operating the recycling and solid waste facilities loan program; and administering a waste reduction grant program with funds provided by the Solid Waste Trust Fund.

In determining their roles and responsibilities and the direction they should take in carrying them out, the four State agencies reviewed House Bill 148 of the 1996 legislative session for guidance. Although this bill did not become law, it clarified their respective roles and, more importantly, represented consensus among the State and local governments, the solid waste industry, environmental organizations, and private citizens on changes needed to minimize waste disposal and promote recycling and other forms of waste reduction. House Bill 148 also provided the impetus to update the 1990 Georgia Solid Waste Management Plan; to create the Intergovernmental Solid Waste Coordinating Council; and for DCA to appoint a Waste Reduction Advisory Council to provide guidance on the department's waste reduction, recycling, and education activities.

7

Georgia Solid Waste Management Plan: 1997

II. THE CHANGING SOLID WASTE MANAGEMENT ENVIRONMENT
Since passage of the Act in 1990, a number of significant changes have occurred that affect solid
waste management policy. Key words such as devolution, outsourcing, and accountability all are part of a changing environment for managing solid waste. Experience has also shown that while some policies and procedures have worked well, others have not. For those that have not, alternatives should be considered. In updating the State solid waste management plan, four key questions needed to be answered.
How is the role of local governments changing regarding solid waste management?
How can we achieve greater reduction from the commercial and industrial sectors?
What is the state's solid waste reduction goal?
How can we better measure progress in solid waste reduction?
These factors are critical to Georgia's ability to effectively reduce its waste stream and improve the management of waste it generates.

The Changing Role of Local Governments in Solid Waste Management

Historically in Georgia, local governments have been involved directly in providing solid waste management services to their residents. In 1990, for example, almost every county and several cities in the state operated a landfill. In addition, cities typically provided curbside collection of solid waste while counties, more commonly, used a green box system for collection.
With new, more technically demanding environmental requirements and higher costs associated with solid waste management, the situation is changing. For example, the major reduction in the total number of landfills in the state is due to the closing of local government landfills. In addition, as local governments have closed their landfills, many have decided to stop offering collection services, leaving it to the private sector to provide the service for a fee.
Consequently, these local governments are put in the position of having to ensure that effective and reasonably priced solid waste management services are made available to their residents by the private sector. This requires that local governments have a different mix of capabilities than before. They must now be able to develop well-conceived requests for proposals (RFPs) and franchise agreements and to contract for services with the private sector. They must also learn to monitor service delivery and to take action if services are inadequate. To help local governments, the types of technical assistance provided by the State must also change. It becomes less important for the State to provide technical assistance on operating landfills, for example, and more important to provide assistance in developing RFPs and in contract administration.

8

New Directions for Commercial and Industrial Solid Waste Generators

Georgia Solid Waste Management Plan: 1997
As the role of local governments in the solid waste management arena is evolving, similar changes are occurring with other local environmental functions. With the devolution of responsibilities from the federal government to the states, and from the states to local governments, there is increased interest in providing greater flexibility in carrying out programs and responsibilities. The U.S. Environmental Protection Agency (EPA) and the state environmental agencies, including Georgia EPD, have formed a performance partnership providing states having the capacity to comprehensively manage their environments the flexibility and authority to do so. So too, the State of Georgia is considering ways to give capable local governments more flexibility and authority in handling their environmental management responsibilities. It is reasonable to expect that this trend will extend into the realm of local government solid waste management responsibilities.
Much of the emphasis over the past few years has been focused on waste reduction in the residential sector. Part of the reason for this was the lack of an organizational structure designed to work with commercial and industrial waste generators. The State's 1996 survey of landfill operators determined, however, that commercial and industrial waste generators account for approximately 60 percent of the solid waste stream. In 1993, the Pollution Prevention Assistance Division was created in the Department of Natural Resources to work with industries to reduce their generation of pollution, including solid waste. This program is a significant step forward in the state's ability to promote waste reduction by commercial and industrial generators.
Increasing solid waste management fees and concerns over environmental liability have caused businesses to develop and implement pollution prevention measures (i.e., source reduction) throughout their operations. Certain industries generate great quantities of solid waste (e.g., pulp and paper and textiles) and, therefore, pay significant disposal costs. Companies have come to realize that it makes economic sense to minimize the amount of waste produced, thereby reducing the costs associated with management and disposal.
EPA has begun to champion pollution prevention over pollution control as the preferred waste management method for industries, businesses, local government, and citizens. They have introduced programs such as Green Lights and Waste Wise to promote this initiative. In addition, there is a growing desire among companies to "go green" to improve their international competitiveness and be recognized by their peers, communities, and the world as good corporate citizens concerned with protecting the environment. There is also general movement for industries to go beyond environmental regulatory compliance. Self-regulatory initiatives such as Common Sense, Project XL, and ISO 14000 are gaining in acceptance and participation.

9

Georgia Solid Waste Management Plan: 1997

The Goal of Solid Waste Reduction

Much of the emphasis of the Geon?ia Comprehensive Solid Waste Management Act of 1990 was on reducing the amount of waste being disposed of in increasingly expensive MSW landfills and waste-to-energy facilities. As a result, the Act established a statewide, per capita goal of reducing the amount of MSW entering disposal facilities by 25 percent. The goal was set on a statewide basis, recognizing that local governments vary in their ability to recycle and to reduce the waste stream in other ways. To account for population growth, the goal was set on a per capita basis. As with most states, however, Georgia adopted a specific date for achieving the 25 percent reduction goal. July 1, 1996, was selected as the target date to meet the reduction goal, and 1992 was set as the base year. Although there is some question as to the accuracy and completeness of the reporting of solid waste reduction figures, this goal was not met.

The target date for meeting the waste reduction goal has passed, and no legislation was enacted during either the 1996 or 1997 General Assembly sessions to reinstitute it. As a result, the question was raised as to whether the 25 percent goal still applies. To answer this question, DCA requested the State Attorney General to render an opinion. On July 11, 1997, the Attorney General issued an official opinion that the essential intent of Code Subsection 12-8-21 (c) is the reduction of (municipal) solid waste by 25 percent and that this goal remains effective in applying related requirements of the Georf?ia Comprehensive Solid Waste Management Act.

In 1996, the Intergovernmental Solid Waste Coordinating Council determined that, although the statewide waste reduction goal provides a target to aim for, the State's ability to accurately track progress toward achieving the goal is problematic. The Council concluded that to better meet the needs of the state, new waste reduction efforts should focus on two areas:

1.

encouraging the use of improved management technologies and

techniques, referred to in this plan as best management practices

(BMPs); and

2.

improving measurement techniques and reporting requirements to

obtain more accurate data on statewide waste reduction efforts.

The first effort will involve creating and enhancing programs that provide incentives and recognition to local governments and businesses that implement BMPs targeted toward effective waste reduction. Because this approach recognizes that needs and capabilities vary among local governments and businesses-and that BMPs should be designed accordingly-it should prove effective in moving toward meeting the State's waste reduction goal.

To enable the State to evaluate the overall effectiveness of this approach and other activities such as ongoing education and technical assistance, the second area of effort will focus on perfecting performance measurements, or benchmarks. Armed with better information, State agencies will be able to adjust their efforts as needed to respond to the trends measured. Specific problems related to tracking waste reduction progress and possible solutions are discussed in the following section.

10

Tracking Waste Reduction Progress

Georgia Solid Waste Management Plan: 1997
Although much thought went into developing the State's 1996 waste reduction goal, tracking progress toward meeting it proved problematic. First, most of the landfills operating in the state in 1992, the base year for measuring the goal, did not have scales. Second, nearly half of those landfills closed during the time frame, and the waste was diverted to other landfills. Good record keeping and reporting in such a situation is difficult. Third, many landfills changed from manual record keeping to computerized systems. Finally, some landfill operators failed to subtract the weight of recycled materials diverted at the landfill from the total tonnage of solid waste entering the landfill. These factors, some of which continue to be a problem, all contributed to less-than-accurate data with which to measure progress.
Another problem with tracking waste reduction relates to the source of the waste. Landfill operators are required to track by jurisdiction the source of waste entering the landfill and report this to the State. However, a truck may pick up waste from various jurisdictions in one load, and drivers do not always know when their collection route passes from one jurisdiction to another. Although this has presented problems in tracking progress by individual jurisdictions, it may not be as significant a problem on a regional or statewide basis. Nevertheless, the State is working with landfill operators to improve reporting methods and to ensure that more accurate information is provided. These efforts should continue.
Meanwhile, to better determine waste reduction efforts in the state, DCA sponsored two studies. The first study focused on determining how much impact economic conditions had on waste reduction efforts. 5 When the economy is robust, more waste is generated than during a recession. In 1992, Georgia was in a recessionary period, but in 1996, economic conditions were much better. The study was unable to determine the impact, however, because of limitations of the available data. The study concluded that if the State decides to pursue use of an economic model, more accurate and more specific data will be necessary.
The second study surveyed processors and end users of recovered materials to determine how much material recovered from Georgia's waste stream was being recycled.6 The figures generated were actual recycling tonnages; they were not extrapolated to arrive at estimates. The study determined that, at a minimum, over 4.7 million tons of materials from Georgia were recycled in 1995 while, based on landfill reporting figures, 9.8 million tons were disposed. Consequently, 33 percent of the potential solid waste generated in Georgia in 1995 was recycled. Although this shows a great deal of recycling activity in the state, it does not show how the recycling rate has changed over time. DCA will repeat and expand this voluntary survey to provide more reliable data on recycling rates in the future.
DCA has also revised its local government solid waste survey form to obtain more accurate information from local governments. Additionally, the waste disposal data required from landfill operators will continue to be collected by EPD and tabulated. Based on insights gained from the State's 1996 landfill operators survey, steps are being taken to improve the accuracy of data obtained from disposal facilities. As a result, better measurement of the state's waste reduction efforts should be available in the future. DCA, with input from the other State agencies, will continue to report annually on efforts to improve solid waste management and to reduce the amount of solid waste going to landfills.
II

Georgia Solid Waste Management Plan: 1997
These improved tools will also enable the State to better track reductions in commercial, institutional, and manufacturing waste being disposed of in landfills. In addition, as part of its benchmarking program, P2AD will continue to gather data on priority waste streams of Georgia businesses. To supplement these benchmarking measures, P2AD has developed several other mechanisms to further evaluate reductions by various business sectors. For example, six months after a pollution prevention assessment is completed, a survey is sent to the participating company to request information on which pollution prevention options they implemented, the savings incurred, and tons of material diverted from the landfill. In addition, a certification program instituted by P2AD provides recognition for incremental improvements made by businesses in waste reduction. This will aid tracking efforts by documenting reduction increases occurring over time.
12

Georgia Solid Waste Management Plan: 1991

III. GOALS, OBJECTIVES, AND STRATEGIES

The intent of the Georgia Comprehensive Solid Waste Management Act is to establish policies and programs that will:

reduce the amount of solid waste generated and sent to the state's disposal facilities (i.e., MSW and C&D landfills);
support environmentally sound management of solid waste; and
promote fiscally sound practices supported by ongoing planning and performance tracking.
To meet this intent, the 1997 Georgia Solid Waste Management Plan sets forth the direction and scope of State level solid waste reduction and management efforts for the next five years. The plan identifies three goals and 26 objectives and presents specific strategies (i.e., activities, actions and tasks) to achieve these goals and objectives.
As multiple agencies are involved in implementing the plan, it is important to match objectives and strategies to organizational missions, capabilities, and resources and to coordinate efforts among the various responsible agencies. Identification of the agency with primary responsibility for implementing each objective and a discussion of efforts undertaken to date are provided in the Five-Year Work Program, which begins on page 14.
The three goals and associated objectives are:

GOAL 1: To reduce the amount of solid waste
generated and disposed.

Objective 1: To encourage the reduction of solid waste generated by the general public.
Objective 2: To encourage the reduction of solid waste generated by the manufacturing sector.
Objective 3: To encourage the reduction of solid waste generated by the commercial and institutional sectors.
Objective 4: To encourage the reduction of solid waste generated by the agricultural sector.
Objective 5: To encourage reuse and recycling by the general public.

Objective 6: To encourage reuse and recycling in State government.

Objective 7: To encourage reuse and recycling in the commercial, institutional, and industrial sectors.

Objective 8: To encourage reuse and recycling in the agricultural sector.

Objective 9: To maintain current, comprehensive information on recycling markets in Georgia and to assist public and private interests in establishing, enhancing, and utilizing these markets.

Objective 10:

To ensure an environmentally sound

permitting process for solid waste handling

facilities that does not adversely affect waste

reduction efforts.

GOAL 2: To manage solid waste in an environ-
mentally sound manner.

Objective 1: To encourage local govern ments to provide for effective and efficient solid waste disposal services.
Objective 2: To ensure that all newly permitted solid waste facilities meet stringent, environmentally protective siting, design, construction, operation, and closure standards.
Objective 3: To ensure that all existing municipal solid waste landfills meet environmentally protective operation standards or close, and that vertical and horizontal expansions of existing municipal solid waste landfills meet environmentally protective design and construction standards.

Objective 4: To ensure that on-site industrial solid waste handling facilities are permitted and operated in an environmentally sound manner in accordance with regulatory and statutory standards.
Objective 5: To ensure ten years of disposal capacity within the state.
Objective 6: To identify and clean up all scrap tire piles.
Objective 7: To conduct a comprehensive compliance reporting and monitoring program of solid waste handling facilities.
Objective 8: To establish a risk-based corrective action program for municipal solid waste landfills.

GOAL 3:
To promote
fiscally sound
solid waste
management
practices supported by ongoing planning and performance tracking.

Objective 1: To obtain and effectively utilize funds to implement solid waste management activities.
Objective 2: To seek sources of funding to facilitate applied research and commercialization of waste reduction technologies by the private sector.
Objective 3: To ensure that the reportinq requirenents of the Act are met.
Objective 4: To determine the effectiveness of the State's solid waste manaqement proqrams and activities.
Objective 5: To encouraqe effective solid waste manaqement planninq and plan implementation by local governments.

Objective 6: To encouraqe local qovernments to develop financing mechanisms for solid waste management programs.
Objective 7: To encouraqe local qovernments to establish proqrams tarqeted at effectively reducinq waste and providing efficient solid waste management services.
Objective 8: To encouraqe local qovernments to provide for effective and efficient collection of solid waste, recyclables, and yard trimmings.

13

Georgia Solid Waste Management Plan: 1997

Five-Year Work Program

Goal 1: To reduce the amount of solid waste generated and disposed.

From both an environmental and management standpoint, it is most desirable to minimize or eliminate the generation of materials or by-products that must be managed through reuse, recycling, treatment or disposal. This is commonly referred to as source reduction. Methods used to reduce the amount of solid waste requiring disposal include:
reusing materials, or by-products, at the point of generation-in the home, office, or manufacturing facility; and
recovering materials for recycling-i.e., for use as a raw material in the production of a new product.
Since passage of the Act, State education and technical assistance programs have focused on assisting local governments and the general public in their waste reduction efforts, with an emphasis on residential recycling. While continuing to recognize the importance of recycling in reducing the amount of MSW going to disposal facilities, the State will expand its efforts to encourage source reduction and reuse by the general public as methods to minimize waste.

In addition, because almost 60 percent of the waste disposed of Georgia's MSW and C&D landfills originates from non-residential sources, the State is directing increased attention and resources toward encouraging the reduction of waste generated and disposed of by industry, commercial businesses and institutions, primarily through source reduction and reuse.

Objective 1: To encourage the reduction of
solid waste generated by the
general public.

Lead Agency:

The Memorandum of Understanding designates DCA as the lead agency for providing public education on all matters relating to solid waste reduction. This is accomplished primarily through DCA's Georgia Clean and Beautiful (GCB) program and indirectly through the department's local government technical assistance efforts. P2AD has a supporting role in developing programs for the general public. A part of P2AD's mission is to instill a pollution prevention ethic by increasing the general public's awareness about incorporating pollution prevention into their everyday lives both at home and at work. The prevention and/or proper management of household hazardous waste and used automotive fluids are two program areas that are included in P2AD's area of responsibility.

Efforts to Date:

Since the early 1990s, GCB has promoted waste reduction through a series of Waste in the Workplace, Waste in Place, and Waste: A Hidden Resource workshops and in the curriculum presented to teachers in GCB's teacher training workshops. In addition, GCB, in cooperation with local Chambers of Commerce, DNR, The Georgia Institute of Technology, The University of Georgia, and local Keep America Beautiful affiliates, holds regional seminars focusing on source reduction, recycling and good housekeeping.

Strategies:

1. Through GCB, educate the general public on the environmental and economic benefits of source reduction practices, such as purchasing products with minimal packaging and buying in bulk. (DCA)
2. Educate local government officials on the connection between volume-based rate structures and source reduction. (DCA)

14

Georgia Solid Waste Management Plan: 1997

3. Develop and implement a household hazardous waste preventIOn and management program: (P2AD)
Publish a guide for local governments on establishing a household hazardous waste prevention and management program.
Develop public service announcements on household hazardous waste.

Objective 2: To encourage the reduction of solid waste
generated
by the
manufacturing sector.

Lead Agency: Efforts to Date:
Strategies:

In 1993, the Pollution Prevention Assistance Division was created as a new division within the Department of Natural Resources to focus on assisting the manufacturing industry to reduce the amount and toxicity of their waste.
P2AD has a nonregulatory multimedia technical assistance program for manufacturing firms, consisting of an information center, telephone assistance, and on-site assessment capability. This program is being expanded to address waste reduction opportunities in the area of nonhazardous solid waste management. P2AD has established partnerships with a variety of public and private organizations to deploy pollution prevention information and technical assistance to the manufacturing sector. These will be expanded to address waste reduction opportunities in the area of nonhazardous solid waste management.
P2AD has targeted five non-residential waste streams-textile wastes (including carpet and apparel), wood wastes, C&D wastes, food processing wastes, and wastewater treatment sludges-for reduction. Based on research and experience, it is believed that Georgia businesses and industries are disposing of significant quantities of these materials in the state's MSW and C&D landfills.
1. Develop an industrial solid waste reduction program: (P2AD)
Assess identified and prioritized nonhazardous industrial solid waste streams.
Conduct assessments of selected manufacturers generating priority solid waste streams and identify opportunities for source reduction and in-house reuse and recycling.
Develop full cost accounting tools to assist industry in understanding the true costs of managing waste by-products.
2. Conduct train-the-trainer seminars to address waste reduction issues in the selected manufacturing sectors specifically related to toxics, solid waste, and water use reductions. Enhance public, private, and academic partnerships: (P2AD)
Maintain the relationship with Georgia Tech's Economic Development Institute (EDI) and incorporate waste reduction assistance into their regional Manufacturing Extension Partnership (MEP) program.
Continue the Georgia Environmental Partnership (GEP), consisting of EDI and UGA's Biological and Agricultural Engineering Department, to provide a coordinated technical assistance deployment mechanism to address manufacturers' environmental management problems.
Identify specific research needs with the Georgia Environmental Technology Consortium (GETC) and the GEP to foster development of waste reduction initiatives of strategic importance to Georgia.
Develop a model local government program to promote waste reduction by manufacturers in low-income, minority neighborhoods. 15

Georgia Solid Waste Management Plan: 1991

3. Develop and promote waste reduction recognition and incentive programs: (P2AD)
Recognize businesses that achieve certification in the Pollution Prevention Partners (pj) program or are selected to receive the Governor's award for excellence in pollution prevention.
Co-sponsor a Governor's Conference on pollution prevention and the environment.

Objective 3: To encourage the
reduction of solid waste generated by the commercial and institutional
sectors.

Lead Agency: Effons to Date:
Strategies:

P2AD has been identified in the Memorandum of Understanding as the lead agency for source reduction and reuse/recycling in the commercial and institutional sectors.
P2AD is creating a formal program to assist offices, hotels, restaurants, schools, hospitals, and other such organizations to develop waste reduction programs and market development opportunities. Waste from these sectors consists of office paper and cardboard, food scraps, mattresses, plastic, aluminum, and x-ray film. P2AD is partnering with both private and public organizations to provide assistance to reduce these wastes. Key partnerships are being established with DCA, the Association County Commissioners of Georgia (ACCG), and the Georgia Municipal Association (GMA) and other organizations related to the hospitality industry, medical community, and building and construction industry.
P2AD must gain a better understanding of the characteristics and current waste management practices of the commercial and institutional solid waste generators in Georgia. Once this is accomplished, waste reduction efforts can be developed to address the most significant waste types. Initial efforts indicate targeted generators will include general office, hospitality, industry, local government, State government, and health care facilities.
1. Develop a waste reduction program for the commercial and institutIonal sectors: (P2AD)
Identify and prioritize, based on quantities disposed, commercial and institutional solid waste streams.
Conduct assessments of selected companies generating priority solid waste streams, and identify cost-effective waste reduction approaches.
Prepare fact sheets and case studies of commercial and instItutional waste reduction successes.
Hold a series of seminars on waste reduction options for the commercial and institutional sector.
2. Disseminate waste reduction information through public and private partnerships: (P2AD)
Encourage commercial and institutional trade associations to promote waste reduction.
Work with GCB, the Cooperative Extension Service, Chambers of Commerce, and civic groups to assist in effectively disseminating waste reduction information to the commercial and institutional sectors.
Promote waste reduction in the hotel and restaurant industry through participation in the Georgia Hospitality Environmental Partnership.
In partnership with ACCG and GMA, prepare an approach to assist local governments promote pollution prevention and P2AD to their local businesses.

16

Georgia Solid Waste Management Plan: 1997

3. Assist State agencies and local governments in developing in-house waste reduction programs: (P2AD)
Partner with the Department of Administrative Services (DOAS) and the Georgia Building Authority (GBA) to institutionalize waste reduction and energy efficiency within State agencies.
In partnership with ACCG and GMA, identify local governments interested in establishing in-house pollution prevention programs.

Objective 4: Lead Agency: To encourage the reduction of
solid waste Efforts to Date: generated by the
agricuhural sector.

P2AD and UGA's Department of Biological and Agricultural Engineering (BAE) have an established partnership to provide pollution prevention programs for the agricultural sector.
Initial efforts by the partnership involved identifying priority issues in animal and crop production, and developing assistance and educational programs aimed at reducing wastes from these activities. Key focus areas for P2AD and its agricultural partners at the university are establishing the Farm Assessment Program (Farm *A*Syst) for reducing pollution by farmers, encouraging proper management of animal waste by processors, promoting the use of biosolids and industry by-products as soil amendments, and encouraging sustainable agricultural practices.

Strategies:

1. Develop a solid waste reduction program for agriculture: (P2AD)
Seek and expand opportunities to reduce agricultural inputs.
Develop and promote a Farm*A*Syst assessment program to help farmers practice pollution prevention.
Coordinate activities with the Georgia Environmental Partnership to promote solid waste reduction in the agribusiness sector.
Develop technical materials for dissemination and training.
Promote innovative uses and management of animal waste.
Continue the partnership with the Georgia Agricultural Research Center in Griffin to further applied research and application of pollution prevention options within the green industry and by the general public.
2. Promote proper management of pesticides: (Department of Agriculture and UGA)
Provide technical assistance to farmers on integrated pest management.
Promote proper disposal of pesticide containers.

17

Georgia Solid Waste Management Plan: 1991

Objective 5: Lead Agency: To encourage
reuse and recycling by the general Efforts To Date:
public.

The Memorandum of Understanding identifies DCA as the lead agency for providing public education and local government technical assistance on reuse and recycling (including yard trimmings management).
DCA is an information clearinghouse on all aspects of MSW reduction, recycling, and yard trimmings management. GCB promotes reuse and recycling through workshops, seminars, teacher training, and support services for local Keep America Beautiful (KAB) affiliates. In the early 1990s, DCA implemented a statewide public education campaign on home composting through "train the trainer" workshops, development of educational materials, and establishment of 94 home composting demonstration sites throughout the state. Technical assistance efforts have focused primarily on recycling, but have expanded with the recently instituted yard trimmings ban to cover municipal composting and yard trimmings management. DCA also provides education and assistance on the benefits of "closing the loop" through the purchase of products made with recycled content. Future efforts will expand to promote public and local government support of the reuse industry, composed of institutions such as the Salvation Army; and activities such as the collection and distribution of used clothing, furniture and other household items. DCA will also encourage the support of deconstruction activities (i.e., reuse of bricks, doors, windows, wood flooring, etc., from buildings that would otherwise be demolished).

Strategies:

1. Through GCB, provide education and training on reuse, recycling, and composting: (DCA/GCB)
Provide information, training, and support to local KAB affiliates.
Market the KAB system to prospective communities and encourage the development of multicounty KAB affiliates to promote regional recycling initiatives and educate the public on solId waste issues.
Provide teacher training, networking, and support for Georgia educators on solid waste management issues.
Coordinate and support solid waste public education events such as annua Christmas tree recycling.
Provide information on backyard composting practices.
2. Provide technical assistance, training and information to local governments, private industry, nonprofit organizations, and the general public on reuse, recycling, and yard trimmings management efforts: (Primarily DCA; P2AD where noted)
Provide technical assistance on markets, collection methods, processing, transport and facility development.
Facilitate establishment of partnerships between local governments, private industry, and nonprofits to develop regional recycling and yard trimmings management initiatives including market development and sharing of facilities, equipment, and costs. (DCA, P2AD)
Assist in the development of recycling and yard trimmings management ordinances, contracts, and procedures; full cost accounting; enterprise funds; and variable rate pricing.

18

Georgia Solid Waste Management Plan: 1997
In conjunction with the Georgia Recycling Coalition, provide training to local recycling coordinators.
Provide current information on solid waste management through quarterly newsletters, the Recycling Markets Directory for Georgia, Georgia Directory of Recycling Coordinators, Buy Recycled...Buy Georgia guide, other publications and databases, and access to this information through the Internet.
Identify case studies of exemplary recycling and yard trimmings management efforts for use in workshops, publications, and other technical assistance and public education efforts.
Educate local government officials and the general public on the value of reusing materials and purchasing items that can be reused rather than discarded.
Provide guidance and education on the reuse industry (e.g., clothing drives, Salvation Army) and how local governments can support such efforts.
Provide guidance and education on the preservation and reuse of building materials such as bricks, wood flooring, windows, doors, pediments and other historic facade elements.
Educate local government officials and the general public on the value of closing the loop by purchasing recycled products.
Sponsor workshops/vendor expositions for local governments, businesses, and the general public to showcase and encourage the purchase of recycled products.
Develop a statewide marketing and media plan to promote reuse, recycling, and proper yard trimmings management.
Develop and implement a used automotive fluids program. (P2AD)
19

Georgia Solid Waste Management Plan: 1997

Objective 6: To encourage
reuse and recycling
inState government.

Lead Agency: Efforts To Date:

The Georgia Building Authority (GBA) is charged with implementing the State Agency Recycling Program. State government (Le., State agencies and the General Assembly) has a responsibility to serve as a model for others and lead by example.
Currently, the State Agency Recycling Program collects aluminum and paper from agencies located within a 30-mile radius of the State Capitol. In addition, it collects these materials from The University of Georgia and Labor Department offices in Athens, at Augusta College, and at most State agencies located in Milledgeville. It encourages other State offices located throughout the state to set up in-house recycling programs.

For recycling to work, it is necessary to close the loop and buy products made from recovered materials. The State, as a major consumer of office materials and other products, should set the example by purchasing both recyclable products and products made from recovered materials.

The two major State agencies involved in purchasing such products are the Department of Administrative Services (DOAS) and the Department of Transportation (DOT). DOT purchases products made from recovered materials such as plastic warning signs and is testing the use of recovered carpet fiber to stabilize dirt roads. DOAS, as the State purchasing agent for office products, works with other State agencies to increase their use of products made from recovered materials.

Other agencies have also taken initiatives to reuse and recycle materials. The Department of Agriculture sponsors a program to help farmers recycle used pesticide containers. In addition, the Department of Corrections has instituted major recycling and composting efforts at many of its facilities.

Strategies:

1. Coordinate a State agency Buy Recycled program: (DOAS)
Review and, if necessary, revise the State's purchasing specifications, practices, and procedures to ensure that agencies are buying as many recyclable products and those made from recovered materials as is economically feasible.
Continue to identify and seek vendors with reliable, cost competitive sources of recycled goods.
Monitor the procurement procedures and guidelines of the federal government and other state governments concerning recycled materials for possible applicability to Georgia State government.
2. Coordinate State agency in-house recycling programs: (GBA)
Survey State agencies located outside the immediate State Capitol area about participating in the State Agency Recycling Program.
Continue to encourage State government offices located throughout Georgia to institute in-house recycling programs and contract with private vendors for collection where practical.
Present an annual report to the Office of Planning and Budget on the State Agency Recycling Program including goals, achievements, revenues, and expenditures.

20

Georgia Solid Waste Management Plan: 1997

Objective 7: To encourage
reuse and recyding in the
commercial, institutional, and
industrial sectors.

Lead Agency:

P2AD's original mission focused on pollution prevention and source reduction in the manufacturing sector. Expansion of the Division's responsibilities has resulted in the formalization of a program to promote the reuse and recycling of various byproducts that cannot be reduced at the source. P2AD will work closely with its university and public agency partners to promote by-product reuse and recycling, and the promotion of market development opportunities for recovered materials. P2AD will work closely with its agricultural partners to explore opportunities for reuse of by-products generated by nonagricultural activities to serve as agricultural supplements.

Effons to Date:

Since passage of the Act in 1990, State emphasis has been placed primarily on recycling in the residential sector with some assistance provided to the commercial sector. Greater emphasis will now be placed on reuse and recycling in the commercial, industrial, and agricultural sectors since they comprise a significant portion of the waste stream. With the creation of P2AD, the State is positioned to provide assistance relating to reuse and recycling in these sectors.

Strategies:

1. Coordinate activities within the industrial, commercial, and agricultural sectors to facilitate material matching and identification of end-user market development opportunities: (P2AD)

Identify viable reuse and recycling options for specific recoverable materials determined to be currently disposed in significant quantities from commercial, institutional, and/or industrial sources within Georgia.

Identify regional waste generation concentrations within the state to better understand the needs of businesses and other organizations in establishing and sustaining recycling markets.

2. Develop a recycling training program for use in the commercial/institutional sectors: (P2AD)

Develop a manual and train technical staff of GEP regional network offices on use of the manual for businesses within their regions.

Facilitate communication between businesses, local governments, and recycling coordinators through the GEP.

Promote communication among manufacturers and others using nine GEP regional networks to facilitate a regional materials matching and exchange network.

21

Georgia Solid Waste Management Plan: 1991

Objective 8: To encourage
reuse and recycling in the
agricultural sector.

Lead Agency: P2AD and The University of Georgia Department of Biological and Agricultural Engineering partner to develop reuse and recycling programs for the agricultural sector.

Efforts to Date: Initial efforts by the partnership involved identifying priority issues in animal and crop production, and promoting the reuse and recycling of their by-products. Technical assistance, educational programs, and demonstration sites are under development to promote reuse and recycling in this sector statewide.

Strategies:

1. Develop a by-product utilization program and demonstration site to promote mutually beneficial linkages between agriculture and industry. (P2AD)
2. Continue to seek and expand opportunities to reuse and recycle by-products from animal and crop production. (P2AD)

3. Develop assistance capability for land application and composting of options for biosolids, animal manures, and industrial and other by-products. (P2AD)

4. Continue and expand efforts to recycle used pesticide containers. (P2AD)

5. Continue composting and recycling programs at Department of Corrections institutions and increase partnering with other State and local agencies. (P2AD)

Objective 9: To maintain comprehensive and current information on recycling markets in Georgia and to assist public and private interests in establishing, enhancing, and utilizing these
markets.
22

Lead Agency:

In accordance with the Memorandum of Understanding, P2AD will serve as the lead agency for providing assistance on recycling markets. In addition, DCA and the Georgia Department of Industry, Trade and Tourism (GDITT) will serve a supporting role in implementing this objective. DCA is responsible for assisting local governments in finding existing markets for recovered materials. P2AD and GDITT will address the development of new markets.

Efforts to Date: P2AD, building on existing successful partnerships with DCA, GDITT, and the Georgia Environmental Partnership, is establishing a demonstration project creating a sustainable industrial recycling and market development network.
This project will develop a model for establishing similar networks throughout the state and will involve:
assessing existing industrial feedstock needs, on-site industrial recycling operations, and waste streams being generated by the principal industrial facilities, as well as the number and type of secondary materials processors and endusers located within the project areas;

providing the necessary research, technology transfer, and technical assistance to facilitate and maximize potential material exchanges, feedstock conversion, and recycling/reuse opportunities;
facilitating cooperative recycling arrangements to combine small quantity waste streams, creating new market opportunities, and providing greater economic incentives for processors and end-users to (re)locate to the project areas;

identifying market voids and market expansion opportunities; and

actively recruiting new secondary material processors and end-users to satisfy identified market needs.

Georgia Solid Waste Management Plan: 1997

DCA staffed and participated on the Georgia Market Development Council from 1990 to 1995. The Council was made up of private and public sector representatives involved with recycling and solid waste management. Before it sunsetted in July 1995, the Council proposed several pieces of legislation promoting market development, sponsored the publication of the Georgia Recycling Fact Book and initiated the statewide Buy Recycled campaign. Since that time, DCA has taken the lead role in this campaign by planning several conferences, distributing the What Comes Around...Goes Around TV campaign developed by Turner Broadcasting Company and the National Recycling Coalition, publishing a guidebook for citizens, and developing a display to present the Buy Recycled concept. DCA also assists local governments and others in finding markets for recovered materials by publishing a database of markets in Georgia and other southeastern states and facilitating regional initiatives. In addition, DCA assists in planning the annual Recycling Investment Forum for recycling/composting businesses in search of financing.

Strategies:

1. Facilitate partnerships between local governments and/or private industry and nonprofits to enhance recycling market opportunities: (P2AD, DCA)
Assist in coordination of local Buy Recycled campaign efforts.
Coordinate with other southeastern states to ensure that the policies and programs adopted by one or more states do not negatively affect the availability of markets for recovered materials in Georgia.
2. In cooperation with appropriate partners, support the efforts of recycling businesses: (P2AD, DCA, EPD, GEFA, DITT)
Expand State agency informational resources to enhance recycling market development assistance capabilities.
In cooperation with the Georgia Environmental Partnership, identify manufacturing applications for the use of postconsumer and postindustrial recycled materials.
Annually survey dealer/processors and end user/manufacturers to determine the level of recycling in Georgia.
Annually update the Recycling Markets Directory for Georgia and post on the Internet.

23

Georgia Solid Waste Management Plan: 1997

Objective 10: Lead Agency: To ensure an Efforts to Date: environmentally
sound permitting process for solid
waste handling facilities that does
not adversely Strategies: affect waste reduction efforts.

EPD is the pennitting agency for solid waste handling facilities.
The Comprehensive Solid Waste Management Act, which replaced the 1972 solid waste management law, places greater emphasis on waste reduction and recycling and the upgrading of Georgia's landfills to be more protective of human health and the environment. Although much of the pennitting effort is focused on disposal facilities, EPD pennits other solid waste handling facilities, such as materials recovery facilities.
1. Review the solid waste handling facility pennitting process to ensure that it does not create impediments to waste reduction. (EPD)
2. Evaluate the characteristics and composition of solid waste being disposed of in MSW landfills in Georgia to detennine if, due to toxicity, volume, or handling requirements, State level incentives or management requirements are needed to divert the material from disposal. (EPD)

24
, - - - - - - - - - - - ~-"_'''_''_----_''_----_._-'...

Georgia Solid Waste Management Plan: 1997

Goal 2: To manage solid waste
In an environmentall
y sound manner.

Despite the best efforts of the State and all Georgians, it is anticipated that solid waste management facilities, particularly landfills, will always be needed in the state. In addition to Subtitle D landfills for MSW, Georgia has numerous C&D and inert waste landfills. Design, construction and operation standards vary for these landfills based on their location, the types of materials they receive, and the potential environmental risks associated with their operations.
One 500-ton-per-day mass bum waste-to-energy facility is in operation in Savannah. Additionally, Cobb County has an in-vessel composting facility designed to use mixed solid waste and sewage sludge to produce compost.

Objective 1: To encourage local governments to provide for effective and efficient solid waste disposal
services.

Lead Agency:

As part of its technical assistance responsibilities listed in the Memorandum of Understanding, DCA provides assistance to
local governments on nonenvironmental matters relating to solid waste disposal, primarily in analyzing costs, fees, regionalization, and privatization options.

Efforts to Date: Since passage of the Act in 1990, DCA has assisted local governments in exploring disposal options through workshops, publications, and one-on-one consultation. DCA has afso
facilitated regional efforts and educated local government officials on the costs associated with operating Subtitle D landfills and on establishing enterprise funds.

Strategies:

1. Provide technical assistance to local governments and solid waste management authorities on solid waste disposal: (DCA)
Develop requests for pr0f.0sals, contracts, ordinances, and procedures for disposa .
Analyze costs related to the development of multijurisdictional versus stand-alone landfills.
Develop model intergovernmental agreements for regional solid waste management efforts.
Analyze costs and prepare model budgets and p'rocedures for closure and postclosure care of disposal facIlities.
2. Provide educational and other programs/publications aimed at preventing and/or eliminating illegal dumping and litter. (DCA)
3. Promote and coordinate statewide litter cleanups. (Georgia Peachy Clean Team-DCA, DNR, DOT, Public Safety, GEFA, local KAB affiliates)

25

Georgia Solid Waste Management Plan: 1997

Objective 2: To ensure that all
newly permitted solid waste
facilities meet stringent,
environmentally protective siting,
design, construction, operation, and closure standards.

Lead Agency: EPD has permitting responsibility for solid waste facilities.

Effons to Date:

As a result of more stringent design standards, landfills have decreased in number and improved in quality. Since the inception of Georgia's first solid waste management law in 1972, 175 landfills have been officially closed. An additional 70 landfills that no longer receive wastes are in the process of being closed. In 1990, only eight of Georgia's landfills had protective liners and leachate collection systems. Today, there are 35 operating landfills with liners and leachate collection systems that receive over 65 percent of Georgia's MSW. Most of the 66 operational, unlined landfills have been granted permit modifications that will require them to close on or before July 1, 1998. Both operational and closed landfills are closely monitored to ensure the protection of groundwater and other resources. Of the 181 MSW landfills regulated in 1991, 164 have EPD-approved groundwater monitoring systems, and 177 have EPD-approved methane monitoring programs.

Strategies:

1. Ensure that current siting criteria and design standards are uniformly applied to all new landfills as well as horizontal and vertical expansions of existing landfills. (EPD)
2. Continue to implement a system of quality assurance and construction oversight which will ensure that all permitted facilities are constructed in accordance with the approved design and operation plan and permit. (EPD)
3. Inspect all new sites quarterly and provide timely and appropriate enforcement actions, if required, to ensure compliance with permit conditions. (EPD)
4. Conduct groundwater monitoring audits at no less than ten percent of landfills annually. (EPD)

Objective 3: To ensure that all
existing MSW landfills meet environmentally
protective operation standards or close, and that
vertical and
horizontal expansions of all
existing MSW landfills meet environmentally protective design and construction
standards.

Lead Agency: EPD is responsible for permitting and compliance matters relating to landfill operations.

Effons to Date: EPD issues permits for vertical and horizontal expansions of landfills and oversees compliance with permit requirements. EPD also oversees the certification program for landfill operators to ensure that landfill operators are aware of their
responsibilities and able to fulfill them.

Strategies:

1. Ensure that unlined municipal waste landfills receiving a vertical expansion under O.C.G.A. 12-g-24(e) close by July 1, 1998. (EPD)

2. Ensure that unlined MSW landfills having releases to groundwater or having methane gas exceedance at the property boundary which cannot remediate to regulatory standards close on an enforcement schedule. (EPD)
3. Inspect all existing and expanded sites quarterly and provide timely and appropriate enforcement actions, if required, to ensure compriance with permit conditions. (EPD)

4. Ensure that corrective action is initiated whenever assessment results indicate exceedances of established
standards. (EPD)

26

Georgia Solid Waste Management Plan: 1997

Objective 4: To ensure that on-site industrial
solid waste handling facilities are permitted and
operated in an environmentally sound manner in accordance with regulatory and
statutory standards.

Lead Agency: EPD is responsible for permitting and compliance matters relating to industrial solid waste handling facilities.

Efforts to Date: Industrial solid waste sites have been prioritized based on their potential for degradation of the environment.

Strategies:

1. Continue to require that all industrial waste facilities meet new facility standards or close. (EPD)
2. Ensure that all groundwater monitoring systems have been both properly installed and properly sampled. (EPD)
3. Ensure that all horizontal and vertical expansions of existing on-site private industry landfill sites meet the same stringent standards as are applied to new sites. (EPD)
4. Stimulate the upgrading of all existing facilities by prioritizing and targeting those facilities that have the highest potential to adversely impact human health and the environment for priority enforcement corrective action. (EPD)

Objective 5: To ensure ten years disposal capacity within
the state.

Lead Agency: Efforts to Date:

EPD is responsible for ensuring adequate solid waste disposal capacity in Georgia.
In 1990, Georgia had less than five years of disposal capacity, much of which did not meet the new, more stringent State and federal standards. To ensure adequate capacity, the 1990 law required EPD and local governments to plan for at least ten years of disposal capacity. Georgia now has in excess of 2.1 million yards of disposal capacity, enough to last 14 years at current disposal rates. In addition, 88 percent of this capacity meets new, more environmentally stringent siting, design and construction standards.

Strategies:

1. Continue to track the remaining capacity of existing disposal facilities and identify areas that may face disposal capacity shortfalls. (EPD, DCA)
2. Ensure that all local and multijurisdictional or regional solid waste plans provide for at least ten years of disposal capacity as required by O.C.G.A. 12-8-31.1 (DCA, EPD)

27

Georgia Solid Waste Management Plan: 1997

Objective 6: To identify and
clean up all scrap tire piles in the
state.

Lead Agency: EPD is responsible for the State's scrap tire program.

Efforts to Date:

Approximately six to seven million scrap tires are generated annually in Georgia. In the past many were improperly
discarded. Tire carriers, generators, retailers, and processors of tires are now regulated by EPD. Some 218 scrap tire carrier permits are active in the state, and six scrap tire processors are
In operation, producing tire chips and crumb rubber. Since January 1, 1995, a ban on landfilling whole, shredded or chipped tires has been in effect. More than 10.5 million scrap
tires per year are now being recycled by EPD-approved facilitIes in Georgia. Over 300 tire dumps throughout the state, containing over five million tires have been identified. Eightyfive of those sites, including over four million tires, have been
cleaned up.

Strategies:

1. Renew the State cleanup contract through the issuance of a Request for Proposals. (EPD)
2. Prioritize and process for cleanup of all known tire dumps. (EPD)
3. Locate all remaining scrap tire piles. (EPD)
4. Complete the cleanup of all known tire piles. (EPD)
5. Actively market the use of grants by local governments for the cleanup of small tire dumps and for scrap tire recycling events. (EPD, DCA, GEFA)

Objective 7: To conduct a comprehensive
compliance reporting and
monitoring program of solid
waste handling facilities.

Lead Agency: Efforts to Date:
Strategies:

EPD is the lead agency for compliance reporting and monitoring.
Compliance reporting and monitoring are tracked in EPD' s database along with tonnages of waste disposed at facilities. The database is currently being converted to Oracle.
1. Monitor all solid waste handling facilities to ensure that they are operated in compliance with existing environmental regulations. (EPD)
2. Prioritize, for handling, the worst cases of releases of methane gas and groundwater contamination at MSW landfills. (EPD)
3. Ensure that the funds in the Hazardous Waste Trust Fund are used for the worst cases of environmental degradation. (EPD)
4. As a permit condition, continue to require annual tonnage reports from all MSW disposal permit holders which include the total amount handled and where it was generated. (EPD)

Objective 8: To establish a risk-
based corrective action program for
MSW landfills.

Lead Agency: EPD is the lead agency for corrective actions at landfills.
Efforts to Date: There have been no efforts to date to base corrective actions on the risk they pose.
Strategies: 1. Revise DNR Rule 391-3-4 (groundwater monitoring and corrective action) to incorporate risk-based standards. (EPD)
2. Develop guidance documents to implement revised groundwater and explosive gases rule. (EPD)

28

Georgia Solid Waste Management Plan: 1997

Goal 3: To fulfill its responsibilities under the Act, the State must have adequate funding

To promote

for three reasons: 1. Funding is necessary to carry out the state's activities.

This includes

fiscally sound solid

funding State agencies at a level that enables them to carry out their missions. Most of this funding is provided by the General Assembly. Additionally, funds may be made available through the Environmental Protection Agency,

waste Department of Energy, or other federal agencies to support specific programs.

management

2. Local governments need funds to provide solid waste management programs. The State's role in this area is to encourage local governments to

practices

allocate needed funds, manage them through full cost accounting and/or enterprise funds, and recover their costs through appropriate fee setting.

supported 3.

State funding is needed to help finance local government solid waste

by ongoing reduction and management efforts. These funds should serve as incentives and provide start-up support for local government activities.

planning and In addition to the appropriation from the General Assembly and federal grants,

performance

certain State solid waste management activities are supported by the State Solid Waste Trust Fund. Trust fund monies, which are derived primarily from the

tracking. proceeds of a one-dollar-per-tire fee levied new tires purchased in the state, are used by EPD primarily to clean up scrap tire piles. A portion has been used to

fund various State recycling and waste reduction initiatives, as well as grants to

local governments through GEFA. The scrap tire program is scheduled to sunset

in 2001. Without funds from these or other sources, the State's solid waste

reduction and management program would be severely hampered.

One of the major initiatives of the Act is to require that the State and its subdivisions plan how to reduce and manage solid waste. The State adopted its first solid waste management plan in 1990. This was followed by nearly all the local governments in Georgia developing or being included in a local or regional solid waste management plan. These plans have helped to create a framework for reducing and managing solid waste in Georgia. As exemplified by this document, however, plans need to be updated and amended as conditions and local government roles change. One area of State effort will focus on assisting local governments in updating their plans to ensure that they address these changes and meet State planning requirements.

In addition to sound planning, good solid waste management policies, like other good public policies, are based in large part on reliable information. As previously discussed, the information available today is better than it was when the Act was passed in 1990, but it is still inadequate in some areas. This lack of good data to track the effectiveness of current policies has hindered the State's ability to determine if policies have been effective or if they should be modified. Consequently, greater effort must be placed on collecting accurate information.

29

Georgia Solid Waste Management Plan: 1997

Objective 1: To obtain and effectively utilize funds to illlplement
solid waste management
activities.

Lead Agency: DCA,EPD,P2AD,GEFA
Efforts to Date: EPD has appointed an ad hoc committee to hell? develop legislation for consideration during the 1998 seSSIOn of the Georgia General Assembly.
Strategies: 1. Develop a program whereby communities that adopt best management practices (e.g., variable rate pricing, full cost accounting, recycling and yard trimmings diversion programs, public education, Buy Recycled purchasing policies) receive incentives and recognition for implementing such programs. (DCA, GEFA, EPD)
2. Inform and assist local governments on using State grant programs for solid waste management projects. (DCA, GEFA)
3. Continue to make solid waste management loans to local governments from GEFA's loan repayment revenues. (GEFA)
4. Continue to make recycling and waste reduction grants available to local governments from the State Solid Waste Trust Fund as long as EPD provides these funds. (GEFA)
5. Provide funding priority and an increased funding cap to multijurisdictional and regional loan and grant applications. (GEFA)
6. Seek federal grants for funding solid waste management programs: (P2AD, EPD)
Seek EPA matching funds from the Pollution Prevention Incentives for States grants program to enhance existing pollution prevention activities and implement proposed programs.
Seek EPA solid waste assistance and Jobs Through Recycling grants to enhance solid waste reduction programs offered by P2AD and its partners.
Seek U.S. Department of Energy resources to expand waste reduction assistance, research and technology transfer opportunities.
Seek U.S. Department of Agriculture resources to enhance P2AD's existing pollution prevention programs within the agricultural sector and facilitate the use of agricultural and industrial by-products as agricultural supplements.
Consider recommendations regarding alternative funding mechanisms for presentation to the General Assembly. (DCA, EPD, P2AD)
7. Study other states' efforts with emphasis on funding in the EPA Region 4 states. (EPD, DCA)
8. Develop a program to ensure that all scrap tire fees owed to the State are collected by conducting inspections of retail dealers, issuing notices of violations to those out of compliance, and turning over all uncollected fees to a collection agency within 30 days of failure to respond. (EPD)

30

Georgia Solid Waste Management Plan: 1997

Objective 2: To seek sources
of financing to facilitate applied
research and commercialization
of waste reduction technologies by the private
sector.

Lead Agency: Effons to Date:

P2AD seeks funding to fill gaps where pollution prevention technology is lacking for specific industries.
P2AD partners with the Department of Energy's National Industrial Competitiveness through Energy, Environment, and Economics (NICE3) grant program to finance pollution prevention projects of interest to the Division. P2AD currently has two projects sponsored by this grant program.
The carpet industry uses enormous amounts of water for dyeing carpets. The resulting wastewater which goes to local wastewater treatment facilities has the potential to overload the treatment systems. Realizing this problem, technical staff at P2AD partnered with Georgia Tech scientists to develop methods to remove the dye from the water for reuse. This technology is nearing completion and will soon be available for the industry.
Another initiative involves the volumes of lime-containing sludge produced by the pulp and paper industry that are normally landfilled. P2AD is working with a company in California to test methods to recover the spent lime for reuse and reduce the volumes of sludge to be landfilled.

Strategies:

1. Continue to serve as the state's coordination agency for the Department of Energy's NICE3 grant program. (P2AD)
2. To enhance technology transfer and technology commercialization within the state, seek manufacturers with innovative technologies that reduce waste and energy use for participation in the NICE3 grant program. (P2AD)
3. Actively seek opportunities to facilitate private sector commercialization of waste reduction technologies developed by the Department of Energy and the Department of Defense through Southeastern Environmental Resources Alliance. (P2AD)
4. Assist entrepreneurs in identifying sources of capital for development of recycling infrastructure within the state. (P2AD)

31

Georgia Solid Waste Management Plan: 1997

Objective 3: To ensure that
the reporting requirements of the Act are met.

Lead Agency:

The Act directs local governments to report their solid waste management activities and full cost to DCA annually. In tum, DCA is responsible for annually reporting the status of solid waste management and waste reduction efforts to the Governor and the General Assembly. Additionally, the Memorandum of Understanding gives DCA responsibility for developing a database to track local waste reduction programs and educating the public and local governments in solid waste management activities. The surveys and reports serve as tools in accomplishing these tasks.

Efforts to Date:

The State tracks solid waste management practices primarily in two ways. First, local governments report solid waste management practices and full costs to DCA annually. To ensure accurate reporting, DCA offers workshops and technical assistance on completing the survey and full cost report and applies extensive edit tests to survey results. Second, permitted solid waste facilities report tonnages disposed and origin of wastes (county or municipality) in quarterly reports submitted to EPD. Landfill operators receive training on the reporting requirements in their certification course, and compliance officers offer technical assistance as needed. Though not required by the Act, State agencies have conducted other surveys as needed on topics such as household hazardous waste, yard trimmings management, procurement of recycled products, and landfill management. In 1996, DCA sponsored Georgia's first survey of recycling companies to determine the state's recycling rate and plans to repeat the survey annually.

Strategies: 1. Continue to administer, but refine to improve accuracy, the annual survey of local government solid waste management activities and full cost report. (DCA)
2. Provide technical assistance to local governments and solid waste management authorities in accurately reporting required solid waste management information. (DCA)
3. Based on information provided by local governments, EPD and P2AD, report annually to the Governor and the General Assembly on solid waste management in Georgia. (DCA)
4. Continue to refine reporting requirements for landfill operators. (EPD)
5. Conduct an annual survey of Georgia's recycling companies to determine the level of recycling activity in the state, induding capital investment and employment. (DCA)

32

Georgia Solid Waste Management Plan: 1997

Objective 4: To determine the effectiveness of the State's
solid waste management programs and
activities.

Lead Agency: Efforts to Date:

EPD, P2AD, DCA, GEFA
EPD published a summary of its solid waste accomplishments in its annual report entitled Georgia's Environment 1997. This report presents information on the quality of Georgia's environment and summarizes the status of major programs to protect the environment. The report ends with a discussion of the essential work that remains to be accomplished. P2AD reports biannually on the effectiveness of their programs in reducing pollution and waste in the state. DCA compiles data and reports annually to the Governor and General Assembly on solid waste management in the state. Efforts have been made in conjunction with the annual report to assess the effectiveness of solid waste management programs.

Strategies:

l.In conjunction with the annual solid waste management report, assess progress made by State agencies in implementing the strategies presented in this plan. (DCA, EPD, P2AD, GEFA, GBA, DOAS, DOA)

2.Aggregate and summarize projected and actual waste reduction amounts provided by companies participating in the Pollution Prevention Partners (P3) program. (P2AD)

3.Continually survey P2AD's clients to evaluate implementation of the pollution prevention options provided, to verify waste reduction amounts and cost savings resulting from implementation of the options, and to evaluate their overall satisfaction with P2AD's services. (P2AD)

4.

Maintain a continuous dialogue with local KAB

affiliates, Cooperative Extension agents, and local

government organizations to evaluate ways to improve the

public sector pollution prevention assistance program.

(P2AD)

5.

Conduct a follow-up survey of citizens to evaluate

changes in awareness and behavior concerning their

management of household hazardous waste and used

automotive fluids. (P2AD)

6.

Utilize the Waste Reduction Advisory Council to help

assess State solid waste management activities and make

recommendations for improvement. (DCA)

7.

Develop Internet access to multi-agency integrated

information management system to track status of solid waste

management in Georgia. (DCA, P2AD, EPD, GEFA)

33

Georgia Solid Waste Management Plan: 1997

Objective 5: To encourage
effective solid waste management plaming and implementation by local governments.

Lead Agency: The Act gives DCA oversight responsibility for local government solid waste management planning efforts.

Effons to Date: DCA established Minimum Planning Standards and Procedures for Solid Waste Management which outline the requirements local governments must meet in developing solid waste management plans and submitting them to DCA for approval. Since this process began in 1991, DCA has reviewed and approved plans for all but 20 of the state's 695 cities and countIes. DCA is now gearing up to review the required fiveyear updates to the short term work programs of these plans. Together with the annual solid waste survey and full cost report, these reviews should enable the department to gauge
the extent to which local governments are implementing their plans and pinpoint areas in which they need assistance.

Strategies:

1. Develop and maintain a database to track solid waste management efforts of local governments and solid waste management authorities, monitor consistency of efforts with local solid waste management plans, and integrate findings with annual solid waste survey. (DCA)
2. Review and revise, if necessary, the rules setting forth the criteria for determining whether local governments and solid waste management authorities are meeting the intent of the Act with respect to ensuring adequate disposal capacity and collection capability and developing strategies for waste reduction and public education. (DCA)
3. Review and revise, if necessary, the Minimum Planning Standards and Procedures for Solid Waste Management for local and regional solid waste management planning. (DCA)
4. Provide training and assistance to local governments and regional development centers on interpreting the Minimum Planning Standards and Procedures for Solid Waste Management and the requirements for updating and amending local and regional plans. (DCA)
5. Establish procedures to require local governments to report accomplishments in implementing solid waste management plans and seek assistance from the regional development centers in gathering this information. (DCA)
6. Review and grant final approval to local and regional solid waste management plan amendments and updates. (DCA)

34

Georgia Solid Waste Management Plan: 1997

Objective 6: To encourage local governments to develop
financing mechanisms for their solid waste
management programs.

Lead Agency:

DCA has traditionally provided assistance to local governments on financial matters relating to service delivery, including solid waste management. The Memorandum of Understanding further defines the department's responsibilities as lead agency in this area.

Efforts to Date: DCA has provided technical assistance to local governments
on financing solid waste management systems in a variety of ways, including a series of workshops and publications on enterprise funds, full cost accounting, and capital budgeting. DCA also cosponsored a workshop with EPA on volumebased rates (Pay As You Throw) and has provided follow-up assistance to individual communities on both volume- and weight-based rate setting. The department will continue to encourage local governments to improve their full cost accounting methods and to establish volume-based rates, where feasible, and/or enterprise funds to better tie the costs of handling solid waste to the level of service provided and to encourage waste reduction.

Strategy: 1. Provide assistance to local governments on establishing full
cost accounting, enterprise funds, and variable rate pricing. (DCA)

Objective 7: To encourage local govern-
ments to establish programs targeted at effectively reducing waste and providing efficient solid
waste management
services.

Lead Agency: Efforts to Date:

As part of its technical assistance responsibilities, DCA will take the lead in developing an incentive program for local governments that encourages them to adopt effective solid waste management and waste reduction practices or programs. DCA is also responsible for measuring the effectiveness of such programs in reducing waste and improving the delivery of solid waste management services.
Much of DCA's efforts in dealing with solid waste management at the local level have focused on planning. As local governments move further along in implementing their plans, they often face financial and political hurdles in establishing programs that are effective in meeting their goals. In cooperation with the Intergovernmental Solid Waste Coordinating Council and Waste Reduction Advisory Council, DCA will develop a process whereby local governments will be given recognition and incentives for establishing practices such as volume-based rates, Buy Recycled purchasing policies, recycling and yard trimmings management programs, litter and illegal dumping programs, materials exchanges, and public education programs.

Strategies:

1. Develop a process whereby communities that establish programs and practices to effectively address waste reduction and other solid waste management needs are provided incentives and assistance in implementing those activities. (DCA)

2. Develop a mechanism for monitoring the implementation of waste reduction programs implemented by local governments. (DCA)

35

Georgia Solid Waste Management Plan: 1997

Objective 8: To encourage local
goverllDents to provide for
effective and efficient collection
of solid waste. recyclables and yard trimmings.

Lead Agency: Efforts to Date:

The Memorandum of Understanding names DCA as the
agency responsible for providing technical assistance to local governments in this area.
Since passage of the 1990 State Solid Waste Management Act, DCA has provided assistance to local governments on collection matters primarily through workshops, seminars,
and publications. While continuing its earlier efforts, DCA now takes a more active role in helping individual local governments address specific solid waste issues and problems, including collection of solid waste, recyclables and yard trimmings. DCA staff has assisted numerous cities and counties in exploring collection and recycling options, fee setting (includmg variable rate pricing), and yard trimmings management practices. Future efforts will include workshops and follow-up assistance on collection efficiency. In addition to the strategies specific to this objective, several of the strategies listed under Goal 1, Objective 5 incorporate educational and promotional efforts related to the collection, processing, and transport of recyclables and will contribute to the accomplishment of this objective.

Strategies:

1. Provide technical assistance to local governments and solid waste management authorities on solid waste collection matters: (DCA)
Develop model collection contracts, ordinances, and procedures.
Develop information on transfer stations as well as alternatives to green box collection systems, such as centralized and staffed drop-off centers.
Establish guidelines for full cost accounting, enterprise funds, and variable rate collection fees to better tie the cost of collection to the service provided.
2. Assist local governments in determining and selecting options for curbside or centralized drop-off collection of recyclables. (DCA)
3. Assist local governments in implementing State requirements for separating yard trimmings from solid waste going to landfills and in analyzing collection options. (DCA)
4. Provide loans and grants to establish staffed collection and drop-off centers for waste and recyclables. (GEFA)

36

Georgia Solid Waste Management Plan: 1997

GLOSSARY OF TERMS

All definitions derived from the: Georgia Comprehensive Solid Waste Management Act (O.C.G.A. 12-8-20 et seq.).

Closure means a procedure approved by the division which provides for the cessation of waste receipt at a solid waste disposal site and for the securing of the site in preparation for postclosure.
Commercial means all types of solid waste generated by stores, solid waste offices, restaurants, warehouses, and other nonmanufacturing activities,
excluding residential and industrial wastes.
Composting means the controlled biological decomposition of organic matter into a stable, odor-free humus.
Disposal facility means any facility or location where the final deposition of solid waste occurs and includes but is not limited to landfilling and solid waste thennal treatment technology facilities.
Generator means any person in Georgia or in any other state who creates solid waste.

Industrial means solid waste generated by manufacturing or industrial processes or solid waste operations that is not a hazardous waste regulated under the Georgia
Hazardous Waste Management Act.
Such waste includes, but is not limited to, waste resulting from the following manufacturing processes: Electric power generation; fertilizer and agricultural chemicals; food and related products and byproducts; inorganic chemicals; iron and steel products; leather and leather products; nonferrous metal and foundry products; organic chemicals; plastics and resins; pulp and paper; rubber and miscellaneous plastic products; stone, glass, clay, and concrete products; textiles; transportation equipment; and water treatment. This tenn does not include mining waste or oil and gas waste.
Landfill means an area of land on which or an excavation in which solid waste is placed for pennanent disposal and which is not a land application unit, surface impoundment, injection well, or compost pile.
Leachate means a system at a landfill for collection of the leachate which may collection system percolate through the waste and into the soils surrounding the landfill.
Materials means a solid waste handling facility that provides for the extraction from recovery facility solid waste of recoverable materials, materials suitable for use as a fuel or
soil amendment, or any combination of such materials.

37

Georgia Solid Waste Management Plan: 1997

Municipal solid waste

means any solid waste derived from households, including garbage, trash, and sanitary waste in septic tanks and means solid waste from singlefamily and multifamily residences, hotels and motels, bunkhouses, campgrounds, picnic grounds, and day use recreation areas. The term includes yard trimmings and commercial solid waste but does not include solid waste from mining, agricultural, or silvicultural operations or industrial processes or operations.

Municipal solid waste disposal facility

means any facility or location where the final deposition of any amount of municipal solid waste occurs, whether or not mixed with or including commercial or industrial solid waste, and includes, but is not limited to, municipal solid waste landfills and municipal solid waste thermal treatment technology facilities.

Municipal solid waste
landfill

means a disposal facility where any amount of municipal solid waste, whether or not mixed with or including commercial waste, industrial waste, nonhazardous sludges, or small quantity generator hazardous waste, is disposed of by means of placing an approved cover thereon.

Operator

means the person stationed on the site who is in responsible charge of and has direct supervision of daily field operations of a municipal solid waste disposal facility to ensure that the facility operates in compliance with the permit.

Postclosure means a procedure approved by the division to provide for long-term financial assurance, monitoring, and maintenance of a solid waste disposal
site to protect human health and the environment.

Recovered materials

means those materials which have known use, reuse, or recycling potential; can be feasibly used, reused, or recycled; and have been diverted or removed from the solid waste stream for sale, use, reuse, or recycling, whether or not requiring subsequent separation and processing.

Recovered materials processing facility

means a facility engaged solely in the storage, processing, and resale or reuse of recovered materials. Such term shall not include a solid waste handling facility; provided, however, any solid waste generated by such facility shall be subject to all applicable laws and regulations relating to such solid waste.

Recycling means any process by which materials which would otherwise become solid waste are collected, separated, or processed and reused or returned to use in the form of raw materials or products.

Scrap tire means a tire that is no longer suitable for its original intended purpose because of wear, damage, or defect.

Scrap tire carrier means any person engaged in picking up or transporting scrap tires for the purpose of removal to a scrap tire processor, end user, or disposal facility.

38

Georgia Solid Waste Management Plan: 1997

Solid waste

means any garbage or refuse; sludge from a wastewater treatment plant, water supply treatment plant, or air pollution control facility; and other discarded material including solid, semisolid, or contained gaseous material resulting from industrial, commercial, mining, and agricultural operations and community activities, but does not include recovered materials; solid or dissolved materials in domestic sewage; solid or dissolved materials in irrigation return flows or industrial discharges that are point sources subject to permit under 33 U.S.C. Section 1342; or source, special nuclear, or by-product material as defined by the federal Atomic Energy Act of 1954, as amended (68 Stat. 923).

Solid waste means the storage, collection, transportation, treatment, utilization, handling processing, or disposal of solid waste or any combination of such activities.

Solid waste means any facility the primary purpose of which is the storage, collection, handling facility transportation, treatment, utilization, processing, or disposal, or any
combination thereof, of solid waste.

Tire means a continuous solid or pneumatic rubber covering designed for encircling the wheel of a motor vehicle and which is neither attached to the motor vehicle nor a part of the motor vehicle as original equipment.

Waste to energy facility means a solid waste handling facility that provides for the extraction and utilization of energy from municipal solid waste through a process of combustion.

Yard trimmings means leaves, brush, grass clippings, shrub and tree prunings, discarded Christmas trees, nursery and greenhouse vegetative residuals, and vegetative matter resulting from landscaping development and maintenance other than mining, agricultural, and silvicultural operations.

39

Georgia Solid Waste Management Plan: 1997
Notes
John H. Venable, A Comprehensive State Plan for Solid Waste Management: Georgia, 1971, (Atlanta: Georgia Department of Public Health, 1971), 9. 2 A 500-ton-per-day mass burn waste-to-energy facility was built in the 1980s and is still in operation in Savannah. A similar ban on yard trimmings was enacted in 1993 amendments to the Act. 4 James E. Kundell and Katherine Inman, Georgia Recycling Fact Book (Athens: Carl Vinson Institute of Government, The University of Georgia, 1994). 5 James E. Kundell and Barbara A. Newman, The Effect of Economic Conditions on Meeting the Waste Reduction Goal in Georgia (Atlanta: Georgia Department of Community Affairs, May 1996). 6 Steven L. Levetan, Report to Georgia Department of Community Affairs on Results of the Recycling Rate Survey, October 21,1996.
40

GEORGIA DEPARTMENT OF
COMMUNITY AFFAIRS
60 Executive Park South, NE Atlanta, Georgia 30329-2231
Document Number: 0295
@ Printed on Recycled Paper