Seattle Public Utilities

Disaster Debris Management Plan

Responsible SPU Branch: Utility Systems Management

Effective Date: December 2007

APPROVED BY:

/ JEFF NEUNER /

SPU-SWMD PRINT NAME DATE

DEBRIS MANAGER

SPU DIRECTOR OF PRINT NAME DATE

SECURITY AND EMERGENCY MANAGEMENT

/ BARB GRAFF /

DIRECTOR OF SEATTLE PRINT NAME DATE

OFFICE OF EMERGENCY MANAGEMENT

The Director of Security and Emergency Management has determined the following Disciplines Review/Concurrence is required:

PUBLIC HEALTH PRINT NAME DATE

SEATTLE-KING COUNTY

Periodic review frequency: Annually from the effective date and after key staff changes.

It is the responsibility of the Responsible SPU Branch to certify any changes to the Disaster Debris Management Plan in the table below after the changes have been completed. Additionally, it is the responsibility of the Responsible SPU Branch to certify that all other holders of the Debris Management Plan have the changes incorporated into their version (refer to Appendix G: Plan Distribution)

LIST OF EFFECTIVE PAGES

(Use this sheet to note any pages replaced)

Page Effective Date Initial and Date Comments i

CONTENTS

Standard Industry Definitions and Acronyms ........................................................................ iii Glossary .................................................................................................................................... v

1. INTRODUCTION

1.1 Mission

1.2 Purpose

1.3 Scope of Plan

1.4 Planning Assumptions and Limitations

1.5 Authorities and References

1.6 Relationship to Other Plans and Documents

1.7 Plan Organization

2. SITUATION

2.1 Incident Description

2.2 Hazards

2.3 Debris Generation Potential

2.4 Preparedness

3. CONCEPT OF OPERATIONS

3.1 Direction and Control

3.2 Plan Activation

3.3 Response Strategies

4. ROLES AND RESPONSIBILITIES

5. RECOVERY

5.1 Scenario 1: Low Probability - High Consequence

5.2 Scenario 2: High Probability - Low – Medium Consequence

5.3 Public Information Activities

5.4 After Action Reporting

5.5 FEMA Documentation

6. RESOURCES AND LOGISTICS

6.1 Facilities

6.2 Vendor Coordination

6.3 Contract Activation

7. TRAINING, TESTING, AND EXERCISES

7.1 Training

7.2 Recommended Activities/Training

7.3 Testing

7.4 Testing Schedule

7.5 Exercising

7.6 Exercise Types

7.7 Exercise Schedule

8. PLAN MAINTENANCE

8.1 Assembly and Coordination of Plan

8.2 Plan Development

8.3 Plan Distribution

Appendix A Quick Reference Plan Summary Appendix B Response Worksheets, Checklists and Templates Appendix C Contact List Appendix D Resources and Logistics Appendix E Information Security Appendix F References and Interdependencies Appendix G Plan Distribution Appendix H Revision Checklist Appendix I Financial Request Forms and Documentation ii

Appendix J TDSRS Report Appendix K Preparedness Tracking Forms Appendix L Health and Safety Plan Supplement Appendix M Debris Contracts and Procurement Documents Appendix N Sample Municipal Solid Waste Continuity Plan Worksheets Appendix O Public Assistance Pilot Program Disaster Debris Crosswalk Appendix P Case Study for the December 3, 2007 Flood Event Appendix Q Priority Road Clearance

Table 1-1 Target Capabilities Matrix Table 2-1 ICS Typing Scale Table 2-2 Hazards Matrix Table 2-3 Historical Disaster Data Table 2-4 Scenario 1 - Debris Forecast Analysis Table 2-5 Vegetative Debris Household Generation Table Table 2-6 Scenario 2 - Debris Forecast Analysis Table 3-1 December 14, 2006 Windstorm Data Table 3-2 Sample Cost Analysis –Contractor Activation Table 5-1 TDSRS Regulatory Agencies Table C-1 Contact List Table D-1 Summary of Required Resources Table D-2 Resource Tracking Log Table E-1 Vital Files, Records and Databases Table G-1 Plan Distribution List Table K-1 Training Courses Log Table K-2 Training Attendee Log

Figure 3-1 Initial ICS Structure Figure 3-2 Recovery ICS Structure Figure 3-3 Debris Removal Planning Diagram Figure 4-1 SPU Debris Management Team iii

Standard Industry Definitions and Acronyms

AAR After Action Report

C&D Construction and Demolition

CFR Code of Federal Regulations

COOP Continuity of Operations

DFO Disaster Field Office

DFRN Disaster Federal Register Notice

DM Debris Manager

Debris Management Plan Disaster Debris Management Plan

DOC Department Operations Center

DPAO Deputy Public Assistance Officer

DPD Department of Planning and Development

DRRP Disaster Readiness and Response Plan

DSG Disaster Specific Guidance

EOC Emergency Operations Center

E-Waste Electronic items that contain hazardous materials, specifically cathode ray tubes

ERT Emergency Response Team

ESF #3 Emergency Support Function - Public Works and Engineering

ESF #10 Emergency Support Function - Oil and Hazardous Materials Response

ESF #14 Emergency Support Function - Long-Term Community Recovery

ER Emergency Relief

FCO Federal Coordinating Officer

FEMA Federal Emergency Management Agency

FEMA 323 FEMA Publication 323 – Applicant Handbook

FEMA 325 FEMA Publication 325 – Debris Management Guide

FEMA 327 FEMA Publication 327 – Debris Monitoring Guide

FEMA 329 FEMA Publication 329 – Debris Estimating Field Guide

FHWA Federal Highway Administration

GIS Geographic Information System

GPS Global Positioning System

HHW Household Hazardous Waste

IAP Incident Action Plan

ICS Incident Command System

JFO Joint Field Office

JIC Joint Information Center

MMS Modified Mercalli Scale

MOU Memorandum of Understanding

NEPA National Environmental Policy Act

NHPA National Historic Preservation Act

NIMS National Incident Management System

NOAA National Oceanic and Atmospheric Administration

NRCS National Resources Conservation Service

NRP National Response Plan

OEM City of Seattle Office of Emergency Management

OIG Office of Inspector General

PA Pilot Program Public Assistance Pilot Program

PA Program Public Assistance Grant Program

PAC Public Assistance Coordinator

PAO Public Assistance Officer

PDA Preliminary Damage Assessment iv

PH Public Health

PIO Public Information Officer

PNP Private Non-profit

PO Project Officer

PPDR Private Property Debris Removal

PSCAA Puget Sound Clean Air Agency

PW Project Worksheet

RCRA Resource Conservation and Recovery Act

RFP Request for Proposals

ROE Right-of-Entry

ROW Right-of-Way

SCO State Coordinating Officer

Sit Reps Situation Reports

SHPO State Historic Preservation Officer

SOP Standard Operating Procedures

SPD Seattle Police Department

SPU Seattle Public Utilities

SR State Route

Stafford Act Robert T. Stafford Disaster Relief and Emergency Assistance Act

TDSRS Temporary Debris Storage and Reduction Site

UASI Urban Area Security Initiative

USACE United States Army Corps of Engineers

USDA U.S. Department of Agriculture

USEPA United States Environmental Protection Agency

USM Utility Systems Management

UW University of Washington

WSDOE Washington State Department of Ecology

WSDOT Washington State Department of Transportation v

Glossary

C&D Debris – FEMA 325 defines C&D debris as damaged components of buildings and structures such as lumber and wood, gypsum wallboard, glass, metal, roofing material, tile, carpeting and floor coverings, window coverings, plastic pipe, concrete, fully cured asphalt, heating, ventilation and air conditioning systems and their components, light fixtures, small consumer appliances, equipment, furnishings and fixtures1. The current eligibility criteria are:

• Debris must be located within a designated disaster area and be removed from an eligible applicant’s improved property or right-of-way.

• Debris removal must be the legal responsibility of the applicant.

• Debris must be a result of the major disaster event.

Electronic Waste (E-Waste) – Electronic waste includes household electronic items such as but not limited to televisions, computers, and radios.

Hanging Limb (or Hanger) – A hanger is a hazardous limb that poses significant threat to the public. The current eligibility criteria for hanging limbs according to FEMA 325 are:

• The limb must be greater than 2 inches in diameter.

• The limb is still hanging in a tree and threatening a public-use area.

• The limb is located on improved public property.

Hazardous Stump – A stump is defined as hazardous and eligible for reimbursement if all of the following criteria are met:

• The stump has 50 percent or more of the root-ball exposed.

• The stump is greater than 24 inches in diameter when measured 24 inches from the ground.

• The stump is located on a public right-of-way.

• The stump poses an immediate threat to public health and safety.

Household Hazardous Waste (HHW) – The Resource Conservation and Recovery Act defines hazardous wastes as materials that are ignitable, reactive, toxic or corrosive. HHW is further defined under WAC-173-350-100. Examples of HHW include items such as paints, cleaners, pesticides, etc. Due to the nature of hazardous waste, certified technicians must be used to handle, capture, recycle, reuse and dispose of hazardous waste. The current eligibility criteria for HHW are:

• HHW must be located within a designated disaster area and be removed from an eligible applicant’s improved property or right-of-way.

• HHW removal must be the legal responsibility of the applicant.

• HHW must be a result of the major disaster event.

1 A web address for the FEMA 325 Debris Management Guide has been included in Appendix D.

vi

Improved Property Eligibility – The area of private property that has been maintained, built upon or “improved” by the property owner is considered improved property. Under FEMA guidelines, only debris generated from the maintained or improved areas of private property will be considered eligible debris for removal under the Public Assistance Program (both right-of-way and private property debris removal programs). Land or Lot-clearing in non-maintained areas is considered ineligible and will not be removed by the City or eligible for FEMA reimbursement.

Leaning Tree (or Leaner) – A tree is considered hazardous and defined as a “leaner” when the tree’s present state is caused by a disaster, the tree poses a significant threat to the public and the tree is six inches in diameter or greater measured two feet from the ground. The current eligibility criteria for leaning trees according to FEMA 325 are:

• The tree has more than 50 percent of the crown damaged or destroyed (requires written documentation from an arborist).

• The tree has a split trunk or broken branches that expose the heartwood.

• The tree has fallen or been uprooted within a public use area.

• The tree is leaning at an angle greater than 30 degrees.

Putrescible – Debris that will decompose or rot. Examples include animal carcasses, marine wastes, and other fleshy organic matter.

Race and Social Justice Initiative – SPU supports the Mayor’s Race and Social Justice Initiative (RSJI) as a citywide effort to ensure that the City and SPU are responsive to the needs of all citizens and employees. Integrating race and social justice into all aspects of the City’s work is critical to eliminating institutional racism.

The five main areas of the RSJI are workforce equity, economic equity, public engagement, capacity building and immigrant services. In the context of debris management following an incident, SPU is dedicated to providing adequate levels of service to all of its citizens through its debris removal program. In addition, should the City activate TDSRS’, RJSI will be considered in order to fairly and equally open TDSRS in all areas of the City.

Vegetative Debris – As outlined in FEMA 325, vegetative debris consists of whole trees, tree stumps, tree branches, tree trunks and other leafy material. Vegetative debris will largely consist of mounds of tree limbs and branches piled along the public right-of-way by residents and volunteers. Current eligibility criteria are:

• Debris must be located within a designated disaster area and be removed from an eligible applicant’s improved property or right-of-way.

• Debris removal must be the legal responsibility of the applicant.

• Debris must be a result of the major disaster event.

Vehicles – Any abandoned motorized vehicle such as cars, motorcycles, and lawnmowers.

Vessels – Any abandoned water craft that is a result of a disaster event.

White Goods – As outlined in FEMA 325, white goods are defined as discarded household appliances such as refrigerators, freezers, air conditioners, heat pumps, ovens, ranges, washing machines, clothes dryers and water heaters. White goods can contain ozone-depleting refrigerants, mercury or compressor oils that the federal Clean Air Act prohibits from being released into the atmosphere. The Clean Air Act specifies that only certified technicians can extract refrigerants from white goods before they can be recycled.

Priority vii

The current eligibility criteria for white goods are:

• White goods must be located within a designated disaster area and be removed from an eligible applicant’s improved property or right-of-way.

• White goods removal must be the legal responsibility of the applicant.

• White goods must be a result of the major disaster event.

1. INTRODUCTION

1.1 Mission

Seattle Public Utilities (SPU) recognizes the importance of maintaining public health and safety by planning for efficient removal of debris caused by unanticipated disaster events. In order to achieve this SPU has developed a Debris Management Plan (Debris Management Plan) for the City of Seattle (City) that can be implemented with or without warning to describe the City’s responsibilities, procedures and resources that may be activated following an emergency and/or disaster that over taxes the normal municipal solid waste system. The Debris Management Plan is designed to effectively handle debris following a debris-generating emergency or disaster and to eliminate threats to life, public health and safety; eliminate immediate threats of significant damage to improved public or private property; and ensure economic recovery of the affected community to the benefit of the community at large.

1.2 Purpose

The purpose of the Debris Management Plan is to ensure that SPU and the City have the ability to:

• Address debris generated from residential or public properties in a timely manner following a debris-generating event;

• Ensure that vegetative and other recyclable debris and other prohibited materials such as Hazardous Waste and E waste are diverted from the solid waste stream following a debris-generating event;

• Institute a plan to address debris generated on commercial and private property following a significant debris-generating event; and

• Maintain clear and concise documentation of activities eligible for Federal Emergency Management Agency (FEMA) reimbursement under the Public Assistance Grant Program (PA Program) during response and recovery phases.

1.3 Scope of Plan

The Debris Management Plan provides guidance to SPU to address disaster debris prior to and following a multitude of emergency/disaster scenarios. The Debris Management Plan address response related activities throughout the Concept of Operations Section and recovery related activities in the Recovery Section of the Debris Management Plan. The Debris Management Plan also addresses maintenance and training needs to ensure that the Debris Management Plan is updated and SPU staff understands the action plan.

1.4 Planning Assumptions and Limitations

This section describes the assumptions and qualifications that the Debris Management Plan accounts for. The Debris Management Plan utilizes these assumptions as a guide during the development and activation.

1.4.1 Effects of Weather and Geological Events

Following a debris-generating event caused by weather or geological events, the City will most likely experience widespread power outages, impassable road conditions, strain on land and cellular phone networks, and certain areas may be cut off from the rest of the City due to the liquefaction process. This will be especially expressed if any of the bridges connecting the various sections of the City should fail.

1.4.2 Service Level to Citizens

SPU and the City are obligated to the citizens of Seattle to maintain public health and safety by providing a high level of service to residents of the City. The City and SPU are held accountable by the taxpayer and ratepayer to ensure this service is provided. SPU’s accountability not only to the mayor, but to the public, serves as a guide for the debris management process.

1.4.3 Debris-Generating Incident

The Debris Management Plan has been developed to address two types of debris-generating scenarios, Scenario 1: Low Probability - High Consequence incidents and Scenario 2: High Probability – Low – Medium Consequence incidents. This provides the City, SPU and the Debris Manager (DM) with the flexibility to tailor a response according to the amount of debris generated and the severity of the event. Detailed description of the two scenarios is provided in Section 2.

1.4.4 Resource Availability

During the response phase, both internal and external resources may be severely limited due to unfavorable road conditions and high quantities of disaster debris. These resources may include personnel, heavy-equipment, access to railways, transfer and disposal facilities, and lines of communication.

1.4.5 Activation of ICS, DOC, EOC

Based on the likely debris-generating scenarios to impact the City and the Northwest United States, the City will operate in the Incident Command System (ICS), and activate the Citywide Emergency Operations Center (EOC) and the SPU Departmental Operations Center (DOC).

1.4.6 Transportation

In the event of a natural, geological or man-made debris-generating event, the City and region’s transportation system may be negatively impacted by the destruction of major roadways, rail corridors, debris on roads or in the right-of-way, evacuations of all or certain areas of the population, and structural integrity evaluations of bridges and rail lines.

1.4.7 Regulatory Mandates

Seattle/King County, State of Washington, and Federal regulatory requirements listed in Section

1.5 dictate the manner and method of disaster debris management. Many key activities are regulated by these entities including the disaster declaration process (local, state and federal), Temporary Debris Storage and Reduction Sites (TDSRS), and federal or state cost sharing under the PA Program.

1.4.8 Training

SPU’s DM, Incident Command System (ICS) Team, and Deputy DM will complete the G202 FEMA Debris Management Course. All other designated personnel as listed in Appendix C will become familiar with the Debris Management Plan and be involved in future training and exercises.

1.4.9 Other Agencies

During the phases of the debris management process, interdepartmental coordination, multi-jurisdictional coordination and communication with public and Private Non-profit (PNP) agencies are critical to a timely response and debris removal effort. Coordination is critical to effective and efficient emergency road way clearing, right-of-way debris removal, temporary debris storage and reduction, Federal Emergency Management Agency (FEMA) documentation, and public information activities.

1.4.10 Telecommunications

Citywide and Departmental data and voice communications may be severely limited or unavailable during the response and portions of the recovery period. These limitations may impact coordination with other departments and outside agencies or vendors during initial activation of the Debris Management Plan. SPU maintains its telecommunications plan in the Disaster Readiness and Response Plan (DRRP) Telecommunications Annex.

1.4.11 Access to Data

During long periods when the City is without sufficient power, SPU will rely on some manual processes to aid in the debris management process. In this scenario, SPU may have limited or no access to data sets utilized within GIS programs to perform such tasks as printing current TDSRS maps or previously identified TDSRS, City maintained road lists, or HAZUS-MH debris estimating model. In addition, electronic recordkeeping or timekeeping for documentation purposes, e-mail, and public information mechanisms may be inhibited by loss of power as well.

1.4.12 Disaster Debris Diversion Goals and Recycling

SPU and the City are committed to diverting disaster related debris from entering into the solid waste stream. SPU has established a goal of diverting all clean vegetative debris and significant portions of Construction and Demolition (C&D) debris from the solid waste stream. This goal can be maintained by SPU during a period of disaster debris collection through dedication to a vigorous public information campaign, staff and/or contractor oversight and identification of alternative disposal methods and locations. The process to achieve these goals is described in Section 1.4.16, throughout the recovery phase in Section 4 and Appendix J.

1.4.13 Debris Composition

Classifications of debris described in the Debris Management Plan are limited to those described in FEMA 325. All terms are described in the Glossary section at the beginning of the Debris Management Plan.

• Construction and Demolition (C&D Debris)

• E-Waste

• Hanging Limbs

• Hazardous Stumps

• Household Hazardous Waste

• Leaning Trees

• Putrescible Debris

• Vegetative

• Vessels

• Vehicles

• White Goods

1.4.14 Municipal Solid Waste Collection

The collection of Municipal Solid Waste (MSW) will not be addressed in the Debris Management Plan. While increases to MSW may occur following a disaster, SPU will address MSW through its existing contractors and Continuity of Operations (COOP) Plan (See Appendix N for examples of the MSW Continuity Plan worksheets).

Current contracts for MSW collection, transfer and disposal require service continuity in the event of unplanned events. Although solid waste services may be discontinued during the response phase of a major disaster these services will be provided, potentially at a reduced level during the recovery phase.

Collection, transfer and disposal of MSW is critical to protect health and public safety within the City of Seattle. The City will use all available MSW resources to provide the maximum achievable level of MSW service during the recovery phase of a major disaster.

During lower level events that do not require activation of the TSDRS, normal MSW resources may be utilized to handle additional materials (i.e. vegetative debris) during the recovery period.

1.4.15 Impact to Capacity at Local Landfills

Vegetative and C&D debris generated from private companies, reconstruction debris, land clearing, and other activities not in association with the City’s debris management program may be brought to local transfer stations and composting facilities for disposal/recycling. These activities along with the limited throughput capacity currently maintained by these facilities may significantly impair the City’s ability to utilize these sites; therefore the City will rely on TDSRS to stage, reduce and haul-out debris.

1.4.16 Debris Diversion and Recycling

The City, in its commitment to diverting disaster debris from the solid waste stream, will identify in the Debris Management Plan as well as following a debris-generating event, options for recycling or beneficially utilizing disaster debris, such as Cedar Grove Composting, Renton Concrete, and Seattle Iron and Metal.

1.4.17 Anticipated Reduction Methods

Should TDSRS be operational following any debris-generating event, SPU plans to reduce vegetative and C&D debris through grinding or chipping and sorting. Due to the location of these sites and the population density of the City, other reduction methods, such as open burning or air curtain incineration are not feasible within city limits.

1.4.18 Ability to Address Commercial Properties and Businesses

SPU recognizes that a high-volume debris-generating incident may affect businesses and commercial property owners. Based upon the severity of the incident, there may be a need to assist these individuals with debris removal. SPU understands that this activity may not be eligible for reimbursement. However, in an effort to contribute to the economic recovery of businesses, the City may engage its contractor in this activity on a case-by-case basis. A system to address commercial needs has been described in the Debris Management Plan through the Private Property Debris Removal Program.

SPU and the City’s first priority will be to address residential debris within the City of Seattle and commercial debris will be handled as a secondary priority.

1.4.19 Interlocal Agreements

Weather or geological debris-generating scenarios will likely impact the entire Tri-County Region (King, Pierce, and Snohomish Counties). To foster cooperation and multi-jurisdictional coordination throughout the region, SPU will work to develop interlocal agreements with public and private partners. These may include, but are not limited to TDSRS, haul-out of debris, and final disposal options. The term Interlocal Agreements shall be referred to in this document as cooperative agreements that may be activated following a disaster including: Memorandums of Understanding, Mutual Aid Agreements, and Interlocal Agreements. All copies of interlocal agreements will be included in Appendix F – References and Interdependencies.

1.5 Authorities and References

Local, state, and federal agencies are designated to prepare emergency management documentation outlining procedures of each agency, emergency declarations, and various economic policies prior to an emergency. The references provided below outline the authority and duty of each agency from the local City level through the federal government.

1.5.1 City of Seattle

Seattle Municipal Code (SMC) outlines the procedures under an emergency declaration. The following sections of SMC are deemed relevant to disaster recovery and debris removal activities.

This section has been divided in three subsections: Command and Control, Solid Waste Operations, and Private Property Debris Removal.

1.5.1.1 Command and Control

SMC 10.02.050 gives the City the authority to conduct emergency planning and create emergency management documents in accordance with the Revised Code of Washington (RCW). SMC

10.02.060 describes the Disaster Management Committee made up of agencies slated to work in conjunction with the City in the case of an emergency, including the economic development department, fire, executive administration, public utilities, transportation, public health, legal, parks and recreation, etc. The Disaster Management Committee is mandated to meet at least quarterly and act as a review committee to review and make recommendations to update the City’s disaster response plan. Part of the review includes planning and coordination with local organizations and to prepare and recommend plans for mutual aid agreements with State and other political subdivisions.

SMC 3.02.050 gives the City authority to immediately adopt, amend, or repeal a rule for the “preservation of the public peace, health, or safety.” The action becomes official when filed with the City Clerk.

SMC 10.02.010 gives the mayor the authority to declare an emergency in order to protect the public’s health and safety. The mayor has the authority under SMC 10.02.020 to issue certain orders which can include curfews, cessation of sale of alcohol and firearms, closing of public places, requesting federal and/or State assistance to combat the emergency, direction of healthcare facilities, and cooperation with utility management. Utility management cooperation includes shutting off, restoration, and operation of service in accordance with priorities required to combat the emergency. Once the governor has declared a disaster, the mayor can “command the service and equipment of as many citizens as the mayor considers necessary in the light of the disaster proclaimed” under SMC 10.02.040 in conjunction with RCW 38.52. The specific clauses in this rule which may pertain to debris removal include M and O which cover the operation of utility services and “such other orders” necessary for the protection of life and property.

During the declared emergency, the mayor has the authority to authorize purchases of needed equipment (SMC 10.02.070) and approve contracts as needed to combat the emergency (SMC 10.02.030). Under SMC 10.02.030, the mayor is also authorized to approve “payment for commandeered property used during the disaster response activities.” The purchases may be made by a City Director or other City officers or employees authorized to do so under SMC 10.60.114 but expenditures over $10,000 must have a written contract.

1.5.1.2 Solid Waste Operations and Permitting

Solid waste disposal is covered in SMC 21.36. Under SMC 21.36.018, the Director of SPU is authorized to direct solid waste delivery to interim solid waste handling locations. SMC 21.36.095 gives the City the right to establish salvage operations for the disposition of solid waste. SMC

22.206.425 states that it is unlawful to accumulate solid waste on any property which amounts to an excess of one cubic yard.

RCW 70.95, Solid Waste Management – Reduction and Recycling, provides the overarching framework for establishing a comprehensive statewide program for solid waste handling. The statute addresses permitting of solid waste handling facilities and authorizes counties to prepare comprehensive solid waste management plans. The 1989 Waste Not Washington Act (ESHB 1671) revisions to RCW 70.95 established waste reduction and recycling as the priority methods of managing waste in the state.

There are two key implementing regulations for RCW 70.95 that address performance standards for solid waste facilities. Municipal solid waste landfills are regulated under Chapter 173-351 WAC, Criteria for Municipal Solid Waste Landfills. Chapter 173-350 WAC, Solid Waste Handling Standards replaces and expands upon Chapter 173-304 WAC, Minimum Functional Standards, and applies to energy recovery and incineration facilities, limited purpose landfills, inert landfills, composting facilities, land application sites, and intermediate solid waste handling facilities (e.g., transfer stations, drop boxes, piles for treatment and storage, surface impoundments and tanks, waste tire storage facilities, and moderate risk waste facilities). Chapter 173-350 WAC establishes reduction and recycling as priorities in handling solid waste over landfilling and incineration.

There are no state provisions in the regulations for addressing interim staging sites or temporary storage sites for sorting disaster debris. When developing a plan for identifying and permitting temporary disaster debris sites, the counties should rely on guidance for meeting solid waste standards specified in Chapter 173-350 WAC, as well as the local health department and district regulations

Title 10 governs aspects of solid waste handling, collection, transporting, processing, treatment, utilization, and final disposal of all solid waste generated within King County. It also includes issuance of permits and enforcement (Section 10.02.020). Title 10 adopts Chapter 173-350 WAC as performance standards for solid waste facilities.

Title 10 does not specifically address disaster debris or regulatory requirements and criteria for TDSR sites. As such, a formal approval by Public Health Seattle & King County is not feasible at this time. However, under the general provisions of protecting and preserving public health in the context of solid waste emergency operations, proposed TDSR sites must be reviewed and authorized by public health as part of the planning process and before being activated. This includes all phases of TDSR site selection, activation, operation, and closure as recognized in the King County Disaster Debris Operating Plan (see next section for a description of this plan). James Henrickson, Public Health Seattle-King County reviewed and approved the City of Seattle Disaster Debris Plan. In addition Public Health Seattle-King County set specific operating conditions for the Temporary Debris Storage and Reduction Sites in Appendix J to the city plan.

25.05.880 Emergencies

The SEPA Ordinance (State Environmental Policy Act)

Actions that must be undertaken immediately or within a time too short to allow full compliance with this chapter, to avoid an imminent threat to the public health or safety, to prevent an imminent danger to public or private property or to prevent an imminent threat if environmental degradation, shall be exempt. Agencies may specify these emergency actions in their procedures. (Ord.

114057 § 1(part), 1988: Ord. 111866 § 1(part), 1984.)

1.5.1.3 Private Property Debris Removal

SMC 22.206.310 covers the cleanup of solid waste on private property. The City is authorized to enter the private property and clean up the waste once it has been declared a nuisance and menace to public health and safety and a civil penalty has been imposed pursuant to SMC 22.206.280. SMC 22.206.310 discusses the abatement of the nuisance. The violations of SMC 22.206 which create a fire hazard or menace to the public health and safety are declared public nuisances and the Director is authorized via City Council resolution, to go onto the private property in order to abate the nuisance. SMC 10.36.030 also covers nuisance abatement and that upon a court order the nuisance can be condemned and destroyed.

SMC 22.208.010 of the Housing Code covers the conditions to declare a building uninhabitable.

It states that the public is endangered and a building is unfit for human habitation if the conditions create a “health, fire, or safety hazard” which can include the accumulation of debris, waste, vegetation.

Emergency orders can be issued if any building or housing unit poses an immediate threat to public health and safety to restore the property to a condition of safety via SMC 22.206.260. If the order is not met, the building or housing unit will be declared a nuisance and the Director is authorized to abate. SMC 23.90.012 also covers emergency orders regarding the land use code.

The emergency order can be issued to stop and correct any use or activity causing the threat to the public health. SMC 23.90.004 states that police, fire, health or other appropriate City departments can be recruited to assist the enforcement. The City can, with permission from the owner or a court order, enter at reasonable time to perform the duties specified in the land use code which will benefit the health and safety of the general public.

1.5.2 State of Washington

The Revised Code of Washington (RCW) provides information on emergency declarations and gubernatorial authority. RWC 38.52.020 gives the State authority to create planning documents to cover emergency response actions. This RCW also discusses the authority to create local organizations for emergency management within the “political subdivisions” of the State.

RCW 34.05 covers emergency declarations and 43.06.220 outlines the governor’s powers during an emergency.

1.5.3 Federal Emergency Management Agency (FEMA)

Under the current Federal system FEMA coordinates the response and recovery efforts for Presidential Disaster Declarations, including reimbursement to local government for debris removal costs. The following documents provide guidance to local governments during disaster planning and response, and recovery.

1.5.3.1 FEMA Publication 322 – Public Assistance Guide

The Public Assistance Guide provides a general overview of the FEMA PA Program protocol immediately following a disaster. The PA program provides the basis for the federal/local cost sharing program. This document specifically describes what entities are eligible for reimbursement under the PA Program, what documentation is necessary to ensure reimbursement, and any special considerations that local governments should be aware of to maximize eligible activities.

1.5.3.2 FEMA Publication 323 – Applicant Handbook

The Applicant Handbook (FEMA 323) is the official “how to” for local governments who are considering applying for reimbursement following a disaster through the PA Program. This Handbook should be used in conjunction with the Debris Management Plan immediately following a disaster.

The Handbook provides the rules, procedures, and sample documents that local governments need as the “applicant” to FEMA. The publication is formatted so that the applicant has a step-by-step guide for each phase of the reimbursement process including what information is critical to ensure reimbursement.

1.5.3.3 FEMA Publication 325 – Debris Management Guide

The Debris Management Guide (FEMA 325) is the publication specifically dedicated to the rules, regulations, and policies associated with the debris cleanup process. Familiarity with this publication and any revisions, can aid a local government to limit the amount of non-reimbursable expenses. The Debris Management Guide provides the framework for the debris removal process authorized by the Robert T. Stafford Disaster Relief and Emergency Assistance Act (Stafford Act) including:

• Elimination of immediate threats to lives, public health and safety;

• Elimination of immediate threats of significant damage to improved public or private property; or

• Ensuring the economic recovery of the affected community to the benefit of the community-at-large.

1.5.3.4 FEMA Publication 327 – Debris Monitoring Guide

The Debris Monitoring Guide (FEMA 327) is the publication specifically dedicated to providing guidance for debris monitoring. FEMA 327 specifically provides guidance on the following:

• Eligibility requirements

• Debris monitoring by debris types

• Force account versus contract monitoring

• Debris monitoring contract provisions and methods

1.5.3.5 FEMA Publication 329 – Debris Estimating Field Guide

The Debris Estimating Field Guide (FEMA 329) is the publication specifically dedicated to providing guidance for debris estimating considerations and methods.

1.5.3.6 Disaster Specific Guidance

A Disaster Specific Guidance (DSG) is a policy statement issued in response to a specific post-event situation or need in a State or Region. Each DSG is issued a number and is historically referred to along with its numerical identification.

These guidance documents typically relate to the authorization of private property cleanup, debris removal, and payment of stumps, or notification of large projects (over the small project threshold). Staff should be aware of any new DSG issued by FEMA following an event.

1.5.4 Robert T. Stafford Disaster Relief and Emergency Assistance Act

The Robert T. Stafford Disaster Relief and Emergency Assistance Act (Stafford Act) provides the authorization of the PA Program. The fundamental provisions of this act are as follows:

• Assigns FEMA the authority to administer federal disaster assistance;

• Defines the extent of coverage and eligibility criteria of the major disaster assistance programs;

• Authorizes grants to the States; and

• Defines the minimum federal cost-sharing levels.

Discussions of debris removal within the Stafford Act are located in sections 403 and 407.

1.5.5 Code of Federal Regulations - Title 44

The Code of Federal Regulations – Title 44 Emergency Management and Assistance (44 CFR) provide procedural requirements for the PA Program operations. These regulations are designed to implement a statute based upon FEMA’s interpretation of the Stafford Act. They govern the PA Program and outline program procedures, eligibility, and funding. Discussions around debris removal are found throughout the 44 CFR.

1.5.6 Code of Federal Regulations – Title 36

The Code of Federal Regulations – Title 36 Parks, Forests and Public Property (36 CFR) provides procedures guidance for the use of public lands during an emergency or following a disaster when federal funds or grants are authorized for the recovery effort. These regulations, located in Chapter 8 – Advisory Council on Historic Preservation, are described in Section 106 process.

The Section 106 process requires the local government (applicant) to contact the Department of Archeology & Historic Preservation (DAHP) State Historical Preservation Office (SHPO) to initiate this process. This section applies only to undertakings that will be implemented within 30 days after the disaster or emergency has been formally declared by the appropriate authority.

1.6 Relationship to Other Plans and Documents

This section describes how the Debris Management Plan relates to other City, King County, Tri- County Debris Management Plan, State of Washington, and federal documents and plans.

1.6.1 Relationship to City of Seattle Plans

The Debris Management Plan is designed to support the City DRRP, SPU DRRP and the SPU COOP Plans. Currently the Debris Management Plan serves as a stand-alone plan but may be adopted as an Annex to the City DRRP at a later time.

1.6.2 Relationship to King County Plans

King County maintains a separate debris management plan for unincorporated areas within the County. The King County plan identifies a debris management strategy and TDSRS that will be managed by the County in the event of a debris-generating event. Coordination between the City and County is likely to occur on many levels including at the Debris Manager level as well as executive or elected official level.

1.6.3 Relationship to Tri-County Debris Management Plan

The Tri-County Regional Strategic Debris Management Plan is located at.

http://www.kingcounty.gov/debrisplan

1.6.4 Relationship to State of Washington Plans

The State of Washington maintains emergency operating plans for state agencies to ensure the public heath and safety needs of residents are met. The State assumes responsibility for debris management activities along State right-of-way, State parks and facilities. Local public facilities and maintained roadways are responsibility of the local government. At this time, the State of Washington has not established a Statewide Debris Management Plan.

1.6.5 Relationship to National Response Plan

Homeland Security Directive - #5 requires that state and local governments be in compliance with the National Incident Management System (NIMS) as a condition of federal preparedness assistance. The Debris Management Plan and its organizational structure is designed around NIMS to establish a framework for coordination among federal, state, local, tribal, nongovernmental, and private-sector organizations for debris management activities.

The Debris Management Plan supports the Universal Task List (UTL) and several of the items on the Target Capabilities List (TCL) as instituted by Department of Homeland Security (DHS) in the National Response Plan (NRP) as shown in Table 1-1.

Table 1-1 Target Capabilities Matrix

Category Capabilities

Common Capabilities

Planning

Communications

Community Preparedness and Participation

Risk Management

Prevention Mission Capabilities Indicators and Warning

Respond Mission Capabilities

On-Site Incident Management

Emergency Operations Center Management

Critical Resource Logistics and Distribution

Responder Safety and Health

Emergency Public Safety and Security

Environmental Health

Emergency Public Information and Warning

Recovery Mission Capabilities Economic and Community Recovery

1.6.6 Relationship to Emergency Support Function (ESF)/Annex

The Debris Management Plan supports both ESF #3 – Public Works and Engineering and ESF #14 – Long Term Community Recovery by providing a framework and concept of operations for residential and private property debris removal. Based on the FEMA 325 guidance2, the goal of eligible work associated with debris removal includes:

• Eliminate immediate threats to life, public health and safety; or

• Eliminate immediate threat of significant damage to improved public or private property;

or

• Ensure the economic recovery of the affected community to the benefit of the community-at-large; or

• Mitigate the risk of life and property by removing substantially damaged structures and associated appurtenances as needed to convert property acquired through a FEMA hazard mitigation program to uses compatible with open space, recreation, or wetlands management practices.

1.7 Plan Organization

This section of the Debris Management Plan provides a general overview of the seven (7) sections, appendices and annexes to the Debris Management Plan.

2 FEMA 325, Chapter 1, Page 6. A web address for the FEMA 325 – Debris Management Guide has been included in Appendix D.

• Introduction – This section provides general information about the Debris Management Plan, key assumptions and constraints that guide the Debris Management Plan, as well as the relationship with other relevant plans.

• Situation – This section is comprised of four subsets of information that provide details regarding incident description and potential debris-generating events/hazards for the region.

• Concept of Operations – This section is dedicated to the various response functions, plan activation assumptions and activities conducted by SPU related to disaster debris management. The duration of the response phase typically ranges from immediately following the incident through the damage assessment and emergency road clearing activities (1-2 weeks).

• Recovery – This section describes the numerous activities associated with debris removal, reduction, haul out and disposal. In the debris management process, the recovery section is often the most critical and may span from the conclusion of the debris response functions through the duration of debris management activities.

• Logistics and Resources – This section will detail the resources require to implement the Debris Management Plan throughout the response and recovery phases for the most severe scenario the Debris Management Plan is designed to manage. This section will also reference mutual aid agreements, liability provisions and policies for reassigning public employees, and soliciting and using volunteers.

• Training, Testing, and Exercises – This section documents the testing, training, and exercising for essential staff that are critical components to ensure that the action plan is effective and efficiently activated.

• Plan Maintenance – This section describes a maintenance schedule, review needs for internal and external changes, and a review team.

• Appendices – The Debris Management Plan includes 17 appendices that contain critical information necessary for activation and maintenance:

• Appendix A – Quick Reference Plan Summary, a three-page summary of key components of the Debris Management Plan

• Appendix B – Response Worksheets, Checklists and Templates

• Appendix C – Contact Lists, including SPU, Internal Agencies, External Organization and vendor’s information

• Appendix D – Resources and Logistics

• Appendix E – Information Security

• Appendix F – References and Interdependencies to other plans and interlocal agreements. Copies of all debris management related interlocal agreements will be kept in this appendix

• Appendix G – Plan Distribution, details of those departments and individuals who maintain copies of the Debris Management Plan

• Appendix H – Revision Checklist, revisions to the Debris Management Plan will be documented in this area

• Appendix I – Financial Request Forms, documents and forms required to ensure that activities are properly documented and that the City mitigates their risk of non-reimbursement

• Appendix J – TDSRS Report, details the methodology for the review and assessment of the potential temporary debris storage and reduction sites for the City. This report includes a citywide map, TDSRS information matrix and individual maps of each site

• Appendix K – Preparedness Tracking Forms

• Appendix L – Health and Safety Plan Supplement

• Appendix M – Debris Contracts and Procurement Documents

• Appendix N – Municipal Solid Waste Continuity Plan Worksheets

• Appendix O – Public Assistance Pilot Program Disaster Debris Crosswalk

• Appendix P - Case Study for the December 3, 2007 Flood Event

• Appendix Q – Priority Road Clearance

2. SITUATION

2.1 Incident Description

The multi-hazard Debris Management Plan is designed to address numerous debris-generating incident scenarios. For the purposes of the Debris Management Plan, two scenarios have been developed based on maximum impact, ability to respond, and frequency of the incident.

Table 2-1 ICS Typing Scale3

INCIDENT TYPES

Incidents may be typed in order to make decisions about resource requirements.

Incident types are based on the following five levels of complexity.

Type 1 ▪ This type of incident is the most complex, requiring national resources to safely and effectively manage and operate.

▪ All command and general staff positions are activated.

▪ Operations personnel often exceed 500 per operational period and total personnel will usually exceed 1,000.

▪ Branches need to be established.

▪ The agency administrator will have briefings, and ensure that the complexity analysis and delegation of authority are updated.

▪ Use of resource advisors at the incident base is recommended.

▪ There is a high impact on the local jurisdiction, requiring additional staff for office administrative and support functions.

Type 2 ▪ This type of incident extends beyond the capabilities for local control and is expected to go into multiple operational periods. A type 2 incident may require the response of resources out of area, including regional and/or national resources, to effectively manage the operations, command, and general staffing.

▪ Most or all of the command and general staff positions are filled.

▪ A written Incident Action Plan (IAP) is required for each operational period.

▪ Many of the functional units are needed and staffed.

▪ Operations personnel normally do not exceed 200 per operational period and total incident personnel do not exceed 500

(guidelines only).

▪ The agency administrator is responsible for the incident complexity analysis, agency administrator briefings, and the written delegation of authority.

Type 3 ▪ When capabilities exceed initial attack, the appropriate ICS positions should be added to match the complexity of the incident.

▪ Some or all of the command and general staff positions may be activated, as well as division/group supervisor and/or unit leader level positions.

▪ A type 3 incident management team…