Ord 02-416
ORDINANCE NO. 02-416
AN ORDINANCE OF THE CITY COUNCIL OF THE CITY
OF FEDERAL WAY, WASHINGTON, RELATING TO
SOLID WASTE MANAGEMENT, ADOPTING KING.
COUNTY'S WASTE MANAGEMENT PLAN. (AMENDS
ORDINANCES 90-73 AND 93-197).
WHEREAS, RCW 70.95.080 requires that each city develop its own comprehensive solid
waste management plan, enter into an agreement to prepare a joint city/county plan or authorize
the County to prepare the plan for the City's solid waste management; and
WHEREAS, in 1990 the City of Federal Way and King County entered into a Solid
Waste Interiocal Agreement whereby the parties agreed that they shall cooperate in the County's
development ofa Comprehensive Solid Waste Management Plan; and
WHEREAS, in 1990 King County prepared and proposed a 1989 Comprehensive Solid
Waste Management Plan and submitted it to the City for approval and adoption; and
WHEREAS, the City, by its Ordinance 90-73, had approved and adopted the 1989 King
County Comprehensive Solid Waste Management Plan with addenda; and
WHEREAS, in 1993 King County prepared and proposed a 1992 Comprehensive Solid
Waste Management Plan and submitted it to the City for approval and adoption; and
WHEREAS, the City, by its Ordinance 93-197, approved and adopted the 1992 King
County Comprehensive Solid Waste Management Plan with addenda; and
WHEREAS, in 2001, King County prepared and proposed a 2001 Comprehensive Solid
Waste Management Plan ("Plan") and submitted it to the City for approval and adoption; and,
ORD. # 02-416
,PAGE I
ORIGINAL
WHEREAS, pursuant to WAC 197-11-630, the City has published its intention to adopt
by reference the Plan's corresponding King County Environmental Impact Statement (EIS) on
satisfaetion of its environmental review for the Plan; and
WHEREAS, Section 10 of Chapter 431 of the Laws of the State of Washington, 1989
Regular Session, amending RCW 70.95. I 60, authorizes the City to determine that King County
shall not exercise any powers regarding the type of service for any aspect of solid waste handling
in the City of Federal Way; and
WHEREAS, the City Council having considered the Final 2001 Plan;
NOW, THEREFORE,
THE CITY COUNCIL OF THE CITY OF FEDERAL WAY, WASHINGTON DOES
HEREBY ORDAIN AS FOLLOWS:
Section 1.
Adoption of King Countv EIS. The City Council of the City of Federal
Way hereby adopts by reference the Environmental Impact Statement prepared by King County
for the Plan, pursuant to WAC 197-11-630, as full satisfaction of the City's required
environmental review.
Section 2.
Adoption of Plan. The City Council of the City of Federal Way hereby
adopts the Final 2001 Comprehensive Solid Waste Management Plan with addenda, incorporated
herein by this reference.
Section 3.
City Retains Service Level Authority. Pursuant to RCW 70.95.160, the
City of Federal Way hereby determines that King County shall not exercise any powers
regarding the levels and types of serviee for any aspect of solid waste handling in the City of
Federal Way. King County regulations and ordinances regarding levels and types of service for
ORD. # 02-416
,PAGE 2
any aspect of solid waste handling shall not apply within the corporate limits of the City as may
now or hereafter be determined by the City.
Section 4.
City Retains Rate Setting Authority. The City shall continue to determine
solid waste and recycling collection rates.
Section 5.
Severability. The provisions of this ordinance are declared separate and
seV'erable. The invalidity of any clause, sentence, paragraph, subdivision, section, or portion of
this ordinance or the invalidity of the application thereof to any person or circumstance, shall not
affect the validity of the remainder of the ordinance, or the validity of its application to other
persons or circumstances.
Section 6.
Ratification. Any act consistent with the authority and prior to the
effective date of this ordinance is hereby ratified and affirmed.
Section 7.
Effective Date. This ordinance shall be effective five (5) days after
passage and publication as provided by law.
PASSED by the City Council of the City of Federal Way this 19th clay of
Karch
,2002.
CITY OF FEDERAL WAY
~ 4I~ - /ø ~boc~(d6l
MAYOR, JEANNE BURBIDGE
ATTEST:
?2¡r ~ ~
cn CLERK,. 'ST GREEN
ORD. # 02-416
,PAGE 3
APPROVED AS TO FORM:
~~
CITY ATTORNEY, ROBERT C. STERBANK
FILED WITH THE CITY CLERK:
PASSED BY THE CITY COUNCIL:
PUBLISHED:
EFFECTIVE DATE:
ORDINANCE NO. 02-416
k:\fedc\2002Isw&r comp plan to adopt ordinance.doc
ORD. # 02-416
, PAGE 4
2/27/02
3/19/02
3/23/02
3/28/02
Plan Summary
The Final 2001 Comprehensive Solid Waste Management Plan presents King
County's strategy for managing the solid waste system's garbage and recycling ser-
vices over the next 20 years. It will guide us through a time of many significant changes-
induding closure of the last active landfill in King County.
The area that this Plan covers includes all of King County's incorporated and unin-
corporated areas, except for the City of Seattle, which has its own solid waste system,
and Milton, which is part of Pierce County's system.
In mapping out a plan for the solid waste system, several fundamental objectives
emerged:
. Keep pace with the region's population and economic growth
. Continue to provide the vital services that residents have come to expect
. Monitor industry changes and advances to keep the system as efficient and
effective as possible
. Continue to be a steward of the environment and a leader in resource conservation
. Control system costs and continue to keep disposal rates stable and low
These fundamental objectives underlie the planning for each facet of the regional
solid waste system - from promotion of waste reduction and recycling to transfer sta-
tion improvements to planning for long-term disposal. The common theme nmning
through the Plan is to build upon the system's existing infrastructure and past successes
to shape our future.
Chapter 1 . Plan Summary
FINAL King County Comp"hensive Solid Waste Management Plan' 2001
1-1
Chapter l' Plan Summary
This fina12001 Plan is the culmination of a system-wide planning effort. . The rec-
ommendations presented throughout its pages were developed with input from local
government leaders, private industry representatives, and King County citizens. The
County will continue to work closely with these planning participants as the recom-
mendations in this Plan arc implemented and the region's future unfolds.
Guide to the Plan
The purpose of a Comprehensive Solid Waste Management Plan is to provide the
overarehing goals and policies that will guide solid waste and recycling programs and
services in the system. While it presents a framework for
the future, it is not intended to be a work plan for specific
policies, rates, programs, or capital improvements. Imple-
mentation of specific recommendations will be accom-
plished through the County and cities' annual work plan
processes.
This 200 I Plan is organized to guide the reader through
the planning process from demographic forecasting to the
assessment of garbage disposal fees. Chapter 2 sets the
stage for the reader by providing a brief look at the history
of solid waste management in the county, the process for
developing the Plan, and the governing policies for the
solid waste management system. Chapter 3 looks at pro-
jected population and employment growth and how that
growth and other factors are used to develop waste generation, recycling, and disposal
forecasts. Chapters 4 through 10 discuss the various facets of the solid waste system,
including:
. Chapter 4 - Waste Reduction, Recycling, and Market Development
. Chapter 5 - Collection of Recyclables and Mixed Municipal Solid Waste
(MMSW or Garbage)
. Chapter 6 - The Regional Transfer System
. Chapter 7 - Disposal ofMMSW
. Chapter 8 - Construction, Demolition, and Landclearing Debris (CDL),
and Special Wastes
. Chapter 9 - Enforcement
. Chapter 10- Solid Waste System Financing and Rates
...
The Plan presents
recommendations for
all facets of the regional
sotid waste system
These chapters present the background, governing policies and current issues asso-
ciated with each element of the system, followed by recommendations for the 20-year
planning period. The recommendations might propose specific actions, suggest a con-
tinuation of current practice, or identify the need for further dialogue or additional
studies. For ease of locating recommendations within each chapter, they Þ.
arc noted with the symbol to the right. A brief summary of the key recom- ~
mendations from each chapter is presented below.
1-2
FINAL King County Comp,.henslve Solid Waste Management Plan. 2001
Chapter 4 -Waste Reduction, Recycling,
and Market Development
With the increases in population and employment projccted for King County in thc
upcoming years, it is critical to continue our focus on waste reduction and recycling as
the highcst priorities for managing solid waste. The recommendations in Chapter 4
build on existing waste reduction and recycling programs by expanding educational
and tcchnical assistance in our communities, businesses, and schools, and developing
strong partnerships with cities and public agencies to coordinate our mutual efforts in
this area.
The Plan describes measurable goals and targets for our waste reduction and recy-
cling efforts. It also reaffinns the policy that waste reduction and recycling programs
must be cost effective as well as aggressive.
One element of the Plan's recommendation is to expand recycling and reuse oppor-
tunities at the County's transfer stations and pursue other venues for collection, such as
special community events. In addition, more commodities are being looked at for their
recycling potential in the marketplace, such as certain plastics, textiles, construction
debris, food wastes, and others. Regional markets and technologies are routinely stud-
ied to assess the market potential for an array of recycled and reused products. The
County will continue to work with the cities, regional agencies and organizations, and
area residents, businesses, and manufacturers to pursue sustainable markets to support
our waste reduction and recycling goals.
Some of the newer programs slated for more attention include increased recycling
and reuse of organic materials, such as yard wastes and agricultural wastes; product
stewardship among consumers, businesses, and manufacturers; and promotion of "green"
or sustainable building principles throughout our communities.
Chapter 5 - Collection of Recyclables
and Mixed Municipal Solid Waste
Nearly all of the residents in King County subscribe to curbside collection services
for garbage and recyclables. One recommendation in Chapter 5 is to research the costs
and benefits of combining curbside recyclables (except for glass) into a single bin for
collection and adding new materials for pick-up, such as polycoated papers, juice boxes
and similar containers, textiles, and more plastics. These changes were recently made
by the City of Seattle's solid waste system.
Other recommendations in the chapter focus on providing collection opportunities
that reduce the need for customers to bring wastes to the transfer stations in their own
vehicles, thereby reducing traffic and congestion at the stations. One reason customers
typically give for bringing material to the transfer stations is that they have bulky or
extra items that could not be put out at the curb, such as debris from a household clean-
ing or remodeling ;Jroject. To develop altemative ways for residents to dispose of
bulky and extra items, the County will work with the cities to coordinate more special
collection events and with the private collection companies to examine the feasibility
of establishing efficient and economical pick-up services.
Chapter 1 . Plan Summary
FINAL KIng County Comp"hen,'ve SolId Waste Management Plan' 2001
1-3
Chapter 1. Plan Summary
The County will also be studying the possibility of establishing a stationary collec-
tion site for household hazardous waste at a transfer station. This service would aug-
ment collection provided by the County's Wastemobile, which travels throughout the
county to collect these types of wastes.
Chapter 6 - The Regional Transfer System
The current transfer system is a mix of public and private facilities, and the Plan
recommends that this balance remain the same in the future. The private solid waste
handling companies presented several alternatives to increase their role in providing
transfer services. After a thorough analysis of the alternatives, no benefit to the ratepayers
of King County was identified from further privatization of part or all of the public
transfer system.
The County's t 992 Plan called for a major construction program to build a number
of new and replacement transfer stations. The 200 I Plan makes the best use of existing
facilities and optimizes capital outlay by concentrating investment at "expandable" sta-
tions and making repairs and safety and operational improvements at ¡lie remaining
stations, 'where there is limited space for expansion. This Plan does recognize that
some of the transfer stations are operating very close to capacity, and some new facili-
ties may be necessary, primarily in the northeast part of the county.
When the Cedar Hills Regional Landfill closes in about 2012, the County will make
the transition to waste export. To prepare the regional transfer system for export, waste
compactors will be installed at County transfer stations. Studies of similar utilities that
have made the transition to waste export show that consolidating garbage into com-
pacted loads makes transport considerably more economical. Other upgrades will be
made at the transfer stations to improve traffic flow and
queuing and to complete necessary maintenance and repairs
at some of the older stations. The County will also be pur-
suing ways to manage traffic-patterns and traffic flow at the
transfer stations to better serve the customers.
"-
The County opened
Refuse Area 5 of the
Cedar Hills Regional
Landfill in /999
Chapter 7 - Disposal of MMSW
The County's aggressive waste reduction and recycling
efforts in the past have led to a substantial reduction in the
amount of garbage that reaches the landfill. In fact, one
outcome of these efforts has been to extend the life of the
Cedar Hills Regional Landfill by about 8 years. Even so,
the landfill is expected to reach its permitted capacity and
close in 2012. The Plan recommends that the County fol-
low the path of other local jurisdictions and begin to export wastes to a landfill outside
of King County once Cedar Hills closes.
Adoption of this Plan is only the first step in preparing for waste export. There will
be extensive public and city involvement in the planning process before export begins.
Together, we will develop a new system for disposing of the region's waste by 2012.
1-4
FINAL King County ComO'ehens;ve Solid Waste Management Plan' 2001
Chapter 1 . Plan Summary
One alternative examined in some detail in the draft and final Plans was whether to
begin exporting waste before Cedar Hills is full, in order to extend the life of the land-
fill. This idea did not prove to be a cost-effective alter~ative. There are compelling
operational and economic reasons to continue sending all of King County's waste to the
landfill until it reaches its permitted capacity and then closing the facility. However,
the County will remain open to considering proposals for initiating waste export prior
to the 2012 closure of Cedar Hills should circumstances warrant. A transition plan will
also be needed as the closure date approaches.
Chapter 8 - Construction, Demolition,
and Landclearing Debris (CDL)
Private-sector solid waste management companies currently handle the system's
CDL waste and recycling under contract with King County. King County facilities
accept only limited quantities of CDL. Contracts with the private companies expire in
2004. Before this date, targeted studies will be conducted to detennine how to best
handle CDL in the future. The primary goal of any selected plan will be to increase the
amount of CDL that is recycled from both commercial work sites and disposal sites.
Chapter 9 - Enforcement
The key recommendation in Chapter 9 is to continue to coordinate system-wide
efforts to control litter and illegal dumping. The County and other jurisdictions at the
state and local level have established a cooperative effort to tackle the problem. Rec-
ommendations in the Plan include continuing with existing programs and task forces,
increasing targeted education programs, establishing an illegal dumping hotline, and
possibly pursuing legislative remedies to strengthen enforcement.
Chapter 10 - Solid Waste System
Financing and Rates
All of the program and service recommendations for
the regional transfer and disposal system are designed to
strike a balance between system improvements and cost.
There are two primary recommendations in this chapter
oX the Plan. First, the County plans to provide more tech-
nical assistance to the cities. Grants provide critical fund-
ing to city programs for waste reduction and recycling, and
the County will assist cities in locating and taking advan-
tage of grant opportunities. The County will also serve as
a clearinghouse of information about programs, contracts,
and ideas that can be shared among the cities. Also recommended is the fonnation of a
Solid Waste Policy Work Group. The work group is intended to share responsibility for
analyzing and developing solid waste policies and rate structures. Proposals developed
by the group will go to the King County Executive for consideration in future rate
design.
"-
Curbside recycling is
available to nearly all
ofthe County's
residents
FINAL K;ng County Comp.."en.;ve SoUd W..te Management Plan' 2001
1-5
Chapter 1 . Plan Summary
Recommendations formulated in the Plan were developed through extensive re-
search and analyses. Each chapter cites various supporting documents. studies, and
technical papers that are provided in the 2000 Comprehensive Solid Wo.,te Manage-
ment Plan Technical Appendices. These appendices are bound in two volumes under
separate cover.
A glossary of important terms and abbreviations is presented following the Plan
chapters. The final attachment to this Plan is the Responsiveness Summaries, which
present the County's response to public comments received on the draf¡ Plan issued in
April 2000. The summaries provide a guide on how the Plan incorporates comments
from the individuals and groups that participated in developing the Plan.
The Regional Planning Effort
Issuance of this Plan follows a comprehensive planning effort involving all of the
key players in the solid waste system. This effort began in the spring of 1999 as the
County's Solid Waste Division. asked for suggestions and ideas about the future direc-
tion of solid waste programs and services. The Division met individually with-
. Elected officials and solid waste coordinators from the 37 cities that are part of the
regional system
. Representatives from the private solid waste management companies
. The unincorporated area councils
. The Solid Waste Advisory Committee
. The Regional Policy Committee
. The Utilities and Technology Committee
To be sure that private citizens were heard, the County hosted six public meetings
across the county. These meetings were attended by some 250 people who contributed
their ideas and expeetations about services in the region as well as in their own com-
munities.
From the diverse ideas gathered during this process, the Division prepared the draft
Plan, which was issued in April 2000. The draft Plan laid out various alternatives and
proposed recommendations for regional services and programs.
The public comment period for the draft Plan extended from May through Septem-
ber 2000. During this period, Division staff again met with all of the key players to
introduce the major components of the Plan and the process for providing comments.
Meetings were held with the cities both individually and jointly to discuss the Plan
contents and process for revision and adoption. Five more public meetings were held
around the County.
The final Plan was developed after careful consideration of all the comments
received in response to the draft Plan. Those comments are included with the Respon-
siveness Summaries bound in this document. The two Responsiveness Summaries show
how and where the Executive's 2000 Plan addressed the public and city comments and
how they were addressed in this final 2001 Plan adopted by the King County Council.
1-6
FINAL K;ng County Comp.."en,;ve 501;0 Wa"e Management Plan' 2001
Chapter 1 . Plan Summary
Process for Adopting and Amending a Final Plan
The final Plan must be adopted by the cities and the King County Council and ap-
proved by the Washington Department of Ecology bcfore implementation. The process
for development and adoption of the Plan is described in Figure 1- t.
Figure 1-1. Process for Development, Review, and Adoption of the Plan
Draft Plan Development
May.Oct. '999 Meetings with the public, cities, solid waste industry,
and other groups
Oct. 1999.April 2000 Preparation and issuance of the draft Plan
Dee. '990.Aug. 2000 Preparation and issuance of the draft Environmental
tmpact Statement (EIS)
Draft Plan Review and Response to Comments
April.Sept. 2000 Public review and comment period for draft Plan and
for the draft EIS (Aug..Sept.)
Work with ptan participants
Briefings for the King County Council's Utilities &
Technology Committee and Regional Policy
Committee on the draft Plan
Draft Plan and Draft EIS Revision
Oct. 2000-Feb. 2001 Additionat analysis and revision of draft Plan and EIS
based on review of public comments
Consideration of Finat Plan and EIS by King County Council
March 2001 King County Executive releases final 2000 Plan and EIS
March.Oct. 2001 Utilities & Technology and Regional Policy Committee
Review of Plan recommendations
Adoption of Final ptan
Dei. '5, 2001 Adoption of the Rnai 2001 Comprehensive Solid
Waste Management Plan by the King County Councit
Dei. 25, 2001 The Regionat Policy Committee, acting as Solid Waste
Interlocal Forum, recommends that the cities approve
the Plan
Dee. " 200l.March 3', 2002 The 120.day period for city adoption begins
April 1, 2002 Ecology's 45.day approvat period for adopted Plan
begins
FINAL KIng County Comp..."ens;.. Solid Wast. Manag~.nl Plan' 2001
1-7
Chapter 1. Plan Summary
The [LAs require that adopted solid waste mànagement plans be reviewed, and any
necessary rcvisions proposed, at least once every three years, or more frequently if
warranted. Elements to be updated will be assessed to accommodate new needs and
opportunities and to make corrections necessary to achieve adopted goals and imple-
ment adopted policies.
An amendment process was developed and agreed upon by the cities and the County
in t 990. If issues requiring a plan amendment are identified and resolved between the
County and the affected city or cities, the parties develop the plan amendment, take
formal action to adopt it, and then implement it.
If an issue arises and agreement cannot be reached between the affected jurisdic-
tions, a formal request is made by the County or affected city(ies) to the Regional
Policy Committee (replacing the former Solid Waste Interlocal Forum) to consider a
plan amendment. If the Regional Policy Committee detennines that a plan amendment
is necessary, the committee detennines which cities are affected by the issue, and re-
views and approves the proposed plan amendment. Once approved, the County and all
other affected cities would act to adopt the amendment. Ecology would ¡hen approve
the amendment, and it would be distributed to all cities that are covered by the Plan.
1-8
FINAL K;ng County Comp"'h.n.iv. Sol;" Wo.!. Monog.men! Pion' 2001