California Department of Resources Recycling and Recovery (CalRecycle) 

Closed, Illegal and Abandoned (CIA) Disposal Sites

Sand City Dump Construction Completion Report

(Part 1 of 3)

June 1996

AB 2136 Disposal and Co-Disposal Site Clean-up Program

Prepared by:

Jerry Oberhelman, P.E.
Robert Logan, P.E.
Glenn K. Young, P.E.

Table of Contents

1.0 Introduction

2.0 Project Background

3.0 Project Pre-Construction Activities

4.0 Project Construction/Clean-up Activities

5.0 Project Post-Construction Activities


A Photographic Log
B  Operations Plan

Tab 1 Project Overview
Tab 2 Key Personnel and Emergency Contacts
Tab 3 Construction Schedule
Tab 4 Contractor’s Site Facilities and Security
Tab 5 Haul Routes & Traffic Control
Tab 6 Construction Drawings and Specifications
Tab 7 Site Specific Injury Illness and Prevention Plan
Tab 8 Sampling & Analysis Plan
Tab 9 Hazardous Materials Management Plan
Tab 10 Erosion Control Plan
Tab 11 Coastal Development and Grading Permits
Tab 12 Contractor’s Proof of Insurance and Performance Bonds
Tab 13 Weekly Update Status Reports

C CIWMB Board Approval Documents
D CEQA Documentation
E IWMB Work Orders
F Daily Construction Logs
G Invoicing & Back-Up Documents
H Sampling and Analysis Report
I Record of Survey/Deed Notation
J Final As-Built Drawings
K Permit Termination Documents 
L Final Summary of Project Costs

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1.0 Introduction

The California Integrated Waste Management Board (the Board) Closure & Remediation Branch is responsible for implementing the Solid Waste Disposal and Co-disposal Site Cleanup Program, established by Assembly Bill 2136 (AB 2136) legislation. AB 2136 provides funds to perform remediation of closed landfills, such as the Sand City Dump Site. The statutory authority is in California Public Resources Code (PRC), Division 30, Section 48020 et seq., Solid Waste Disposal and Co-disposal Cleanup Program. PRC Section 48020 (b) states in part that the Board shall initiate a program for the cleanup of solid waste disposal sites and solid waste at co-disposal sites where the responsible party either cannot be identified or is unable or unwilling to pay for timely remediation, and where cleanup is needed to protect public health and safety or the environment.

The basis for approval of the reconfiguration project by the Board is Board Resolution #96-32 and adoption of the Negative Declaration for the project by Board Resolution #96-33, both dated January 25, 1996.

The Monterey County Department of Health, which is the local enforcement agency, first submitted a request to the CIWMB on June 23, 1992 under the Corrective Action Program, for assistance to remediate the site; a second request was submitted on January 7, 1993. The Monterey Peninsula Regional Park District in March 1995 requested assistance from the AB 2136 program to develop and implement a project at the Sand City site, that would address exposed waste, waste sloughing and erosion problems and be compatible with open-land uses.

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2.0 Project Background

2.1 Site Description

The Sand City Dump is located west of Highway 1 at the northern edge of Sand city, approximately 4 miles northeast of Monterey, in Monterey County (see Figure 1). The site is a 24.6-acre parcel specifically located at Highway 1 and Fremont Boulevard, in Township 15 South, Range 1 East, Mt. Diablo Baseline and Meridian, Seaside, California, 7.5 minute quadrangle. The dump is primarily located on Parcel 011-501-013.

The site’s ownership has changed several times since dump operation began in 1929. The property is currently abandoned, and the Monterey Peninsula Regional Park District holds the first deed of Trust. The site is bounded by Dezonia and States Park Foundation property to the north, Lands of Calabrese to the north-east, and Granite Construction properties to the south (see Figure 2). The parcel to the north, which has been operated as a sand quarry, is currently vacant. 

Land use to the south and east remains primarily industrial, with the nearest residence more than 1/4 of a mile away. The site layout and approximate property limits are shown in Figure 2. More detailed property lines are shown in Figure 3 (based on Sand City’s Assessor’s Parcel map, Book 11, Page 50).

The site is relatively level up to the bluff, where the front slope along the ocean is relatively steep (approximately 1 horizontal to 1 vertical). The site was covered with a layer of sand and vegetated with ice plant. The west side of the dump, along the ocean, was eroded significantly, with exposed waste material sloughing down the bluff and onto the beach. According to the Monterey Regional Park District staff, erosion is continuing to move the face of the bluff and exposed waste inland at a rate of about 3 to 4 feet per year in the area of the site.

The site is fenced off to the north and to the east. A dirt path running along the east side of the site allows access from Highway 1 through an opening in the fence, adjacent to the Calabrese property. The site is also accessible from the south, through Granite Construction’s property, and from the beach (by foot), on the west side of the site.

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2.2 Site History

2.21 General Site History

The Sand City Dump, was formed by waste disposal and burning operations which took place from approximately 1920 until the late 1940s. The site was operated by the County and received primarily garbage (household waste) from nearby towns and cities. The site was then operated as a garbage dump from the late 1940s until 1955, when operations were discontinued. The site was then covered with a layer of sand. A go-cart racetrack was placed on the site in the 1960s.  Ice plant was introduced to the site in the 1960s and has since pervaded the site.   

The site was privately owned by the Roberts Family, who leased the site to Monterey County for dump operations. The Roberts Family retained ownership of the site until 1979, when the property was transferred to the Menlo Capital Corporation and Mr. James Ritter. In 1983, the property was transferred to the Monterey Bay Development Corporation. In 1985 Pima Savings and Loan secured a loan in the amount of $5,100,000 to the Monterey Bay Development Corporation for a proposed 198-unit residential development, entitled “Monterey Bay Village”.

In 1987, the Monterey Bay Development Corporation defaulted on its Loan with Pima Savings and Loan. From 1989-1990 Monterey Bay Development Corporation was suspended and  granted protection from bankruptcy court. Pima Savings and Loan declared insolvency and the assets are now held by the Resolution Trust Corporation. In 1991 the City of Sand City Redevelopment Agency optioned the property for one dollar to proceed with cleanup activities and potential redevelopment. In 1994, the Monterey Peninsula Regional Park District purchased the first deed of trust to the Sand City Dump property (APN 011-501-13).

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2.22 Enforcement History

On January 7, 1993 the Monterey County Health Department submitted a request for funding of clean-up of the Sand City Dump under the AB 2136 Program. AB 2136 Staff conducted a lengthy review of the site, including several site visits and meetings with local agencies, performing ranking of the site using the Board’s Solid Waste Ranking System (SWRS), and investigations by the Board’s Environmental and Engineering Consultant leading to a Site Sampling and Analysis Report (December 1995) and a Final Site Investigation Report and Alternatives Analysis (January 1996). Considerable documentation was reviewed which supported AB 2136 Staff’s determination that cleanup was needed to protect public health and safety and the environment, and that the responsible party is unable and/or unwilling to pay for timely remediation. Table 2.22 is a chronological table which summarizes significant information and events which support the Board determination (note: all information below is substantiated by correspondence in Board AB2136 site files):

Table 2.22. Chronological Enforcement History

Date Event
March 1984 Monterey County Health Department issues notification letter to Ray Novelli and Larry Brumfield of the Monterey Bay Development Corporation to remove the dump site. It was stated in the letter that the site violated Section 66796.30, Subsection C and Section 66796.51 of the California State Government Code and Monterey County Ordinance 2661A, F and Monterey County Ordinance 1836, Sec. 5b
January 1986 Emcon Associates prepares a waste removal plan for the Monterey Bay Development Corporation, the property owner. The plan states that there is an estimated 213,000 cubic yards (cy) of waste in place (212,500 cy in the dump and 500 cy on the beach and front slope).
June 1986 Emcon Associates prepares a Chemical Characterization Report for the Monterey Bay Development Corporation. The study was performed to determine the quantities and characteristics of the dump constituents for the purpose of estimating costs for clean closure.  The study concludes that the site has lead and copper levels which exceed State action levels and that other constituents tested for (e.g. PCBs, Pesticides) are below state action levels.
October 1986 Emcon Associates, on behalf of Monterey Bay Development Corporation, sent a letter to the Department of Health Services (Mr. Howard Hatayama), coordinating the cleanup of the Sand City Dump. The letter states,“...Upon visiting the site, one sees a clear demonstration that the fill is an environmental problem in its current state. The fill is steadily sloughing off the bluff and falling onto the beach, and the refuse scattered down the face of the bluff is an eyesore. Furthermore, this material gets carried into Monterey Bay at high tides and high waves...”
July 1988 The Monterey County Health Department issues a follow-up letter to the Monterey Bay Development Corporation (Mr. Brumfield) requesting a clean-up schedule for the Sand City Dump by August 15, 1988
July 1989 Monterey County Health Department issues a letter to the Monterey Bay Development Corporation requesting a written plan and schedule to excavate and remove waste from the Sand City Dump
August 1989 EPA contracts Ecology and Environment, Inc. to prepare a preliminary assessment and provide a Hazardous Ranking System (HRS) score for the Sand City Dump to determine if the site qualified for Superfund Cleanup funding. The site was given a medium ranking in the report.
May 1990 Monterey Bay Sands Development Corporation (AKA Monterey Bay Development Corporation) is granted a petition for relief from the United States Bankruptcy Court.
October 1990 Monterey County Health Department issues a letter to Pima Savings and Loan, stating that regardless of any development occurring at the Sand City Dump, the waste at the site would have to be removed
October 1990 Bronson, Bronson & McKinnon, a legal firm representing Pima Savings and Loan, sends a letter to the Monterey Health Department, denying implications that the dump was toxic and that Federal Bankruptcy Protection prevented any cleanup and abatement action order against the owner.
October 1990 Pima Federal Savings contracted SCS Engineers to perform a cost estimate for cleanup alternatives for the site (estimate: $4,450,500).
September 1991 The City of Sand City, requested that IWMB evaluate the Sand City Dump for remediation under the Corrective Action Program
June 1992 The City of Sand City submits an application package to the State Water Resources Control Board, requesting $3,052,440 in funding for cleanup of the Sand City Dump.
June 1992 The Central Coast Regional Water Quality Control Board, provides a letter of support for the Sand City Dump cleanup project to the State Water Resources Control Board
June 1992 IWMB sends a state inspection report to the Monterey County Health Department which states that the site was in violation of numerous sections of Title14, specifically, Sections 17656, 17658, 17710, 17684, 17701, 17708, 17711
June 1992 The Monterey County Health Department in a letter to the IWMB requests cleanup of the site using Corrective Action funds
August 1992 The State Water Resources Control Board denies funding to Sand City Dump Project based on: 1) lack of evidence of groundwater contamination problems, ) IWMB Corrective Action Funds more appropriate, 2) expenditure of SWRCB funds would deplete account.

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2.3 Project Description

The project involves reconfiguration of the dump to provide approximately 50 years of coastal erosion protection. A new cell, with approximately 100,000 cubic yards of capacity, would be excavated on the east side of the site between the projected 50 year protection line and an existing sewer easement. Approximately 95,000 cubic yards of waste in front of the 50 year line, which is a line about 178 feet from the toe of the existing waste on the beach side, would be placed in the new cell. The new cell would then be covered with a minimum 2 foot thick sand cover, the site regraded to maintain or improve line of sight from Highway 1 and improve appearance from the beach side, sand dunes sculptured, and disturbed areas stabilized with crimped straw.

  • In conjunction with excavation and relocation of waste, the following significant activities would be included in the project: Items containing hazardous or potentially hazardous materials/waste (e.g. drums, lead-acid batteries, small tanks) would be isolated in a designated hazardous materials staging area, tested, and manifested and hauled to a permitted hazardous waste facility if appropriate. A project hazardous materials management plan is included in Tab 9 of the Project’s Operations Plan, which is located at Appendix B.
  • Metal items 1 cubic yard  and larger (e.g. vehicle carcasses, household appliances) would be separated from the waste and salvaged.
  • Nonhazardous items 1 cubic yard and larger (e.g. sofas, chairs) would be separated from the waste and transported to a permitted solid waste landfill.

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2.4 CIWMB Program Administration

In December 1995 AB2136 Staff prepared a board agenda item for the Sand City project with a recommendation for approving a $952,000 board-managed clean-up project and providing funding of $702,000 from the AB2136 Trust fund; the remaining funding of $250,000 would be provided by the Monterey Peninsula Waste Management District. Also recommended was a board resolution to adopt a negative declaration for the project, to comply with California Environmental Quality Act (CEQA) requirements. The negative declaration (SCH#95083060), prepared by IWMB AB2136 & CEQA staff, was circulated for public review from August 28, 1995 to September 18, 1995 by the State Clearinghouse. The negative declaration (MCH #109505) was also circulated by the Association of Monterey Bay Area Governments (AMBAG) in September 1995. A public notice was placed in the Monterey Herald Newspaper on September 15, 1995.

On January 24, 1996 the project was approved during the Board Meeting held in San Francisco and Board Resolution 96-32 was adopted authorizing AB2136 staff to proceed with clean-up. Also the Board adopted the Negative Declaration, proposed for the project by Board AB2136/ CEQA staff and adopted Board Resolution 96-33. A Notice of Determination was filed for the project on January 24, 1996.

The project was performed by two contracts administered by AB 2136 Program Staff. Engineering and construction management/oversight capabilities were provided by CH2M-Hill for the project under, Contract IWM-C3060. Remediation work  was performed by Granite Construction under Contract IWM-C3059. 

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Last updated: January 10, 2000
Closed, Illegal, and Abandoned (CIA) Disposal Sites,
Glenn Young: (916) 341-6696