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Integrated Waste Management Disaster Plan Chapter 9: Building Demolition Program |
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Background: This chapter sets forth general guidelines for establishing a building demolition program, emphasizing diversion (reuse, recycling) of waste generated as a result of the demolition. The information presented here is taken primarily from the:
These demolition programs are offered as examples of how two jurisdictions approached the task of setting up such a program. In addition, ideas on how to maximize diversion opportunities, and hints and policy actions undertaken by other jurisdictions after past disasters are offered to help others avoid common pitfalls in implementing a building demolition program. Contents: This chapter consists of 8 sections as follows: 1: City of Los Angeles building demolition and debris removal program [1]Source: The information below is reproduced from the document entitled, Information Regarding Procedures for Management of Northridge Earthquake Related Building Debris, May 6, 1994, compiled by the City of Los Angeles, Environmental Affairs Department. City-sponsored program: This section presents an overview of the building demolition and debris removal program established by the City of Los Angeles after the 1994 Northridge earthquake. Because a majority of the residents and business owners affected by the earthquake did not have earthquake insurance, the City offered demolition services at no cost. Because this was a City-sponsored program, FEMA reimbursement was available to the City. To qualify, a building must have had either greater than 50% damage or greater than 35% of its structural system compromised. Insurance: If the building owner had insurance that covered demolition, the City was required by FEMA to seek reimbursement for the cost of carrying out the demolition, to the extent of insurance coverage for demolition and debris removal. Two components: The City-sponsored program had two components.
There were many buildings in the second category, and the City ordered them to be either repaired or demolished. Owners of these buildings had a choice whether to have their buildings:
Private demolition : For property owners who chose to have their buildings demolished privately, hiring a qualified demolition contractor was the desired approach.Property owners were encouraged to take the following two steps to ensure that the contractor was licensed by the State of California as a demolition contractor (C-21 classification).
Demolition hazards: Property owners choosing to hire a private contractor to demolish a building must be aware that demolition work can pose a hazard to the health and safety of the individual conducting the demolition. Licensed demolition contractors should be aware of these hazards and act accordingly. The building owner also has responsibility to ensure that proper health and safety precautions are taken. Flow chart: The City of Los Angeles developed a flow chart document of 25 steps to take in a building demolition. The flow chart is found in Attachment A. 2: Phases in a building demolition programSources: Contract language in the City of Los Angeles' Demolition contract, July 1995. Information Regarding Procedures for Management of Northridge Earthquake Related Building Debris, May 6, 1994, compiled by the City of Los Angeles, Environmental Affairs Department. Four phases: The following illustrates the planning phase of a building demolition program in addition to the City of Los Angeles' process to establish a building demolition program after the 1994 Northridge earthquake. The Demolition Program was divided into three phases; a planning phase has been added.
Phase 1: PlanningFederal program:
Phase 2: Pre-DemolitionSteps: Steps identified in the pre-demolition phase of the demolition process are listed below. Step 1: Establish a demolition plan
Sample: For a sample demolition plan, refer to the City of Los Angeles' July, 1995, demolition contract in Attachment C. Step 2: Identify affected propertiesThe following information can be entered into a computer database for ease in tracking the demolition work and for reimbursement and auditing purposes.
Step 3: Conduct historic preservation reviewFirst actions:
Funding denied: Federal funding may be denied if FEMA is not given proper assistance and opportunity to comply with the historic preservation review process prior to initiation of construction or other actions which impact historic properties.In addition, federal funding may be denied if FEMA cannot comply with NEPA before work begins on a Disaster Assistance Project which may impact the environment. More information: For more information, refer to Chapter 16, Federal Public Assistance Program on the Historic Preservation Review and Environmental Review Requirements.Step 4: Prepare video documentation
Requirement: For verification purposes, FEMA requires that "before" and "after" photographs be taken of the structure that is being demolished. Step 5: Establish haul routes
Step 6: Obtain waivers and releases
Sample: For a sample waiver release form, see Attachment D. Step 7: Prepare contracts for cleanup workDiversion language: To ensure that planned diversion activities are carried out, incorporate contract provisions that specify recycling, reuse, or other diversion techniques for the demolition waste stream. Following is a list of activities that can be included in each contract:
More information: For more detailed information on the contracting process and examples of types of contracts used after a disaster, refer to Chapter 5, Contracts.Step 8: Select contractorFollow procedures: In an emergency or disaster, exceptions can apply to the contracting process. In any event, be sure to follow proper contracting procedures to avoid compromising federal or state reimbursement for debris-related programs.
Phase 3: DemolitionThird phase: Certain preparatory work must precede the primary task of demolishing structures, debris removal, and cleanup. The City of Los Angeles followed the steps below in its demolition process: Step 1: Identify hazardous materials in damaged buildingsKeep separate: Keep hazardous materials separated from non-hazardous materials, and dispose of them separately. If certain types of hazardous materials are mixed with non-hazardous debris, the debris may become hazardous and require specialized disposal that may be costly. Medical buildings: Medical buildings and office buildings may contain medical wastes, radioactive materials, or other hazardous wastes. Residential and commercial buildings may contain paint, hazardous cleaning chemicals, chemicals from hobby or automotive repair activities. Asbestos: Any building built prior to 1980 may contain asbestos. Even buildings constructed after 1980 can contain some asbestos. If the presence of asbestos is suspected, a registered asbestos consultant or other qualified health and safety specialist should be consulted to determine whether or not asbestos is present. (See Attachment E for more information on recycling asbestos). Recycling: If it is safe to enter the building and inspect for hazardous materials, determine whether it is safe to recycle the debris. If asbestos is suspected, a certified asbestos consultant or other qualified health and safety specialist should make this determination. Recycle only if there are no hazardous materials, or if they can be safely separated from the remainder of the debris and disposed of properly. Procedure for buildings that are unsafe to inspect prior to demolition. Unsafe buildings If it is unsafe to enter a building to determine if there are hazardous materials present, consider the procedures below as developed by the City of Los Angeles:
Cal/OSHA requires that for work conducted on buildings which contain asbestos (0.1% definition), the provisions of California Code of Regulations, Title 8, Section 1529, be followed. Step 2: Obtain proper permitsObtain all permits necessary for demolition, cleanup, utility line capping, hauling away, and other related tasks. The following is a list of the City of LA permit requirements. The permits for your jurisdiction may or may not be similar and are presented here only as an example.
Step 3: Deploy field staff
Step 4: Notify residents and utilities
Step 5: Remove hazardous materials and dispose of them properly.Household hazardous waste: Small amounts of HHW (not greater than 15 gallons or 125 pounds) may be transported by homeowners for disposal at a HHW roundup or similar event. Hazardous wastes in amounts that exceed 15 gallons or 125 pounds must be transported by a properly licensed hazardous waste hauler. Hazardous waste haulers are prepared to implement a variety of specific requirements for these loads including special handling and disposal at a hazardous waste disposal site. Any questions about handling hazardous waste in quantities greater than 15 gallons or 125 pounds, contact your jurisdiction's Household Hazardous Waste Coordinator or hazardous waste unit. Medical/ biohazardous waste: Untreated medical wastes/biohazardous wastes are not acceptable at local landfills or other solid waste facilities unless they are first treated and rendered non-infectious. Contractors demolishing medical facilities are advised to contact the medical facility's managers to provide the proper removal and disposal of medical waste or to contact a licensed medical/biohazardous waste contractor/hauler. The agency responsible for regulating medical wastes is the State of California, Department of Health Services, Environmental Management Branch, 916-327-6091. Step 6: Recycle demolition debrisPlan to recycle: Recycling of demolition debris should be planned as an integral part of the demolition process. (Contact your jurisdiction's solid waste or recycling coordinator for specific program information.) Cost-effective: Recycling demolition debris is often less expensive than disposal in a landfill. List the demolition materials that can be recycled. For example, in the Los Angeles area these materials included metals, concrete, asphalt, wood, yard trimmings, dirt, and bricks. Note if facilities exist for both source-separated materials and for mixed materials; the latter can be further sorted for recycling for a fee. Safe to recycle: Before recycling begins, determine whether it is safe to recycle the debris. If the presence of asbestos is suspected, a certified asbestos consultant or other qualified professional should make this determination. Recycling activities should take place only if there are no hazardous materials or if they can be safely separated from the remainder of the debris. Step 7: Develop a plan to handle special materialsMaterials: In maximizing recycling or other diversion activities during a building demolition, there are a number of materials that may make recovering or recycling the waste more difficult and expensive and may increase disposal costs. These materials include:
How to handle: Although there is no definitive answer to address these special wastes, the following is generally true:
Some general guidelines for addressing these wastes follow:
List: Following is a list of some materials made from asbestos that would likely be found in residential and commercial structures.
Health concern: Asbestos is a health concern when it is exposed, disturbed, and friable. Friable materials include:
Non-friable materials include:
Disposal: Disposal of asbestos-containing material is primarily the concern of the licensed contractor who should be aware of the licensing, remediation, encapsulation, transportation, and disposal requirements.Asbestos defined: The California Environmental Protection Agency defines asbestos waste (which means it is hazardous) as having more than 1% asbestos and being friable.
Department of Toxic Substances Control
Contractor: Any contractor removing more than 100 square feet of asbestos must be registered with Cal/OSHA and licensed by the Contractors State License Board. For information regarding registration of a contractor or a list of licensed contractors, refer to these agencies:Cal/OSHA California Contractors State License Board Table: The table below depicts the materials considered to be treated wood and the reuse applications for these materials.
Environmental concerns: Although reuse is encouraged over landfilling, environmental concerns arise when water quality issues are at stake as would be the case when surface water or ground water could be threatened from the chemicals leaching from the wood. Limitations on disposal: There are also limitations on the disposal of treated wood. The type and amount of preservative used to treat the wood may cause it to be classified and regulated as hazardous waste. If the chemicals in the treated wood are listed as a RCRA waste and exceed RCRA limitation, the treated lumber will have to be disposed of in a Class I landfill if it is not reused for its intended purpose. Treated wood that is not listed as a RCRA waste and is intended for disposal may be permitted for disposal at a Class II or Class III landfill, if the following conditions are met:
DTSC: If disposal is the only option left, a determination will need to be made on whether the treated wood is classified as hazardous. For guidelines on making this determination, contact the Waste Evaluation Unit of the Department of Toxic Substances Control (DTSC) at (916) 322-7676.
Structures : When paint contains lead, the potential of having to deal with hazardous materials becomes an issue.Structures built before 1960 are likely to be coated with lead-based paint. Those built before 1978 have a potential to be coated with lead-based paint. Note that paints produced before 1960 contain higher concentrations of lead than lead-based paints produced in later years. DTSC position: If it has been determined that the paint contains lead, refer to the Department of Toxic Substances Control's position as issued in a June 13, 1994, Regulation Guidance entitled Lead Painted Building Debris. (See Attachment F).Three options: There are essentially three options available for reuse of lumber that is coated with lead-based paint.
Re-evaluate: Be aware that any paint removed from the structure has to be evaluated separately to determine if it is a hazardous material, and care must be taken not to contaminate surrounding soil or water. Biomass or mulch: If wood waste is going to be processed for mulch or biomass fuel, lead-based painted material is unacceptable, and painted wood in general is highly undesirable. If disposal is the only remaining option, use the DTSC guidelines listed above and refer to the DTSC helpline to assist you in determining which disposal option to take. Step 8: Demolish the buildingC21 contractor: Building demolition should only be accomplished by a licensed C-21 or other qualified contractor. A qualified contractor should be familiar with, and must comply with all appropriate health and safety regulations for the protection of workers on the site and the surrounding community. Air quality rules: Local air quality management district (AQMD) regulations may require that all demolition work include fogging of debris with water to reduce dust during active demolition and transportation. It may be required that clean-up crews minimize run-off of water and prevent debris or ash from being washed into storm drains, because these flow, untreated, directly to the public beaches and ocean. Check with the local AQMD to determine the requirements for demolition work. Step 9: Remove, transport, and dispose of remaining debrisWet debris: During removal, debris must be adequately wet to prevent dust at all times. Enclose trucks: Transport trucks must be covered or enclosed. It is recommended that transport trucks be lined with 6 mil plastic to help retain moisture, which will reduce the generation of dust. Debris should be wrapped with plastic with the edges of the plastic folded inward to seal the contents. This method is sometimes referred to as a "burrito" wrap. Call landfill: Before transporting waste to landfill, call the landfill and ask if there are special requirements for debris from earthquake-damaged buildings. The purpose of such requirements is to ensure that the debris does not contain hazardous materials. Provide contractors conducting demolitions under the jurisdiction-managed program with a list of recycling and disposal sites to which debris is to be transported. 5: Phase 4: Post-DemolitionTasks: When the sites have been cleaned in accordance with the specification criteria established by the City, some post-demolition activity will be performed, including:
6: Diverting demolition debrisIntroduction: Following are some ideas on how to divert demolition debris based on building demolition programs established by the City of Los Angeles and the County of Humboldt after the 1994 Northridge earthquake and the 1992 Humboldt earthquake respectively. City of Los Angeles Demolition Program [3] Diversion steps: The City of Los Angeles took the following actions to encourage recycling of demolition debris. Maximize recycling Bidders for earthquake demolition contracts were instructed that the City desired to maximize recycling of demolition debris, and asked for estimates of the potential to source separate and recycle material at the demolition site for all buildings deemed "recyclable" by the City. Deliver to mixed waste facility Bidders were also notified that they would be required to take debris which had not been source separated to a mixed debris recycling facility designated by the City and that they should include in their bid price the cost of delivery to such facilities. View building Potential bidders viewed the building at a pre-bid meeting conducted at the site of the building. They were also notified as to whether the City had deemed the building "recyclable" or whether the building was determined to contain hazardous material, which required disposal at another, more appropriate, facility. Low bid The winning bidder was selected based on lowest bid. Reporting The contract language required reporting of recycling activity through source separation and reporting of the destination of remaining debris so that the City could monitor and track the recycling rate at the mixed debris recycling facility. Monitoring Monitoring and evaluation of the demolition and recycling process was ongoing, both to improve efficiency of the program and to gather information for FEMA reporting and calculation of the recycling rates. Source reduction recycling rate After a review of the initial contractor reports, the City added a minimum source separation recycling rate to the demolition contract language, based on the documented experience of City demolition contractors. (All contract language contains recycling requirements where applicable). Business license or demolition permit Although this was not part of the City's demolition program, consider incorporating the requirement that a contractor submit a waste management plan (detailing recycling and reuse activities) for the demolition project at the time the permit is applied for. Humboldt County Demolition Program [4] General conclusions: Following are general conclusions from the EarthquakeBuilding Material Salvage Report prepared by Humboldt County Environmental Health after the 4/25/92 earthquake in Humboldt County (see Attachment G).
Project conclusions :
Hand salvaging : Hand salvaging can be an efficient method to dismantle structures rather than using heavy equipment to demolish them. Architectural fixtures, windows, doors, casings, banisters, and reusable lumber can be salvaged and either donated or sold to local businesses or organizations.Save money: Because disposal costs represent a large part of operating costs for demolition activities, diversion and recycling measures can represent significant savings in program costs. The time and labor involved in hand salvaging may be greater than when completely demolishing a structure, but costs can be saved through recycling and avoided disposal costs, in addition to the value of the salvaged materials.Hints and policy actions [5]Helpful hints: The Office of Emergency Services prepared the Survival Manual noted above, which contains some helpful hints about managing a building demolition program after an earthquake. Following are some guidelines to keep in mind when setting up your building demolition program. # days to declare imminent hazard Each jurisdiction needs to define the maximum number of days it will have after an event to declare a structure an imminent hazard to public health and safety and, correspondingly, demolish or shore it. 3-5 days The most common time frame used is three to five days, but some jurisdictions use as many as ten days. After ten days, it becomes very difficult to justify that a structure poses an imminent threat; a building may represent a threat to public health and safety, but that threat is obviously not imminent. If the hazard is not imminent, the jurisdiction must go through normal condemnation hearings. However, if there are aftershocks, a building's condition may worsen, long after the initial quake, making it an immediate, imminent hazard. After Presidential declaration In the case of a Presidential declaration, the following applies:
Policy ActionsSuggested actions: Following are some suggestions of policy actions a jurisdiction can take when developing its building demolition program.
Attachments
References
Endnotes
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Last updated: April 30, 2010 Disaster Preparedness and Response http://www.calrecycle.ca.gov/Disaster/ Office of Public Affairs: opa@calrecycle.ca.gov (916) 341-6300 |
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