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Meeting Date: 12/06/2022  
Co-Submitter: Scott Overton From: Matthew Morales, Project Manager

Consideration and Approval of Contract:  Contract for Materials and Services to CTS Civil, LLC for grinding, hauling, and stockpiling green waste in the amount of $198,000.00.
  1. Approve the Contract for Materials and Services with CTS Civil, LLC, for grinding, hauling, and stockpiling green waste in the amount of $198,000.00; and
  2. Authorize the City Manager to execute the necessary documents.
Executive Summary:
Cinder Lake Landfill (CLL) receives trees, shrubs, limbs, and stumps (also known as green waste) from residents and commercial customers. Since 2006, green waste has been mechanically shredded (ground) by landfill staff and used as an additive to soil cover. In 2020 and the years since, the landfill scales recorded dramatic tonnage increases in green waste delivery. Existing landfill staff and personal have struggled keeping up with the grinding operation due to work volume and tasks to complete daily landfill operations.

The 2-acre stockpile is suspected to have caused the area underneath to settle and promote pooling of rainwater below. In June 2020, the Arizona Department of Environmental Quality (ADEQ) issued a notice of violation and the concern was addressed by city staff reducing the loading concern. Staff implemented minor corrections in the immediate area of concern, but the 2022 monsoon season confirmed that a more aggressive approach was necessary. Removing the stockpile of green waste will allow staff to divert water from the site and eliminate pooling in the immediate area.

Staff proposes to hire CTS Civil, LLC to grind, haul, and stockpile the existing quanity of green waste to a location on-site where it will not effect stormwater conveyance.
Financial Impact:
This was not an approved item in the FY 2022-2023 budget. However, commercial green waste revenues over the past two years ($219,000) will cover the cost of the proposed Contract. This Contract will not affect any projects that were already approved for the FY 2022-2023 Solid Waste budget. As an unbudgeted need, this Contract was approved by the budget team in October, 2022.
Policy Impact:
Improvement of the site and processing of the green waste will result in a large quantity of green waste chip material.  The green waste program is being evaluated for continued success and may need to be modified for a more sustainable operations into the future.  This program clearly has community popularity and strong use and staff will be looking into the operations needs for future years.
Connection to PBB Priorities/Objectives, Carbon Neutrality Plan & Regional Plan:
Priority Based Budget Key Community Priorities and Objectives
Priority Based Budget Key Community Priorities and Objectives
High Performance Governance
  • Serve the public by providing high quality customer service
  • Enhance the organizations fiscal stability & increase efficiency and effectiveness
Safe & Healthy Community
  • Ensure the built environment is safe through the use of consistent standards, rules and regulations, and land use practices.
 Sustainable, Innovative Infrastructure
  • Utilize existing long-range plan(s) that identify the community's future infrastructure needs and all associated costs.
  • Deliver outstanding services to residents through a healthy, well maintained infrastructure system.
  • Provide effective management of and infrastructure for all modes of transportation.
  • Facilitate and develop carbon-neutral energy opportunities.
Environmental Stewardship
  • Promote, protect, & enhance a healthy, sustainable environment & its natural resources.
  • Implement, maintain & further the Climate Action & Adaptation Plan (CAAP) with awareness of social inequities.
  • Strengthen flagstaff's resilience to climate change impacts on built, natural, economic, health, & social systems.
Carbon Neutrality Plan
Community Resilience
CR-1: Ensure all mitigation actions improve Flagstaff's ability to adapt to the future.
CR-2: Strengthen existing community systems to create resilience to both short-term shocks and long-term change.

Equitable Systems
Design Targeted climate policies and programs to serve vulnerable communities first

Sustainable Consumption and Waste Management
MM-2: Encourage sustainable consumption.

Regional Plan
Goal E.2 - Expand production and use of renewable energy.

Goal PF.1 - Work across all government operations and services to prepare for the impacts of natural and human caused hazards.

Goal PF.2 - Provide sustainable and equitable public facilities, service, and infrastructure systems in an efficient and effective manner to serve all population areas and demographics.
Has There Been Previous Council Decision on This:
There are no previous City Council decisions on this item.
Options and Alternatives:
  1. Approve the Contract for Materials and Services with CTS Civil, LLC in the amount of $198,000.00; or
  2. Continue to grind green waste on site using city staffing and resources; or
  3. Remove unprocessed green waste and bury it in the Cinder Lake Landfill.
Since 2006 Cinder Lake Landfill has been shredding (aka grinding) green waste as a beneficial amendment to disposed paper millings from the SCA Tissue plant (no longer in operation). The mixture of ground green waste and paper millings from SCA Tissue still provide a valuable source of alternative daily cover (aka ADC) for the Cinder Lake Landfill.

The Cinder Lake Landfill grinder is a 600-horsepower low-rpm, high-torque machine that can grind stumps up to six-feet in diameter. The average processing rate is 80 tons per hour and the unit can typically run for three hours before routine operations and maintenance is required. The average cost to operate the machine is $258 per hour (2018).

Historically, green waste disposal volumes were manageable enough to process in-house. However, over the past three years a noticeable increase in green waste disposal occurred (see Table 1 below).
Table 1-Greenwaste Disposal Trends at Cinder Lake Landfill
Fiscal Year Green Waste Disposal (tons)
FY 17 479
FY 18 528
FY 19 504
FY 20 1,093
FY 21 1,780
FY 22 3,304

To grind the existing pile of green waste would take approximately Cinder Lake Landfill staff approximately 230 days (based on typical production rates and routine maintenance on the grinder).

On September 13, 2022, the Purchasing Section posted an Invitation for Bids (IFB) solicitation for green waste removal services on the PlanetBids website and advertised the IFB in the Arizona Daily Sun on September 18, and 25, 2022. There were five (5) bids received and opened electronically on September 29, 2022. A summary of the bids received are identified below. CTS Civil, LLC was determined to be the lowest responsive and responsible bidder.

CTS - $198,000.00
Rummel Construction - $212,852.00
Joe Dirt - $220,000.00
Southwest Sitework - $269,000.00
Smithco - $427,000.00
Key Considerations:
1.  Staff has been collaborating with ADEQ toward an integrated approach for mitigating stormwater runoff at the site. In the fall of 2021, operations staff re-graded discrete portions of the site where runoff could be contained. However, the 2022 summer monsoon resulted in additional runoff issues at a location just above the site. It was determined that the green waste required processing and removal. The manpower required to grind the 2-acre pile would overextend our staff's duties and cost approximately $258/hour (2018 study) and take 230 days to complete. Therefore, hiring a qualified contractor such as CTS Civil, LLC will expedite removing the stockpile of green waste and maintain compliance.

2. Capital re-investment for new equipment (grinder and front-end loader) would be approximately $1.25 million, with no payback period in the foreseeable future.

3. Commercial customers are charged the typical fee of $45.75 per ton for disposal of green waste at CLL. Revenues generated from disposal over the past two years (approximately $219,000) will adequately cover the costs for a third party to process and haul the material. 

4. Green waste has proven to be essential amendment to the Cinder Lake Landfill's daily cover needs. It is also accepted through the City residential bulky trash collection and firewise programs. 

5. The stockpile of paper millings will diminish in approximately three years and there is already a surplus of ground wood waste on site. Therefore, staff is exploring other beneficial uses of green waste; burial is a last option. Cinder Lake Landfill has already implemented new cover strategies that will extend the life of the landfill by four to six years.

6. CTS Civil, LLC is a company that has specialized in green waste processing and reuse. They currently work for clients such as the City of Tempe and the Maricopa County.
Expanded Financial Considerations:
The trend of increasing green waste disposal is likely to continue unless an alternative market can be realized for the material. Employing additional Operators and purchasing new equipment is not recommended as a long-term solution at this time. Staff continues to research more sustainable operations options as the green waste program will demand evaluation.
Community Benefits and Considerations:
Approval of this Contract for Materials and Services will allow Cinder Lake Landfill to maintain compliance with ADEQ. Meanwhile, the community will benefit by knowing that the City of Flagstaff will continue to provide reliable and safe disposal options for the region.
Community Involvement:
There was no community involvement for this Contract.
Expanded Options and Alternatives:
No expanded options or alternatives are considered for this Contract at this time.


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