Disaster Debris Management Plan
2025
Prepared by: In collaboration with:
Attachment IV
Disaster Debris Management Plan December 2025
i
TABLE OF CONTENTS
TABLE OF CONTENTS ............................................................................................................. I
1.0 INTRODUCTION AND OVERVIEW ................................................................................ 4
2.0 METHODOLOGY ............................................................................................................ 7
2.1 PLANNING ASSUMPTIONS ........................................................................................ 7
2.2 DEBRIS MANAGEMENT STRATEGIES ...................................................................... 7
2.3 PLAN MAINTENANCE ................................................................................................ 8
3.0 GUIDANCE DOCUMENTS AND REGULATORY REQUIREMENTS .............................. 9
3.1 SEMS .......................................................................................................................... 9
3.2 NIMS............................................................................................................................ 9
3.3 CALIFORNIA DISASTER RECOVERY FRAMEWORK ............................................... 9
3.4 ALAMEDA COUNTY EMERGENCY OPERATIONS PLAN .......................................... 9
3.5 HAYWARD EMERGENCY MANAGEMENT PLAN .....................................................10
4.0 ROLES AND RESPONSIBILITIES ................................................................................11
4.1 CITY ROLES ..............................................................................................................11
4.2 OPERATIONAL AREA ................................................................................................14
4.3 STATE ROLES ...........................................................................................................15
4.4 FEDERAL ROLES ......................................................................................................16
4.5 PRIVATE BUSINESS/COMMERCIAL SECTOR .........................................................16
4.6 NON-PROFIT SECTOR ..............................................................................................18
5.0 DEBRIS MANAGEMENT OPERATIONS .......................................................................19
5.1 MATERIALS AND DEBRIS STREAMS .......................................................................19
5.2 DEBRIS QUANTITIES ................................................................................................20
5.3 DEBRIS MANAGEMENT PROCEDURES ..................................................................21
5.4 DEBRIS COLLECTION AND DISPOSITION ...............................................................23
5.5 TEMPORARY DEBRIS MANAGEMENT SITES .........................................................23
5.6 TRANSPORTATION ...................................................................................................24
5.7 MONITORING OF DEBRIS OPERATIONS ................................................................25
6.0 SPECIAL DEBRIS PROGRAMS ....................................................................................27
6.1 PRIVATE PROPERTY DEBRIS REMOVAL................................................................27
6.2 HAZARDOUS TREES ................................................................................................27 Disaster Debris Management Plan December 2025
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7.0 DEBRIS WASTE CHARACTERIZATION ......................................................................29
8.0 FINANCE AND ACCOUNTING ......................................................................................30
8.1 COST TRACKING AND REPORTING ........................................................................30
8.2 FUNDING SOURCES FOR DISASTER DEBRIS OPERATIONS ................................31
8.3 PROCUREMENT REQUIREMENTS ..........................................................................32
9.0 COMMUNITY OUTREACH ............................................................................................33
10.0 TRAINING ..................................................................................................................34
10.1 TRAINING ...............................................................................................................34
10.2 EXERCISES ............................................................................................................35
11.0 AUTHORITIES AND REFERENCES ..........................................................................36 APPENDIX A – DEBRIS ESTIMATION (HAZUS) ....................................................................39 APPENDIX B – TEMPORARY DEBRIS MANAGEMENT SITE (TDMS) CONSIDERATIONS .41 APPENDIX C – CALEPA DEBRIS REMOVAL GUIDANCE .....................................................44 APPENDIX D – PUBLIC INFORMATION HEALTH AND SAFETY CONSIDERATIONS .........52
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iii
ACRONYMS AND ABBREVIATIONS
ACM asbestos-containing materials
CalEPA California Environmental Protection Agency
CalOES California Governor’s Office of Emergency Services C&D construction and demolition material
CDAA California Disaster Assistance Act
CY cubic yards
DDMP Disaster Debris Management Plan
EMP Emergency Management Plan
EOC Emergency Operations Center
FEMA Federal Emergency Management Plan
HAZMAT hazardous materials
HFD Hayward Fire Department
HHW household hazardous waste
LRP Local Resilience Plan
NGO Non-governmental organization
NIMS National Incident Management System (NIMS)
NRF National Response Framework
OA Operational Area
RCRA Resource Conservation and Recovery Act
SEMS Standardized Emergency Management System
TDMS Temporary Debris Management Sites
USACE U.S. Army Corps of Engineers
USEPA U.S. Environmental Protection Agency
Disaster Debris Management Plan December 2025
4 1.0 INTRODUCTION AND OVERVIEW
The City of Hayward (the “City”), located within the Greater San Francisco Bay area, features rolling hills and a beautiful shoreline. Like all communities, the City also has predictable vulnerability to disasters. A recent update to the City’s Local Resilience Plan (LRP) describes this vulnerability and places high priority on emergency management planning. Recognizing that debris removal operations have accounted for approximately 27 percent of nationwide disaster recovery costs in recent years, the City has developed this Disaster Debris Management Plan (DDMP).
This DDMP provides the City’s guidelines for conducting the clean-up, removal, transport, reduction, and final disposal of disaster-generated debris in compliance with environmental requirements and cost recovery procedures. Most disaster debris management activities are implemented at the local level. This DDMP presents methods by which disaster debris management can be coordinated citywide. The purpose of the Hayward DDMP is to develop a coordinated approach for managing disaster-related debris generated in Hayward.
All communities can benefit from the lessons learned in other local jurisdictions and apply the state and federal standards that have been developed from those lessons learned through planning and preparing. By planning ahead, disaster-related waste can be managed in a manner that protects the environment, maximizing recycling options and minimizing landfilling of debris.
In the United States, the Federal Emergency Management (FEMA) National Preparedness Goal, and the National Response Framework (NRF) establish mission areas and a set of core capabilities that recognize and standardize what must be achieved during disasters to save lives, protect property and the environment, and preserve the social, economic, cultural, and political structure of impacted communities. This DDMP focuses on disaster debris management operations in support of the response and recovery mission areas and their associated core capabilities (Figure 1).
There are two major phases to debris operations – the initial response phase and the recovery phase. The response phase occurs during and immediately after an event. The recovery phase includes clearing emergency access routes and the major debris removal and disposal operations. It involves moving debris to temporary storage sites for volume reduction, or to landfills for permanent disposal. The DDMP addresses how response to and recovery from a debris-generating incident will be coordinated at the local level. The DDMP conforms to the State of California’s Standardized Emergency Management System (SEMS) and current U.S. Environmental Protection Agency (EPA) guidance.
Disaster Debris Management Plan December 2025
5 Figure 1: NRF Mission Areas, Core Capabilities
(source: FEMA, 2023)
The DDMP is a management document intended to be read and understood before an emergency occurs. The content herein outlines the potential activities of all City Departments to conduct disaster debris management operations in alignment with state and federal statutes, regulations, and policies at the time of plan development.
This DDMP is divided into the following sections:
Section 2 – Methodology. This section describes the process through which the DDMP was developed and will be updated.
Section 3 – Guidance Documents and Regulatory Requirements. Section 3 lists the guidance documents that provide the framework for the DDMP. Section 4 – Roles and Responsibilities. This section describes the roles, responsibilities, and actions that local, state, and federal agencies, and other organizations will fulfill to perform or support debris management operations.
Section 5 – Debris Management Procedures, including debris streams and materials, estimating quantities, recovery operations, and transportation. Section 5 also covers establishment of temporary or long-term sites for debris storage. Section 6 – Special Debris Programs describes private property debris removal and the removal of hazardous trees, which may be required following some disasters. Section 7 – Debris Waste Characterization discusses debris waste sampling and analysis that would be required to properly characterize debris for appropriate reuse or disposal.
Section 8 – Finance and Accounting. This section identifies the basic accounting and recordkeeping requirements needed to qualify for reimbursement by state or federal emergency funds for disaster debris diversion.
Disaster Debris Management Plan December 2025
6 Section 9 – Community Outreach. This section outlines the plan for developing a City education and public information program regarding disaster debris management. Section 10 – Plan Maintenance and Training. The needs for plan updates, and pre- disaster training for the debris management team are discussed in this section.
Sources utilized in preparation of this DDMP are provided in the list of references (Section 11).
Disaster Debris Management Plan December 2025
7 2.0 METHODOLOGY
This DDMP was prepared in conjunction with the update of the City’s Emergency Management Plan. The DDMP was developed using a comprehensive engagement and subject matter expert consultation strategy to develop content to ensure accuracy and applicability. The Hayward Fire Department (HFD) acted as the lead agency in developing the DDMP through collaboration between Ganey Science (consultant) and representatives from City Fire Rescue, Public Works and Maintenance Services. This strategy included meetings among HFD, its consultant, and key stakeholders from other City Departments. Feedback from this team guided the framework of the plan. The resulting information, refined with extensive research of state and federal regulations, policies, and plans, resulted in the procedures outlined in this plan.
2.1 PLANNING ASSUMPTIONS
Planning assumptions for debris management take into consideration the following ideas:
A substantial volume of debris will be generated by a disaster impacting the City. Initial emergency response will require debris clearance coordination with a focus on critical transportation corridors and nodes.
Critical infrastructure damage assessment and restoration will depend on a prioritized debris clearance approach.
A significant incident will also impact surrounding jurisdictions; competition for resources with other jurisdictions will impact debris management capabilities. Estimation of likely debris volumes. Appendix A provides debris estimates and resource requirements for high probability/vulnerability incident types. Temporary Debris Management Sites (TDMS) will need to be established in accordance with applicable environmental protection regulations. These, and other TDMS considerations are described in Appendix B.
Disasters result in large expenditures for labor, equipment, materials, and supplies. Federal disaster assistance. Federal disaster assistance (FEMA Public Assistance) will require the City to identify and report damages to FEMA within the 60-day regulatory timeframe.
California Environmental Protection Agency (CalEPA) Guidance for Conducting Emergency Debris, Waste and Hazardous Material Removal Actions Pursuant to a State and Local Emergency Proclamation is provided in Appendix C.
2.2 DEBRIS MANAGEMENT STRATEGIES
Debris management strategies generally align with those in the Alameda County Operational Area and include the following:
The quantity of disaster-related debris that is diverted and disposed of will be measured and recorded;
The repair of damaged structures is preferred over demolition; and Disaster Debris Management Plan December 2025
8 For the replacement of an existing structure damaged in a disaster, the use of disaster debris will be promoted for its reconstruction.
2.3 PLAN MAINTENANCE
For this Plan to maintain viability, the document will be updated regularly, and personnel should be trained on the content prior to a disaster. FEMA updates debris operations program guidance throughout the year based on lessons learned from recent disasters. It is important for this plan to include the most current program guidance.
The City will facilitate an annual review of their DDMP with the debris planning team. The plans will be updated based on organizational changes, new policies and guidance, and lessons learned from actual debris events.
Disaster Debris Management Plan December 2025
9 3.0 GUIDANCE DOCUMENTS AND REGULATORY REQUIREMENTS
3.1 SEMS
The SEMS is California’s emergency response system. It began in 1993, in response to the state’s frequent hazard threats. The National Incident Management System (NIMS) mirrors SEMS for use nationwide. The objective of SEMS is to improve the coordination of state and local emergency response. All local governments must use SEMS in multi- jurisdictional or multiagency emergency responses to be eligible for state reimbursement of response-related personnel costs. Section 3 describes roles and responsibilities for disaster debris management by the City, Operational Area, State, Federal government, the private sector and non-profit sector within the SEMS structure.
3.2 NIMS
NIMS guides all levels of government, non-governmental organizations (NGOs), and the private sector to work together to prevent, protect against, mitigate, respond to, and recover from incidents. This system provides disaster response and recovery teams nationwide with shared vocabulary systems and processes to guide operations.
3.3 CALIFORNIA DISASTER RECOVERY FRAMEWORK
The California Disaster Recovery Framework establishes the overall disaster recovery strategy for the State of California. This framework guides how state entities organize, operate, and utilize existing resources to promote effective recovery to support local government. It also provides an overarching framework to assist local and tribal governments, the private sector, NGOs, and other emergency managers to plan for and execute disaster recovery operations in California. The CDRF is also a resource for how to access anticipated state and federal disaster assistance programs following ad disaster.
3.4 ALAMEDA COUNTY EMERGENCY OPERATIONS PLAN
The Alameda County Emergency Operations Plan provides an overview of the jurisdiction’s approach to emergency operations. It identifies emergency response policies, describes the response and recovery organization, and assigns specific roles and responsibilities to County departments, agencies, and community partners. The Plan has the flexibility to be used for all emergencies and is intended to facilitate response and recovery activities efficiently and effectively. This Plan is also a reference for managers from other local governments in the Operational Area, including Hayward.
Disaster Debris Management Plan December 2025
10 3.5 HAYWARD EMERGENCY MANAGEMENT PLAN
This DDMP is a part of the City’s Emergency Management Plan (EMP), and the authorities, policies and procedures described in the latest version of the EMP apply to debris management, too.
Disaster Debris Management Plan December 2025
11 4.0 ROLES AND RESPONSIBILITIES
Disaster recovery efforts begin at the local level at the City of Hayward and the leadership roles for disaster debris management and functional area leads for recovery tasks are listed in this section. Disasters of higher magnitude may require supplemental state or federal assistance.
This section describes the relevant responsibilities of applicable government agencies, as well as the roles of the private sector, NGOs, and local residents.
4.1 CITY ROLES
NIMS identifies four standardized positions to be designated with authority and responsibility for disaster debris planning and operations. The City adopts the use of the following positions as described below and shown in Table 11.
Debris Operations Officer NIMS ID 7-509-1347
Activates the DDMP and oversees the following matters related to debris removal:
Quantities and types of equipment necessary;
Temporary debris collection sites;
Methods for tracking debris types and quantities;
Methods for tracking force account and related costs; Final debris disposal;
Relevant public information; and
Reimbursement.
Debris Planning Officer NIMS ID 7-509-1348
The Debris Planning Officer establishes the DDMP, which includes:
Quantities and types of equipment necessary;
Temporary debris collection sites;
Methods for tracking debris types and quantities;
Methods for tracking force account and related costs; Final debris disposal;
Relevant public information;
Reimbursement; and
Debris forecasting.
Debris Supervisor NIMS ID 7-509-1098
Coordinates the routing of equipment, personnel and other resources involved in debris removal;
Collects and maintains appropriate field documentation; Ensures that equipment operators/haulers complete debris clearance, removal and disposal in accordance with applicable regulations and requirements; Disaster Debris Management Plan December 2025
12 Schedules and deploys debris monitors; and
Reports debris field/monitoring progress and issues to the Debris Operations Officer.
Debris Technical Specialist NIMS ID 7-509-1460
Evaluates types and quantities of disaster-generated debris; Provides an estimate of debris types and quantities;
Supports the Authority Having Jurisdiction’s (AHJ) debris removal operation in the field; and
The following personnel are the current officials in these roles and should be notified in the case of an incident:
Table 1. Hayward Debris Operations Officials
Position Primary Contact Secondary Contact Tertiary Contact Debris Operations
Officer
Jeff Krump
908-506-8268
Erik Pierson
510-299-5490
Rod Affonso
510-677-0428
Debris Planning
Officer
Rich Nield
510-385-1068
John Sanders
510-681-9592
Dave Jackson
510-385-1070
Debris Supervisor Randy Nunes
209-834-7152
Mike Stotts
510-882-4928 (work)
510-909-4242
(personal)
J.C. Oliva
415-513-926*
Debris Technical
Specialist
Brian Figuroa
510-381-3097
Andrew Tapia
510-468-7337
Armondo Quintaro
510-690-3964
The City also assigns responsibility to the following Departments/functional areas in support of the DDMP:
Public Works Department
Serves as the Debris Operations Officer;
Activates and implements the City’s DDMP;
Conducts damage assessments and estimates debris totals; Oversees debris operations including internal resources and contracted services; Coordinates with local, state, and federal agencies regarding regulatory requirements for debris operations;
Coordinates with the Operational Area (OA), i.e., Alameda County. and other City Departments as needed for debris operations support;
Obtains approval from regulatory agencies for TDMS;
Disaster Debris Management Plan December 2025
13 Provides situational updates on debris operations to the local Emergency Operations Center (EOC);
Maintains documentation for federal disaster assistance for debris operations; Ensures compliance with federal disaster assistance programs for debris removal; and Reviews the DDMP annually.
City Administration
Makes policy-level decisions related to debris operations; and Provides signature authority for legal documents, including mutual aid agreements with neighboring jurisdictions, inter-local agreements, and notices to proceed with contracted service providers.
Emergency Management/Fire Department
Coordinates the preparation, review, and update of the jurisdiction’s DDMP. Provides emergency services at TDMS in the event of a fire.
Finance and Purchasing
Understands current federal disaster assistance program guidance and regulations related to debris operations;
Manages documentation for federal reimbursement for debris operations; Coordinates with public works and purchasing to obtain force account labor, equipment, and overtime documentation related to debris removal operations for potential federal reimbursement;
Audits purchase orders and documents, general ledger entries, cash receipts, and payroll documents related to debris removal operations; Manages and audits contractor invoices for payment;
Provides support to procure goods and services for debris removal operations; Coordinates with finance and administration to ensure disaster debris services are procured following local, state, and federal procurement regulations; Reviews and updates emergency procurement policies as necessary following an emergency;
Assists with the documentation of debris operations for potential federal reimbursement; and
Supports audit and closeout of debris projects.
Code Enforcement
Enforces nuisance abatement codes;
Documents nuisance abatement cases to support private property debris removal; and Maintains awareness of TDMS and operations.
Disaster Debris Management Plan December 2025
14 Planning Department
Provides GIS data to appropriate agencies and vendors for debris removal operations, which may include road lists, data on historical properties, debris estimates, and land ownership.
Establishes debris estimates using U.S. Army Corps of Engineers (USACE) HAZUS software for planning purposes.
Health Services
Determines debris that poses an imminent threat to public health and safety; and Provides documentation regarding health and safety issues to support debris operations. Provides recommendations for health and safety procedures for debris operations; and Coordinates with health services and public works to review solid waste management sites including administration buildings, recycling centers, landfills, and transfer stations for damage, safety, and health issues.
Law Enforcement
Provides security for debris management sites and other debris removal operations when necessary; and
Leads debris operations resulting from a crime scene or terrorism incident.
Legal Services
Reviews debris operations procedures for compliance with applicable local, state, and federal regulations; and
Supports the jurisdiction with regulatory reviews, audits, and appeals regarding disaster assistance for debris operations.
Public Information Officer
Coordinates with public works and emergency management to develop public information messages related to debris operations;
Provides press releases related to debris removal operations, set out procedures and citizen debris drop-off locations; and
Provides timely information regarding debris operations in accessible formats.
4.2 OPERATIONAL AREA
An Operational Area (OA) means an intermediate level of the state emergency services organization, consisting of a county and all political subdivisions within the county area. The OA for Hayward is Alameda County. The OA was established by a January 1995 Agreement for Participation in Alameda County Operational Area Emergency Management Organization. All the cities in the county including Hayward are participants in this Agreement (Alameda County Waste Management Authority, which has the following responsibilities during an emergency:
Disaster Debris Management Plan December 2025
15 Implement OA Emergency Response Plan;
Establish and maintain the Operational Area Emergency Operations Center (EOC); Coordinate the utilization of County, other local government, state and federal resources within the OA; and
Support operations conducted by local governments within the County in accordance with SEMS and approved mutual aid and operations plans.
In alignment with these overarching responsibilities, the OA is also responsible for the following tasks during a catastrophic debris-generating event:
Implement the OA DDMP;
Establish a debris operations task force in the EOC; and Coordinate the utilization of County, other local government, state and federal resources and private sector business enterprise including solid waste facility operators for debris operations within the OA.
Support public entities within the OA to conduct debris operations in accordance with SEMS and approved mutual aid and operations plans.
4.3 STATE ROLES
State agencies provide regulatory guidance and technical assistance for debris operations.
Roles and responsibilities of State agencies involved in debris operations are as follows:
CALIFORNIA ENVIRONMENTAL PROTECTION AGENCY (CALEPA)
• Provide guidance on environmental regulations regarding debris operations. • Provide technical assistance for debris removal of HAZMAT (Department of Toxic Substances Control).
• Provide support and guidance for debris removal operations (CalRecycle) including potential provision of resources.
• Provide approvals for TDMS and emergency waivers of standards such as permitted capacity, throughput and acreage for permitted solid waste facilities (CalRecycle).
CALIFORNIA OFFICE EMERGENCY SERVICES (CALOES)
• Serve as a liaison between state and federal agencies. • Provide industry standards and best practices for debris operations. • Serve as the administrator of disaster grants for debris operations. • Provide guidance on documentation requirements for disaster assistance for debris operations.
Disaster Debris Management Plan December 2025
16 4.4 FEDERAL ROLES
Federal agencies support debris operations by providing disaster assistance funding, regulatory oversight and technical assistance. An overview of the roles and responsibilities of federal agencies involved in debris operations follows:
FEMA
Provide technical assistance for debris operations.
o Environmental and historical preservation review process. o Public assistance grant program reimbursement process. o Procurement assistance.
Make federal mission assignments as requested
o Emergency Support Function #3, Public Works and Engineering o Emergency Support Function #10, Oil and HAZMAT Response Administer the FEMA Public Assistance Program for Category A Debris Removal. o Ensure safety, eligibility, and compliance are maintained.
USACE
Primary federal entity for Emergency Support Function (ESF) #3 - Public Works and Engineering.
Provide debris operations for mission assignments.
Remove sunken vessels from navigable waterways under emergency conditions. Provide strong technical assistance and training support to State and local agencies. Enable state and local operations to the greatest extent possible.
NATURAL RESOURCES CONSERVATION SERVICE
Provide technical assistance for debris removal from natural streams and creeks. Provide funding for debris operations through the Emergency Watershed Protection Program.
FEDERAL HIGHWAY ADMINISTRATION
Support repair and reconstruction of federal aid highways and roads on federal lands. Provide funding for debris operations through the Federal Highway Administration’s Emergency Relief Program.
4.5 PRIVATE BUSINESS/COMMERCIAL SECTOR
Private businesses will have a very large role in managing mass debris operations. The City does not have enough internal resources to conduct debris operations during a widespread event without the use of contracted service providers. The roles and responsibilities of private sector businesses for debris operations is described here.
Disaster Debris Management Plan December 2025
17 WASTE MANAGEMENT (FRANCHISED HAULER)
Collect, transfer, transport, process, and divert organic materials within the City. Collect, transfer, transport, and dispose of solid waste generated within the City. Collect, transport, and transfer recyclable materials generated within the City.
DEBRIS HAULING FIRMS
In the event the scope of debris collection operations is beyond the capabilities of the City, state, and mutual aid resources, it may be necessary to contract for labor and equipment. The City will use its purchasing policies in coordination with federal contracting guidance to establish a contract with one or more debris hauling firms to assist with debris collection and disposal. Responsibilities of a debris hauling firm will include the following:
Clear and remove debris from City roadways and waterways to make them passable immediately following a declared disaster.
Conduct debris removal from the right-of-way.
Decommission, demolish, and dispose of eligible non-regulated asbestos-containing material structures on private property.
Manage and operate TDMS locations.
Conduct debris reduction.
Haul-out reduced materials to a final disposal site.
Remove hazardous leaning trees, hanging limbs and stumps. Remove white goods debris from the right-of-way.
Coordinate the removal of household hazardous waste from the right-of-way. Remove animal carcasses from areas designated by the jurisdiction.
Develop, test, and implement debris operations plans. Take into account worker safety and health and potential employee unavailability or attrition due to a disaster. Educate and train employees to implement debris operations plans. Ensure contracts comply with state and/or federal procurement requirements. Communicate status of operations and supply chains as well as challenges and time lines to local officials.
Research available funding sources and types of funding for debris operations. Know, understand, and comply with state and/or federal regulations for disaster assistance programs.
MONITORING FIRMS
Perform truck certifications.
Perform on-site, street-level debris monitoring at all collection sites to verify debris eligibility based on contract requirements, and initiate debris removal documentation using load tickets.
Conduct disposal monitoring to document the disposal of disaster debris at approved TDMSs and at final disposal or end use locations.
Disaster Debris Management Plan December 2025
18 4.6 NON-PROFIT SECTOR
The City will partner with nonprofit and volunteer organizations to provide assistance to individuals with disabilities and/or access and functional needs. The City will ask that non-profit sector entities coordinate with jurisdictions to ensure their efforts are conducted in coordination with jurisdiction objectives. In addition, the City will coordinate with non-profit sector entities to ensure response efforts are conducted in a safe manner to minimize the risk of injuries in keeping with health and safety policies. These entities will not be asked to conduct tasks that are beyond their member’s training or capabilities. The roles and responsibilities for nonprofit organizations in debris operations are listed below.
• Coordinate with City to identify vulnerable populations and incorporate strategies to assist these populations in local DDMPs.
• Coordinate with City and volunteer organizations post-disaster to assist individuals with disabilities and access and functional needs with debris to the public right-of-way (ROW) collection area.
• Coordinate with City to provide public information regarding debris operations to populations with communication barriers.
• Provide debris services to vulnerable and underserved groups, individuals, and communities as necessary.
RESIDENTS
To coordinate effective debris operations, residents play an important role in maximizing the potential for recycling and reuse of disaster-generated debris. Roles and responsibilities for residents in debris operations include the following:
Follow instructions from local officials on set out procedures for disaster-related debris. Segregate disaster debris from regular household waste. Safely bring debris to the public ROW.
Bring household hazardous waste to citizen drop-off locations. Use caution when operating equipment and dangerous machinery. Help others who may need assistance with debris removal.
Appendix D provides health and safety messages for use by the City Public Information Officer.
Disaster Debris Management Plan December 2025
19 5.0 DEBRIS MANAGEMENT OPERATIONS
Debris management operations includes the steps to plan for, remove, and dispose of disaster- generated debris. This section provides information regarding types of debris materials, collection and disposition.
5.1 MATERIALS AND DEBRIS STREAMS
Various types of disaster-generated debris require distinct removal practices, transportation methods, and final disposal locations to minimize environmental impacts and protect public health and safety. The separation of types of materials in transportation and processing is referred to as debris/waste streams. In classifying waste streams, it must be determined whether a material is waste, reusable, or recyclable. Table 2 shows the various debris types typical to disaster waste streams.
Table 2. Disaster Debris Types
Debris Type Description Disposal Options
Vegetative debris Whole trees, tree stumps,
tree branches, tree trunks,
and other leafy material
Recyclable wood, (chipping or
mulching for compost or erosion
control). Wood materials can be sold
to lumber mills, firewood providers, or
biomass to energy facilities, or taken
to a landfill
Soil, mud, sand These materials are often
deposited by floods,
landslides, and storm surges
Contaminated materials: Class I/II
Landfill.
Non-contaminated materials: Class III
Landfill
Sandbags Used to protect against
flooding may be
contaminated with pollutants
from flooded sewage
treatment plants, pesticides,
herbicides, and other
chemicals
Contaminated materials: Class I/II
Landfill.
Non-contaminated materials: Class III
Landfill
Construction and
demolition material
May include disaster-
damaged building materials
and damaged contents
Treated Wood Waste: Class I Landfill
(unless re-regulated to permitted lined
Class 2 Landfills). Concrete rubble
can be recycled/ disposed of at a
landfill. Wood material can be sold for
reuse, recycling, or taken to a landfill
Disaster Debris Management Plan December 2025
20 Debris Type Description Disposal Options
Utility
systems/electrical
waste
May include utility poles,
wiring, conduit, and other
items from power lines,
computers, TV, cell phones,
batteries and other electrical
equipment
Consolidated at landfill
Household
hazardous waste
Includes paints, solvents,
cleaning supplies,
insecticides, pool chemicals,
propane, gasoline, oils, and
other residential chemicals.
Segregated for appropriate disposition
to Class II or III landfills
Hazardous waste Waste with properties that
make it potentially harmful to
human health or the
environment. Hazardous
waste is regulated under
Resource Conservation and
Recovery Act
Processed to consolidate like
materials near the operation then
disposed of at a Class I Landfill
White goods Include washers, dryers,
freezers, clothes dryers, and
stoves. Any refrigerants in
these materials must be
removed by certified
technicians
Once hazardous chemicals are
removed from white goods, they can
be recycled as metal
Vehicles and vessels Automobiles, farm
equipment, trailers, boats
Must perform State vehicle
identification and remove hazardous
chemicals
Putrescent Debris Carcasses of domestic and
wild animals and other fleshy
organic matter
Class III landfill
Chemical, Biological
(Infectious),
Radiological, Nuclear
Contaminated by chemical,
biological, radiological, or
nuclear materials
Contaminated: Class I/II Landfill.
Non-contaminated: Class III Landfill
5.2 DEBRIS QUANTITIES
Estimating the quantities of debris that may be generated by various natural or man-made disasters is a complex analysis. There are multiple variables (type of incident, severity, location, etc.) that can dramatically affect the quantities of debris that may be generated by a disaster.
Appendix A provides debris estimates and resource requirements for those scenarios identified in the City LRP as high probability/vulnerability incident types.
Disaster Debris Management Plan December 2025
21 METHODS FOR ESTIMATING ACTUAL DEBRIS QUANTITIES DURING/AFTER A
DISASTER
Debris estimates are based on a series of assumptions and should not be considered as the actual volumes following a disaster event. Debris estimate models use factors such as household population and parcel data to forecast the volume and type of potential debris in each disaster management area.
The USEPA recommends the Incident Waste Decision Support Tool (I-WASTE DST) for estimating debris volume (http://www2.ergweb.com/bdrtool/login.asp).
FEMA’s Hazards U.S.-Multi-Hazard (Hazus-MH) model can be used for estimating potential losses from earthquakes, floods, and hurricanes (http://www.fema.gov/hazus). ArcGIS software is required to use Hazus-MH). FEMA also provides guidance on debris estimation in their publication titled Debris Estimating Field Guide (FEMA 329) https://www.fema.gov/sites/default/files/2020-07/fema_329_debris-estimating_field- guide_9-1-2010.pdf.
The assumptions used in all of these debris estimation models include:
Average debris collection truck capacity: 35 cubic yards (CY) Average number of trips per day for each collection truck: 6 Average truck to loading equipment ratio: 2:1
Debris Management Sites per jurisdiction: 1 (This could potentially be reduced by jurisdictions with smaller acreage requirements sharing sites.) Volume of debris that can be staged per acre based on a 10-foot stack height: 16,117 CY/acre
Estimated collection period: 30 days (unless otherwise stated)
5.3 DEBRIS MANAGEMENT PROCEDURES
INITIAL RESPONSE
Immediately following a debris-generating incident, debris managers will initiate emergency roadway clearance to ensure the movement of emergency response vehicles, allow for access to and assessment of high priority critical infrastructure, and open evacuation routes. Debris managers will work with fire rescue and law enforcement to establish a prioritization scheme and will request support from power company representatives to ensure crew safety.
The City will use city owned resources to conduct emergency roadway clearance; if the scope of work for this stage requires more resources, the City will contract for services, or request additional resources through the OA.
SHORT-TERM RECOVERY
For debris operations, the recovery phase begins with debris removal from the public ROW and ends when debris operations are complete, and all documentation is closed out.
Disaster Debris Management Plan December 2025
22 During this phase, the City will continuously evaluate their capacity to conduct debris removal operations internally using force account equipment and labor, using mutual aid or by using contracted services. The City will also assess their capacity to conduct special debris programs and will identify the need for guidance and assistance with those activities that exceed local capability. Other tasks during short-term recovery include:
Open TDMS locations.
Establish segregation criteria.
Establish decontamination procedures for trucks, equipment and personnel. Establish monitoring procedures and responsibilities. Prioritize support to roads/areas.
Issue press releases regarding segregation of debris. Begin ROW debris removal.
Begin environmental monitoring program of TDMS.
Coordinate with mutual aid and contracted services providers. Obtain FEMA guidance for procurement and special debris programs. Obtain CalOES/CalEPA direction on state policies and regulations.
INTERMEDIATE RECOVERY
Intermediate recovery includes activities that that take place after immediate debris needs have been addressed. Intermediate recovery typically occurs two weeks to several months post- disaster. These activities include:
Maintain and evaluate ROW cleanup.
Begin ROW stump removal as necessary.
Open additional TDMS locations as necessary.
Conduct daily meetings with the county, state and/or FEMA. Begin special debris programs.
Communicate ROW debris removal program closeout to residents via press release.
LONG-TERM RECOVERY
Long-term recovery includes activities to closeout debris programs and reconcile documentation.
Long-term recovery can take several years depending on the severity of the disaster and the audit processes from regulatory agencies. Long-term activities include:
Complete all debris recovery activities.
Identify ineligible debris on ROW.
Complete the disposal of reduced debris.
Close out and remediate TDMS locations.
Conduct project closeout meetings with FEMA and external agencies.
Disaster Debris Management Plan December 2025
23 5.4 DEBRIS COLLECTION AND DISPOSITION
In the interest of conserving landfill capacity and reducing solid waste disposal, disaster-related debris should be recycled to the greatest extent possible and/or centrally held until it can be processed for maximum recycling.
Mixed debris collection is more convenient and allows all debris types to be delivered to a specific collection area (e.g., curbside or community collection centers), while source-segregated requires residents to sort the debris themselves. Collection types for a specific disaster should be determined during debris management planning following a disaster.
5.5 TEMPORARY DEBRIS MANAGEMENT SITES
A TDMS allows for the temporary staging, separation, reduction, and processing of disaster-generated debris when transport directly to an end-use facility is not immediately possible. TDMS serve a critical role in supporting the City’s waste reduction, goals.
TDMS locations will require approval from the Alameda County Department of Environmental Health, CalRecycle and permits from the agencies listed below. An Emergency Waiver of Standards grants a landfill operator temporary relief from specific standards such as permitted capacity, throughput, and acreage. Existing operations may pursue such a waiver with CalRecycle in accordance with the California Code of Regulations, Title 14, Section 17210.
The use of closed landfills and planned solid waste facilities will require permission from Alameda Environmental Health and appropriate local land use and other jurisdictional agencies.
Environmental permits and land-use variances may be required during removal operations for TDMS.
Several agencies may be involved in issuing permits and granting land-use approvals. Permits may include:
Waste processing and recycling operations permit;
Temporary land use permits;
Land use variances;
Traffic circulation strategies;
Air quality permits;
Water quality permits;
Coastal commission land use permits;
Household hazardous waste permits; and
Fire department permits.
In November 2023 planning meetings the City’s debris management professionals identified preliminary locations considered to be suitable and well positioned for use as potential debris Disaster Debris Management Plan December 2025
24 management sites. Figure 2 shows the map used during the planning meetings to discuss and select TDMS. Debris management sites include:
Debris staging and storage (short-term and long-term) locations; and Equipment staging and storage (short-term and long-term) locations
Figure 2: Potential Debris Management Sites
City owned equipment is stored and staged at the Corporation Yard located at:
24505 Soto Road
Hayward, CA 94544
Decontamination and treatment stations and waste management facilities had not yet been identified at the time of this DDMP and will be inserted into the next update of the Plan.
5.6 TRANSPORTATION
Truck certification is a critical component of debris management operations. Truck certification is the process to document the capacity of debris removal trucks. All debris removal trucks hauling debris on a volumetric basis must have their capacity and dimensions measured, sketched, photographed, and documented on a truck certification form. Each debris removal truck must be assigned a unique number for debris tracking and invoice reconciliation purposes. Truck certifications should contain:
Disaster Debris Management Plan December 2025
25 Unique truck number;
Driver name;
Driver phone number;
License number, state issued, and expiration date;
Tag number, state issued, and expiration date;
Vehicle measurements; and
Sketch/photo of the vehicle.
5.7 MONITORING OF DEBRIS OPERATIONS
The City will monitor its debris removal operations and document disaster-related quantities and reasonable expenses to ensure that the work is eligible for federal disaster assistance. The loading site monitors will perform on-site, street-level debris monitoring at all loading sites to verify debris eligibility based on contract requirements, and initiate debris removal documentation using load tickets. Loading site debris monitors’ primary job is to maintain documentation of work performed at the point of debris collection.
Disposal monitoring will be performed to document the disposal of disaster debris at approved TDMS locations and final disposal or end use locations. Monitors will perform quality assurance/quality control checks on all load documentation and haul-out documentation to ensure that information captured by loading site monitors is complete. This process includes the following tasks:
Inspection of truck placards for authenticity and signs of tampering. Verification that placard information is documented properly. Verification that all required fields on the load ticket have been completed.
The disposal monitor will document the amount of debris collected by making a judgment call on vehicle fullness (typically on a percentage basis). The percentage documented for each debris removal vehicle is later applied to the calculated capacity of the vehicle to determine the amount of debris collected.
The disposal monitor’s responsibilities include the following:
Completing and physically controlling load tickets.
Ensuring debris removal trucks are accurately credited for their loads. Ensuring trucks are not artificially loaded.
Ensuring hazardous waste is not mixed in with loads.
Ensuring all debris is removed from the debris removal trucks before exiting the TDMS or final disposal site.
Ensuring only debris specified within the scope of work is collected.
In addition to the responsibilities listed above, final disposal site monitors are also tasked with the following:
Disaster Debris Management Plan December 2025
26 Ensuring all debris is disposed at a properly permitted landfill. Matching landfill or compost facility receipts and/or scale house records to haul-out documentation.
Disaster Debris Management Plan December 2025
27 6.0 SPECIAL DEBRIS PROGRAMS
6.1 PRIVATE PROPERTY DEBRIS REMOVAL
When large-scale disaster events cause mass destruction and generate large quantities of debris over vast areas, debris on private property may sometimes pose health and safety threats to the public-at-large. If private property owners are not available because they have evacuated, the public entities may need to enter private property to remove debris considered to be an immediate threat to the lives, health, and safety of its residents. In such situations, CalOES and FEMA are authorized to approve the provision of Public Assistance for the removal of debris from private property when it is considered to be in the public interest.
The City will seek prior approval from the state and/or FEMA to determine eligibility for reimbursement. The following procedures are required for potential state and/or federal assistance and are best practices for conducting debris removal from private property regardless of potential reimbursement.
The jurisdiction must obtain documentation from the public health authority stating that disaster-generated debris on private property in the designated area constitutes an immediate threat to life, public health, and safety.
The jurisdiction may obtain documentation stating that the debris poses an immediate threat to improved property and that its removal is cost-effective. The cost to remove the debris should be less than the cost of the potential damage to the improved property. The jurisdiction must demonstrate its authority and legal responsibility to enter private property to remove debris. The legal basis for this responsibility must be established by law, ordinance, or code at the time of the disaster and must be relevant to the post- disaster condition representing an immediate threat to life, public health, and safety, and not merely define the public entity’s uniform level of services. Typically, solid waste disposal ordinances are considered part of an applicant’s uniform level of services.
6.2 HAZARDOUS TREES
Determining removal of hazardous trees and stumps is challenging. FEMA has established criteria to assist in making these determinations, using objective information that can be collected in the field.
Removing a hazardous tree may be eligible for FEMA Public Assistance grant funding. A tree is considered hazardous if its condition was caused by the disaster; it is an immediate threat to lives, public health and safety, or improved property; it has a diameter at breast height (4.5 feet from the ground on the high side) of six inches or greater; and the tree:
Has a split trunk;
Has a broken canopy; or
Is leaning at an angle greater than 30 degrees.
Disaster Debris Management Plan December 2025
28 The eligible scope of work for a hazardous tree may include removing the leaning portion and cutting the stump at ground level. An example of an ineligible costing method for such work would be removing the tree and stump for two separate unit costs.
Removal of broken limbs or branches that are two inches or larger in diameter (measured at the point of break) that pose an immediate threat are eligible for Public Assistance grant assistance.
FEMA funds removal of broken limbs or branches located on private property if:
The limbs or branches extend over the public ROW;
The limbs or branches pose an immediate threat; and
The Applicant removes the hazard from the public ROW (without entering private property).
Only the minimum amount of work necessary to remove the hazard is eligible.
A tree stump may be determined to be hazardous and eligible for Public Assistance grant funding as a per-unit cost for stump removal if it meets all of the following criteria:
It has 50 percent or more of the root-ball exposed (less than 50 percent of the root-ball exposed should be flush cut);
It is greater than 2 feet in diameter, as measured 2 feet above the ground; It is on improved public property or a public ROW; and It poses an immediate threat to life, and public health and safety.
Disaster Debris Management Plan December 2025
29 7.0 DEBRIS WASTE CHARACTERIZATION
Two different types of sampling may be needed to meet waste acceptance criteria at waste management facilities and to allay community concerns:
1) Sampling to classify and determine compliance with federal, state, local, or tribal regulatory criteria, and
2) Sampling to ensure that waste/materials have been effectively decontaminated.
The City will make all reasonable attempts to take the appropriate number of representative samples from the waste stream where it is expected to exhibit the average properties of the whole.
The City will coordinate with Alameda County (the OA), CalOES and CalEPA to identify laboratories to support sample analysis and to establish sample quantities and procedures.
The City will rely on available laboratories identified by CalEPA or CalOES to conduct analysis of samples, and will rely on guidance from CalEPA to establish quality assurance procedures.
Disaster Debris Management Plan December 2025
30 8.0 FINANCE AND ACCOUNTING
8.1 COST TRACKING AND REPORTING
Accurate and complete cost tracking is critical to obtain assistance for disaster-related costs.
Emergency protective measures can be eligible for reimbursement. If the incident allows for warning, the City will begin tracking costs once the threat has been identified. If there is no warning, The City will begin tracking costs as soon as possible. Accounting best practices for tracking costs includes the following:
Identify a person that will be responsible for compiling disaster-related costs for the jurisdiction.
Establish a cost code for disaster-related costs.
Establish a file structure for each site where recovery work has been or will be performed.
Maintain accurate disbursement and accounting records to document the work performed and the cost incurred.
Obtain and review applicable local, state, and federal policies and regulations. Document administrative costs.
Begin compiling recovery project documentation, including:
o Executed contracts, bids, periods of performance, and locations worked; o Property insurance;
o Donated resources (labor, equipment and materials);
o Mutual aid;
o Force account labor;
o Force account equipment;
o Equipment rental agreements;
o Fuel logs;
o Materials including meals and gas purchases;
o Description of damage;
o Scope of work to be completed;
o Photos of damage;
o Copies of estimates;
o Maintenance records; and
o Site inspection records.
The City will coordinate with state and federal agencies to obtain disaster-specific cost tracking spreadsheets and templates.
Disaster Debris Management Plan December 2025
31 8.2 FUNDING SOURCES FOR DISASTER DEBRIS OPERATIONS
FEMA PUBLIC ASSISTANCE
The Stafford Act constitutes the statutory authority for most federal disaster response activities, especially as they pertain to FEMA and FEMA programs. The federal government provides several assistance programs through various agencies to support debris operations.
The mission of the FEMA Public Assistance Grant Program is to provide assistance to State and local governments and certain private nonprofit organizations to quickly respond to and recover from disasters or emergencies declared by the President. FEMA provides supplemental federal disaster grant assistance for debris removal, emergency protective measures and repair, and replacement or restoration of disaster-damaged facilities through the Public Assistance Program.
The Program also encourages protection of these damaged facilities from future events by providing assistance for hazard mitigation measures during the recovery process.
The FEMA Public Assistance Grant Program is a cost-sharing program. Cost share refers to the portion of disaster-related costs the federal government is responsible for funding. Per the Stafford Act, the federal cost share of assistance is not less than 75% of the eligible cost for emergency measures and permanent restoration. The remaining 25% is the responsibility of the State and local governments. The State serves as the grant administrator or the grantee. The grantee determines how the non-federal share is funded.
The policy guidance for these assistance programs changes and adapts with lessons learned from each disaster across the United States. The City will maintain awareness of current federal assistance program guidance and regulations related to disaster debris federal funding programs.
CALIFORNIA DISASTER ASSISTANCE ACT
The State can provide additional assistance through the California Disaster Assistance Act (CDAA). The CDAA was created to assist the State to provide funding to local governments after a disaster and to manage regularity and administrative issues related to disasters. CDAA regulations govern the eligibility rules for disaster debris removal reimbursements within the State.
The CDAA provides regulatory guidance for three components of disaster finance and administration; emergency work, emergency protective measures, and debris removal.
CDAA Regulations, Section 2925 state that debris removal from publicly and privately owned lands and waters, undertaken in response to a state of emergency proclamation by the Governor is eligible for State financial assistance; and for purposes of this program, the removal of debris from private property shall be reimbursed only when there is an immediate threat to public health and safety.
OTHER FUNDING OPTIONS
Public entities may be eligible for other federal assistance programs for disaster debris management including:
Disaster Debris Management Plan December 2025
32 Federal Highway Administration Emergency Relief Program USDA Natural Resources Conservation Service Emergency Watershed Protection Program and Farm Services Agency Emergency Programs.
8.3 PROCUREMENT REQUIREMENTS
USE OF FORCE ACCOUNT RESOURCES
Force account resources must be accurately documented during the response and recovery operations. Often, the use of force account labor and equipment can apply to the public entity’s share for disaster-related costs. Labor and equipment expenses may be eligible for state and/or federal reimbursement if documented properly. The City will document the pre-existing condition for any equipment used for debris operations and determine if equipment is appropriate for debris operations. The City will provide training to personnel that will be involved in debris operations, to include those responsible for tracking costs.
USE OF PROCUREMENT AND CONTRACTED SERVICES
The City may find it necessary to contract for debris management services if operational needs exceed their force account resources, or if it is otherwise determined that securing contracted services is in their best interest. If contracted services are to be used for debris management including removal and monitoring, these contracts must meet federal procurement requirements to be eligible for potential federal disaster assistance. The City may also need to implement its emergency procurement procedures during a disaster debris management incident.
The City is responsible for conducting debris operations within areas under their authority to the greatest extent possible using internal resources, mutual aid, or contracted services. The use of resources, including staff, equipment, and supplies, will be documented and tracked by the local jurisdictions to support reimbursement of eligible expenses.
In the event that The City is unable to conduct their own debris operations, they can request assistance from the OA. The OA will provide support for debris operations to public entities within the OA in accordance with SEMS and approved mutual aid and operations plans.
Disaster Debris Management Plan December 2025
33 9.0 COMMUNITY OUTREACH
Public information following a disaster will be a coordinated effort in accordance with the principles of SEMS. Public information messages will be needed to get the public’s support and cooperation in debris management operations. Public information messages might be developed to communicate the following information:
The status of debris operations;
What the City is doing to manage debris;
The importance of getting debris to the ROW;
The importance of segregating debris in the ROW;
Clarification as to what constitutes the ROW;
What to do if assistance is needed in moving debris to the ROW; and The status of garbage pickup.
The City’s public information professionals will monitor public and media comments and correct any misinformation that could result in confusion among the general public and hinder debris operations.
As part of ongoing updates to the DDMP the City intends develop education and information programs that provide consistent messaging designed to familiarize people with their role in the diversion and disposal of debris wastes. The public information and education campaign will include press releases and public service announcements, social media posts, postings and storage of information at the City Library, and other methods deemed appropriate to maximize receipt of information by City residents.
Disaster Debris Management Plan December 2025
34 10.0 TRAINING
10.1 TRAINING
Personnel must be trained on debris policies and procedures to maintain a viable plan. The City will maintain an ongoing training and exercises program, which. will include debris operations training and exercises. The following provides recommendations for debris operations training:
The City will train new personnel in their specific job duties related to debris operations. Personnel with response responsibilities must maintain competence in SEMS as prescribed in Government Code §8607(c).
Personnel operating equipment must be trained to operate any equipment they are responsible for competently and safely.
Personnel performing debris monitoring tasks will be trained by the jurisdiction or a qualified designee.
Personnel with responsibility for preparing documentation for reimbursement should receive training on the FEMA Public Assistance Program. All personnel involved in response to a debris-generating incident should participate in a briefing on safety policies and procedures.
Individuals identified as debris managers will be trained in the regulatory requirements for debris operations including:
Health and safety;
Environmental and historical preservation;
Procurement;
Federal disaster grant programs;
Considerations for individuals with disabilities and access and functional needs; and Damage assessment for debris
Training options include the following:
FEMA E0202: Debris Management Planning for State, Tribal and Local Officials. This is a 4-day class designed to provide an overview of issues and recommended actions necessary to plan for, respond to, and recover from a major debris-generating event with emphasis on state, local and tribal responsibilities.
FEMA IS – 1009 Conditions of the Public Assistance Grant. This is a 7-hour course that is designed to identify strategies to better enable Applicants to execute the Public Assistance Grant, describe the Federal requirements for receipt of Federal funds, and inform Applicants of actions that may jeopardize Public Assistance grant funding and potential remedies for non-compliance.
FEMA IS – 0632a Introduction to Debris Operations. This is a 2-hour online course designed to familiarize participants with general debris removal operations and identify critical debris operations issues.
Disaster Debris Management Plan December 2025
35 Finance and administration staff responsible for documenting and tracking costs and activities will be trained in regulatory requirements for debris operations including procurement, Federal disaster grant programs, and documentation.
Training options include the following:
FEMA IS – 1000 Public Assistance Program and Eligibility. This is an 8-hour online course designed to provide an overview of Public Assistance project eligibility and requirements FEMA IS – 0632.a Introduction to Debris Operations. This is a 2 hour online course designed to familiarize participants with general debris removal operations and identify critical debris operations issues.
FEMA IS – 1009 Conditions of the Public Assistance Grant. This is a 7-hour course that is designed to identify strategies to better enable Applicants to execute the Public Assistance Grant, describe the Federal requirements for receipt of Federal funds, and inform Applicants of actions that may jeopardize Public Assistance grant funding and potential remedies for non-compliance.
10.2 EXERCISES
Exercises are essential to maintaining readiness and in determining the effectiveness of plans, personnel, and resources in responding to a debris-generating event. Workshops and exercises should be conducted periodically to test the ability of jurisdictions to coordinate resources for debris operations.
Following exercises, an after-action report will be developed to document strengths and areas needing improvement. An improvement plan will be developed to list corrective actions, identify individuals or agencies responsible for completing the corrective actions, as well as indicating a timeline for completion.
Disaster Debris Management Plan December 2025
36 11.0 AUTHORITIES AND REFERENCES
LOCAL AUTHORITIES
• Hayward Emergency Operations Plan, 2023
• Hayward Local Resilience Plan Update, 2023
• Hayward Solid Waste Authority Ordinance No. 97-01 Regulating Solid Waste, Green Waste And Recyclable Material Collection, Processing, Disposal And Litter10 • Hayward, CA Maintenance Agreements with the California Transportation Department (CalTrans) for the Intersection at Sycamore Valley Road and Camino Ramon and the 680 Auxiliary Lane Widening Project
• Hayward Solid Waste Authority Ordinance No. 19-1, An ordinance amending the construction and demolition debris program ordinance.
STATE AUTHORITIES
• Joint Exercise of Powers Act: Government Code § 6500 et seq. • California Disaster Assistance Act (CDAA), Title 19, California Code of Regulations o Section 2920 – Emergency Work
o Section 2930 – Emergency Protective Measures
o Section 2925 – Debris Removal
• California Environmental Protection Agency (CalEPA) Guidance for Conducting Emergency Debris, Waste and Hazardous Material Removal Actions Pursuant to a State and Local Emergency Proclamation, Appendix C
• California Governor’s Office of Emergency Services Debris Management Plan • California Health & Safety Code §§ 41800-41815
• California Integrated Waste Management Act of 1989, California Public Resources Code §§ 40000-49620
• California Hazardous Waste Control, California Health and Safety Code § 25100 et seq. • California Carpenter-Presley-Tanner Hazardous Substance Account Act, California Health and Safety Code § 25300 et seq.
• Porter-Cologne Water Quality Control Act, California Water Code § 13000 et seq. • Safe Drinking Water And Toxic Enforcement Act, California Health and Safety Code §25249.5 et seq.
• California Health and Safety Code §§ 25115-25117, 25249.8, 25281, and 25316
FEDERAL AUTHORITIES
• Clean Air Act, 42 U.S.C. § 7401 et seq.
• FEMA Comprehensive Planning Guide 102 Version 2
• FEMA Publication FP 104-009-2 – Public Assistance Program and Policy Guide 2020 • FEMA 329 Debris Estimating Field Guide, September 2010 • FEMA Public Assistance Alternative Procedures Debris Management Plan Job Aid • FEMA Public Assistance Alternative Procedures EMMIE Cost Codes for Debris Removal Disaster Debris Management Plan December 2025
37 • FEMA Public Assistance Alternative Procedures FAQ for Debris Removal • National Response Framework, Department of Homeland Security, October 2019 • National Disaster Recovery Framework, Department of Homeland Security, June 2016 • Sandy Recovery Improvement Act (SRIA), included as Division B of the Disaster Relief Appropriations Act, PL 113-2, signed into law January 29, 2013 • Robert T. Stafford Disaster Relief and Emergency Assistance Act, 42 U.S.C. § 5121 et seq., including the Sandy Recovery Improvement Act (SRIA), which amended Title IV of the Stafford Act, PL 113-2
• 23 U.S.C., § 125 – Emergency Relief, part of Moving Ahead for Progress in the 21st Century Act (MAP-21), signed into law July 6, 2012
• Uniform Administrative Requirements, Cost Principles, and Audit Requirements for Federal Awards, 2 C.F.R. § 200 et seq.
• Comprehensive Environmental Response, Compensation, and Liability Act (CERCLA), 42 U.S.C. § 9601 et seq.
• Emergency Planning and Community Right-to-Know Act, 42 U.S.C. § 11001 et seq. • Resource Conservation and Recovery Act, 42 U.S.C. § 6901 et seq. • Federal Clean Water Act, 33 U.S.C. § 1251 et seq.
• Toxic Substances Control Act, 15 U.S.C. § 2601 et seq. • Occupational Safety and Health Act, 29 U.S.C. § 651 et seq. • Hazardous Materials Transportation, 49 U.S.C. § 5101, et seq.
References
U.S. Department of Homeland Security Federal Emergency Management Agency (FEMA). 2023. National Preparedness Goal. (available at: https://www.fema.gov/emergency- managers/national-preparedness/goal)
U.S. Department of Homeland Security FEMA. 2023. National Response Framework. (available at: https://www.fema.gov/emergency-managers/national-
preparedness/frameworks/response).
U.S. Department of Homeland Security FEMA. 2023. Assistance for Governments and Private Non-Profits After a Disaster. (available at: https://www.fema.gov/assistance/public).
U.S. Department of Homeland Security FEMA. 2015. National Preparedness Goal Second Edition. Available at https://www.fema.gov/sites/default/files/2020- 06/national_preparedness_goal_2nd_edition.pdf.
U.S. Department of Homeland Security FENA. 2017. Emergency Management Institute Debris Management Plan Development Course, Lesson 8: Contracted Services. Available at:
https://emilms.fema.gov/is_0633/groups/194.html.
U.S Department of Homeland Security FEMA. 2019. National Response Framework Fourth Edition. Available at https://www.fema.gov/sites/default/files/2020- 04/NRF_FINALApproved_2011028.pdf.
Disaster Debris Management Plan December 2025
38 U.S. Department of Homeland Security FEMA. 2020. Public Assistance Program and Policy Guide. Available at https://www.fema.gov/sites/default/files/documents/fema_pappg-v4- updated-links_policy_6-1-2020.pdf.
U.S. Department of Homeland Security FEMA. 2021. FEMA Debris Monitoring Guide. Available at https://www.fema.gov/sites/default/files/documents/fema_debris-monitoring- guide_sop_3-01-2021.pdf.
•
Disaster Debris Management Plan December 2025
39 APPENDIX A – DEBRIS ESTIMATION (HAZUS)
EARTHQUAKE SCENARIO ASSUMPTIONS AND DEBRIS ESTIMATE
For the earthquake scenario, Hazus, a program developed by FEMA to aid jurisdictions in estimating damage and debris, was used to run three earthquake scenarios.
Table A.1. Concord-Green Valley Fault Earthquake Debris Estimate Jurisdiction
Type 1
Debris
(CY)
Type 2
Debris
(CY)
Total (CY) DMS Acres
Needed
Trucks
Needed
Personnel
(Debris Monitors)
Hayward, CA 10,131.62 2,905.08 13,036.70 1 3 1
Notes:
CY – Cubic Yards
Type 1 Debris – Brick, wood, and other debris in CY
Type 2 Debris – Wrecked reinforced concrete and steel members
FLOODING SCENARIO ASSUMPTIONS AND DEBRIS ESTIMATE
Three flooding scenarios are listed below. The scenarios include a 10 percent annual flooding chance, a 1 percent of chance of flooding (100-year flood), and a 0.2 percent chance of flooding (500-year flood).
Table A-2. 10% Flooding Debris Estimate
Jurisdiction 10% Annual Flood
in Cubic Yards
DMS Acres
Needed
Trucks
Needed
Personnel (Debris
Monitors)
Hayward, CA 180 5 1 1
SEVERE WEATHER EVENT SCENARIO ASSUMPTIONS AND DEBRIS ESTIMATE The City is susceptible to severe weather including flooding and strong winds. For this reason, the U.S. Army Corps of Engineers (USACE) hurricane debris estimation model was used to determine the type and volume of debris for each jurisdiction. Though it is unlikely that The City will experience a hurricane, a Category 1 hurricane was used because it most closely resembled the type of conditions related to wind speed and flooding the City could experience in a severe weather incident. • USACE formula: Q=H(C)(V)(B)(S)
Where:
Q = Cubic Yard (CY) of debris
Disaster Debris Management Plan December 2025
40 H = Number of households in the community
C = Storm category factor (Storm category 1, multiplier = 2) V = Vegetative multiplier (Medium vegetative cover, multiplier =1.3) B = Commercial multiplier (Medium commercial multiplier = 1.2)
S = Precipitation multiplier (medium to heavy rains multiplier = 1.2) • Estimated allocation of construction and demolition (C&D) to vegetative debris:
o C&D debris 30%
o Vegetative debris 70%
Table A-3. Severe Weather Debris Estimates
Jurisdiction Households
Debris
Estimate
(CY)
C&D
(CY)
Vegetative
(CY)
DMS
Acres
Needed
Trucks
Needed
Personnel
(Debris
Monitors)
Hayward, CA 15,959 59,750 17,925 41,825 5 10 5
Notes:
CY – Cubic Yards
WILDFIRE SCENARIO ASSUMPTIONS AND DEBRIS ESTIMATE
Portions of The City are susceptible to a wildfire incident. Using data from past California wildfire incidents compiled by consultants to the state, a formula was used takes into consideration the number of parcels damaged by fire, average tree density in the area, the average size of the trees, as well as the types of housing structures that might be in the path of the fire.
Table A-4. Wildfire Debris Estimates
Jurisdiction Parcels at
Risk
Debris
Estimate
(CY)
DMS
Acres
Needed
Trucks Needed
Personnel
(Debris
Monitors)
Hayward 322 80,135 5 12 6
Notes:
CY – Cubic Yards
Disaster Debris Management Plan December 2025
41 APPENDIX B – TEMPORARY DEBRIS MANAGEMENT SITE (TDMS)
CONSIDERATIONS
TDMS IDENTIFICATION AND PREPARATION
Concurrent to emergency roadway clearance and damage assessments, affected jurisdictions need to identify and prepare TDMS locations. The purpose of a TDMS is to temporarily store debris and conduct some form of debris reduction method before the debris is transported to a final disposal facility. Parks and jurisdiction-owned properties can be used as possible TDMS locations. In addition, land within transfer stations or solid waste facilities can be utilized as TDMSs. This can be desirable because of their ability to immediately accept debris.
There are several potential TDMSs in The City. These will be further vetted and included in the next version of the DDMP. Debris brought to a TDMS is sorted to remove recyclable materials and materials not suitable for reuse. The materials not suitable for reuse are taken to a landfill.
Ideally, all concrete rubble would be processed at the TDMS into reusable aggregate. This option may be considered if space, site characteristics, and available resources allow.
The size of the site is dependent on the quantity of debris that needs to be stored and processed. The site should be large enough to safely accommodate processing of various debris materials, storing heavy equipment, and maneuvering trucks and large processing equipment.
The TDMS should be established in an area that does not impede the flow of traffic along major transportation corridors, disrupt local business operations, or cause dangerous conditions in residential neighborhoods or schools. Whenever possible, avoid locating a TDMS near residential areas, schools, churches, hospitals, and other such sensitive areas.
The City needs to consider community acceptability when selecting a potential TDMS. The community’s acceptance of the TDMS location usually depends on the debris reduction methods that will be conducted at the site. Smoke from burning, around-the-clock light and noise from equipment operation, dust, and traffic are generally tolerated early in a disaster recovery operation but may have to be curtailed later in the recovery phase.
The following factors should be taken into consideration when identifying a debris management site:
Current availability
Duration of availability
Site ingress/egress
Geographic location within the jurisdiction
A minimum of 10 acres of usable land
Well drained site with soils suitable for supporting heavy vehicles and equipment Easy access to transportation routes
Disaster Debris Management Plan December 2025
42 Strategic placement to minimize debris transportation requirements and travel time to and from loading points; TDMS should be located as close as possible to the concentrations of disaster debris
Access to electrical and water utilities for site operations Minimum potential for disruption of critical services
Potential locations for a TDMS may include the following:
Recycling facility
Landfill
Transfer station
Vacant lot
Corporation yard
Parks
Large parking lot
Right of way
Jurisdiction owned property
Private property
SITE APPROVAL
TDMS locations will require approval from The Alameda County Environmental Health Department and CalRecycle as well as permits from the agencies listed below.
An Emergency Waiver of Standards grants a landfill operator temporary relief from specific standards such as permitted capacity, throughput, and acreage. Existing operations may pursue such a waiver with the LEA for CalRecycle in accordance with the California Code of Regulations, Title 14, Section 17210.
The use of closed landfills and planned solid waste facilities will require permission from Alameda County Health Department and appropriate local land use and other jurisdictional agencies.
Environmental permits and land-use variances may be required during removal operations for TDMS(s). Selection of sites may require review and approval under the California Environmental Quality Act.
Permits may include:
Waste processing and recycling operations permit
Temporary land use permits
Land use variances
Traffic circulation strategies
Air quality permits
Water quality permit
Coastal commission land use permits
Household hazardous waste permits
Fire department permits
Disaster Debris Management Plan December 2025
43 After a review of the availability and suitability of a TDMS, site preparation can begin. As part of the preparation, baseline data should be gathered from the site to document the state of the land before debris is deposited. The following action items are recommended to compile baseline information:
Photograph the site – Digital photos should be taken to capture the state of the site before debris reduction activities begin. Photos should be updated periodically throughout the project to document the progression of the site.
Record physical features – Records should be kept detailing the physical layout and features of the site. Items such as existing structures, fences, landscaping, etc., should be documented in detail.
Historical evaluation – The past use of the site area should be researched and documented. Issues relating to historical or archeological significance of the site should be cleared with the state historical preservation agency.
Sample soil and water – If possible and deemed necessary, soil and groundwater samples will be taken before debris reduction activities commence. Samples will help ensure the site is returned to its original state. Typically, soil and groundwater samples should be analyzed for total RCRA metals, volatile organic compounds, and semi- volatile organic compounds using approved U.S. Environmental Protection Agency (EPA) methods.
DEBRIS REDUCTION METHODS
Once debris is collected from the public ROW, it is transported to a TDMS where it is segregated and reduced. Reduction methods include:
Chipping and Grinding – Using this method, vegetative debris is chipped or ground and typically results in a reduction ratio of up to 4:1. Factors such as debris composition, weather, site conditions, and other factors may impact the reduction ratio. The leftover mulch is either hauled to a final disposal facility or recycled.
Incineration – Although incineration is rarely authorized, there are circumstances where a public entity can request to reduce debris through burning. The burning of vegetative debris typically results in a reduction ratio of up to 20:1. Factors such as debris composition, weather, site conditions and other factors may impact the reduction ratio.
The leftover ash may be hauled to a final disposal facility or be incorporated in a land application.
Crushing – The crushing of vegetative debris is the least effective reduction method and results in a reduction ratio of up to 2:1. Crushing is an appropriate reduction method for C&D debris that cannot be recycled. However, if crushing is used to reduce C&D debris, the residual debris must show a reduction in volume.
Disaster Debris Management Plan December 2025
44 APPENDIX C – CALEPA DEBRIS REMOVAL GUIDANCE
CalEPA provides guidance for local and state agencies to conduct disaster debris, waste and hazardous material removal activities. The following section includes best management practices from CalEPA to be considered to address the removal of hazardous materials, household hazardous waste (HHW), debris, asbestos containing materials (ACM), and air monitoring and sampling from the disaster or incident site.
HEALTH AND SAFETY
Given that ash may contain elevated levels of heavy metals and/or asbestos, an exclusion zone will be established around each site during debris removal operations. All personnel entering this area will be required to wear Level C protective attire.
It is recommended that all on-site cleanup personnel entering the exclusion zone must be 40- hour HAZWOPER trained Under 29 CFR 1910.120, and CCR Title 8, Section 5192, and will be required to wear Level C personal protective equipment (PPE).
A full-time health and safety officer will be assigned to the project. It is recommended that the health and safety officer be a certified industrial hygienist. Depending on the task and activity, all cleanup contractors working on-site must have the following certifications and licenses:
State Contractor’s License – Must include an asbestos certification component (if conducting ACM removal), and general engineering, demolition and hazardous substance certifications depending on the task performed. Department of Occupational Safety & Health Asbestos Registration Number (if conducting ACM removal)
Hazardous Waste Transporter Registration Number – Issued by California Department of Toxic Substances Control RCRA EPA ID Number – Issued by US Environmental Protection Agency, Region 9
US Department of Transportation, Pipeline and Hazardous Materials Safety Administration – Hazardous Material Certificate of Registration California Highway Patrol – Hazardous Materials Transportation License US Department of Transportation, Federal Motor Carrier Safety Administration – US Department of Transportation Identification Number
California Department of Motor Vehicles – Motor carrier permit
HAZARDOUS MATERIALS AND HOUSEHOLD HAZARDOUS WASTE
Standard operating procedures for conducting hazardous material (HAZMAT) assessment activities should be followed pursuant to Cal/OSHA and OSHA HAZWOPER requirements.
Prior to commencing debris removal activities, all areas are to be cleared of HAZMAT, including the removal of easily identifiable (visible) gross asbestos, radioactive, and explosive materials.
Disaster Debris Management Plan December 2025
45 Explosive material includes firearms and ammunition, black powder, blasting caps, some fireworks, and military ordinance. If explosive materials are identified on-site, they should be handled by trained personnel and removed immediately to ensure safety of the public. If local agencies are unable to address explosive materials through their cleanup contract resources, contact the local law enforcement authority to provide assistance.
Prior to the removal of HAZMAT and HHW, a California Division of Occupational Safety and Health (Cal/OSHA) Certified Asbestos Consultant (CAC) should assess and sample all residential areas, and other affected areas of the site, to identify and remove gross asbestos. This is to ensure that any areas identified as containing gross asbestos material will not be disturbed by HAZMAT cleanup personnel.
Any ACM that is not found on the ground due to natural forces may be subject to National Emission Standards for Hazardous Air Pollutants (NESHAP) requirements.
Once the removal of easily identifiable gross asbestos has been completed, HAZMAT and HHW may be identified, segregated, classified, and properly removed from the site.
Initial hazmat assessment activities must include screening for radioactivity and ensuring that a flammable atmosphere does not exist. Typical HAZMAT includes HHW such as:
Automotive/marine batteries;
Automotive oils and fuel;
Compressed gas cylinders;
Propane tanks;
Herbicides and pesticides;
Solvents;
Paint thinners and strippers;
Oil and latex-based paints; and
Pool chemicals.
The following standard procedures are recommended by CalEPA:
The property, site, or affected area of the disaster should be assessed for HAZMAT and HHW.
A Cal/OSHA CAC will be utilized to assess the area or each residential or commercial property for easily identifiable and removable pieces of ACM. After assessing each property or area, the CAC will consult with a licensed asbestos removal contractor to identify the location and area of ACM to be removed.
A Cal/OSHA certified Asbestos Removal Contractor will be responsible for overseeing the safe removal of ACM identified on-site by the CAC.
All on-site personnel working to remove ACM must have received the necessary health and safety training for conducting asbestos removal activities pursuant to OSHA regulations (29 CFR 1910.1001), and CCR Title 8, Section 5192, and will be required to wear Level C PPE when working in the exclusion zone.
Disaster Debris Management Plan December 2025
46 All gross ACM that can easily be removed from the site will be adequately wetted prior to being bagged or bulked for removal. The easily identifiable gross ACM can be double- bagged and appropriately labeled as ACM. (At a minimum, the plastic bags must be of at least 6-mil thickness.)
If bulk loading of ACM is utilized, the bin or container used for transport (e.g., end-dump trailer or roll-off box) shall be double-lined with 10-mil poly in such a way that once loaded both layers can be sealed up independently.
HHW and HAZMAT identified on-site will be characterized, segregated, staged, consolidated, and packaged for transport and disposal by a licensed environmental contractor.
All on-site cleanup personnel must be 40-hour HAZWOPER trained under 29 CFR 1910.120, and CCR Title 8, Section 5192.
All hazardous waste and HHW removed from the site will be manifested and transported to a permitted treatment, storage, and disposal facility in good standing with local, state, and federal agencies.
Disposal facility emergency waivers and suspension of regulations for disposing of hazardous wastes generated from a disaster or large-scale event must be coordinated with the CalRecycle local enforcement agency (LEA) and the Regional Water Quality Control Board.
DEBRIS AND ASBESTOS CONTAINING MATERIAL
If burn ash or building material on the ground is from structures completely destroyed by natural forces (as opposed to structures demolished in whole or in part by human activity), this material is not subject to the Asbestos NESHAP as it relates to the demolition and renovation, transport and disposal requirements. If the building material and debris is not completely destroyed and requires further demolition, it may be subject to the Asbestos NESHAP.
At a minimum, the following best management practices should be used for undertaking debris and asbestos containing debris removal activities:
California Cal/OSHA CAC will be utilized to assess the area or each residential or commercial property for easily identifiable and removable pieces of ACM. After assessing each property or area, the CAC will consult with a licensed asbestos removal contractor to identify the location and area of ACM to be removed. A Cal/OSHA registered Asbestos Removal Contractor will be responsible for overseeing the safe removal of ACM identified on-site by the CAC.
All on-site personnel working to remove ACM must have received the necessary health and safety training for conducting asbestos removal activities pursuant to OSHA 1910.100, and CCR Title 8, Section 5192, and will be required to wear Level C PPE when working in the exclusion zone.
As noted in Sub-Section a. Health and Safety (above), all on-site cleanup personnel must be 40-hour HAZWOPER trained Under 29 CFR 1910.120, and CCR Title 8, Section 5192.
Disaster Debris Management Plan December 2025
47 The affected disaster or incident area (commercial, residential, or rural properties) will be screened by a CAC to identify all gross ACM that can be easily removed from the ground or structure prior to debris removal activities. Request an asbestos consultation from the state or local Air Quality Management District (AQMD) for any structure that is not completely destroyed or for any structure with vermiculite insulation, for large-facility components or material that will be broken up upon movement, or for other asbestos issues as identified by the CAC. Note: Current field definition of destroyed means the structure does not have a roof or any load bearing walls.
During asbestos screening process, it is recommended that bulk samples be collected from 10 to 20 percent of the representative structures that have not been destroyed to determine the presence of ACM above NESHAP regulations, and to ensure residual building materials do not contain asbestos that may change the overall waste classification.
All gross ACM that can be safely and easily removed from the site will be adequately wetted prior to being bagged or burrito wrapped to meet the NESHAP leak-tight requirement for removal. The easily identifiable gross ACM can be double-bagged and appropriately labeled as ACM. (At a minimum, the plastic bags must be of at least 6-mil thickness, and the contents must remain wet.)
If bulk loading of ACM is utilized, the bin or container used for transport (e.g. end-dump trailer or roll-off box) shall be double-lined with 10-mil poly in such a way that once loaded both layers can be sealed up independently.
Conduct on-site and off-site air monitoring and sampling for asbestos and heavy metals during all ACM and debris removal operations to demonstrate the effectiveness of engineering controls to protect cleanup personnel and the surrounding community. Engineering controls must be utilized to maintain dust and fiber control during removal activities. A water fog must be used during debris handling, bulking/bagging, and waste loading operations. It is recommended that cleanup contractors will use fire grade firefighting nozzles with shut off valves for dust control. The fire nozzle shall have sufficient water pressure to generate a high mist fog stream. The fire nozzle should have an adjustable flow rate, preferably 20 to 60 gallons per minute, and constructed of hard coated aluminum with brass and stainless steel internal components. Plastic nozzles should not be used. While the costs of metal firefighting nozzles are significantly more than plastic nozzles, only metal nozzles are able to generate a sufficient fog to control dust.
All burn ash and debris must be sufficiently wetted 48 to 72 hours in advance of initiating removal of the material. The water shall be applied in a manner so not to generate significant runoff. Engineering controls for storm water discharges must be in place prior to dust control operations.
All waste material that is not loaded out at the end of each workday should be stockpiled, sufficiently wetted, and/or covered to prevent the off-site migration of contaminants.
All waste haulers who observe loading operations outside of the vehicle cab, and/or covering (e.g., tarping) the trailer or container must wear Level C PPE.
Disaster Debris Management Plan December 2025
48 All approved landfill operators that may come in contact with the waste during off-loading operations should follow their facilities protocols for wearing PPE and respiratory protection.
All ACM and debris removed from the property, site or area must be manifested and transported for disposal to a permitted treatment, storage, and disposal facility in good standing with local, state, and federal agencies.
Cal/OSHA may require procedures for the receiving landfill facility to establish an appropriate site safety plan for the protection of the facility employees to potential ACM in the waste stream.
Disposal facility emergency waivers, and suspension of regulations for disposing of wastes generated from a disaster or large-scale event, must be coordinated with the CalRecycle local enforcement agency (LEA) and the Regional Water Quality Control Board.
AIR MONITORING AND SAMPLING
To demonstrate the effectiveness of best management practices and the engineering controls used during emergency debris removal actions, air monitoring and sampling activities should be conducted in the exclusion zone (on-site) and along the perimeter of the site (community-based) during removal activities, as well as non-work hours to establish relevant background air pollution levels.
ON-SITE AIR MONITORING
An on-site (industrial hygiene) air monitoring program is defined as one conducted within the immediate debris removal area with the objective of protecting occupational health and quantifying dust mitigation practices. Document on-site air monitoring activities in a site-specific Health and Safety Plan (HASP).
All personnel entering the immediate removal area should be required to wear Level C PPE, as defined in CCR Title 8 Section 5192; this level of PPE may be downgraded based on results of industrial hygiene air sampling.
Sample/monitor for dust, heavy metals, and asbestos. Particulate matter monitoring shall be done by direct reading instruments for real-time analysis. Heavy metal sampling can be conducted via cartridge or filter analysis using National Institute for Occupational Safety and Health (NIOSH) Method 7300 (metal scan). Asbestos samples should be collected with a 50mm antistatic cowel on a 25mm Mixed Cellulose Ester filter (MCEF) cassette and analyzed by transmission electron microscopy (TEM) NIOSH Method 7402 (high volume). Collect at least one upwind and two downwind dust samples from the immediate debris removal area in a triangular configuration.
Personal air sampling collected in the breathing zone of site cleanup workers should be conducted for dust, heavy metals, and asbestos; Sampling can be representative rather than comprehensive so long as monitored personnel represent of various on-site operators, laborers, and supervisors.
Disaster Debris Management Plan December 2025
49 The on-site air monitoring program shall include steps to modify debris removal operations to reduce the potential for exposures above the NIOSH Recommended Exposure Limits, the Threshold Limit Values published by the American Conference of Governmental Industrial Hygienists, or other protective occupational health guidance used in the site-specific HASP.
It is recommended that a full-time safety officer be assigned to the removal operations, preferably a CIH. At the conclusion of the debris removal project, a summary of air monitoring activities and any resulting health and safety issues should be provided to the project manager or Operations Chief.
OFF-SITE AIR MONITORING
No off-site migration and/or emission of dust or airborne contaminants is expected from disaster debris removal operations when appropriate dust mitigation controls are in place. However, a community-based air monitoring program may be established to monitor off-site migration of airborne contaminants, especially if adjacent neighborhoods are reoccupied.
Sampling or monitoring can also target sensitive population centers or locations such as schools and hospitals. While community monitoring is not required during disaster recovery efforts, increased community sensitivity following a disaster may justify a monitoring program.
Coordinate any monitoring and sampling efforts with County environmental health departments and local AQMDs. Additional state and federal resources are available if local resources are unavailable or exhausted. The favored approach is an interagency effort with either the Air District or local health department as the lead agency.
Develop a Sampling Plan and document community monitoring activities in a Community HASP.
Monitoring may be for particulate matter alone or in combination with asbestos or other suspected contaminants. Particulate matter can serve as a proxy for the migration of other particulate-type airborne contaminants, but not gases and aerosols, which need separate monitoring.
Direct read or near real-time dust measurement instrumentation such as a data ram is preferred and allows immediate feedback to removal operations and to impacted communities. If instituted, community monitoring should be conducted in both upwind and downwind locations relative to debris removal operations and/or the immediate impacted area.
Occupational health recommendations cannot be used in determining risk to public health. Only public health guidance values can be used to interpret community monitoring data. Twenty- four-hour average particulate matter concentrations (PM2.5 or PM10) should be equal to or less than 35 µg/m3; 8-hr averages should be equal to or less than 50 µg/m3; and, 3hr averages should be equal to or less than 88 µg/m.
STORM WATER CONTROLS
One of the most prevalent water pollution threats from burn sites is the discharge of ash and other burn related debris into storm drains or natural receiving waters. Sites where debris and ash have been removed are often graded and have soils prepared similar to those of construction projects.
Disaster Debris Management Plan December 2025
50 Debris removal and site clearing activities increase the exposure of soils to wind, rain, and concentrated flows that cause erosion and adversely impact storm water quality with high levels of total suspended solids and many other pollutants, which subsequently impacts surface waters.
The main objective is to provide best management practices that stabilize disturbed soil and reduce sediment transport caused by erosion from entering a storm drain system or receiving water body during debris removal after a disaster. Best management practices for storm water controls may include the use of fiber rolls, silt fences, erosion control blankets, hydro seeding, soil binders, and other devices to reduce sediments.
Effort should be made to preserve existing vegetation, if practicable. Once the removal has been completed, operation and maintenance of storm water control measures must be maintained by the property owner or the local government.
REDUCTION OF DISASTER DEBRIS BY BURNING
The California Health & Safety Code (HSC) § 41800 prohibits individual persons from using fire to dispose of waste. This applies to individual property owners and tenants. HSC § 41800 has rarely been waived by a Governor’s Proclamation of Emergency. However, HSC§ 41801 does establish specific authority for any public officer, including the Governor, to set or permit fires for the following purposes:
The prevention of a fire hazard that cannot be abated by any other means. The instruction of public employees in the methods of fighting fire. The instruction of employees in methods of fighting fire, when such fire is set, pursuant to permit, on property used for industrial purposes.
The setting of backfires necessary to save life or valuable property pursuant to Section 4426 of the Public Resources Code.
The abatement of fire hazards pursuant to HSC Section 13055. Disease or pest prevention, where there is an immediate need for and no reasonable alternative to burning.
The remediation of an oil spill pursuant to Section 8670.7 of the Government Code.
Burning debris should be coordinated with the Bay Area Air Quality Management District.
Guidance for burning disaster debris can be found on the Bay Area Air Quality Management District web page at https://www.baaqmd.gov/permits/open-burn.
HISTORICAL CONSIDERATIONS
There are a number of historical properties in the City. The city will ensure that guidelines in accordance with CEQA are adhered to regarding those properties. In addition, in the event a project funded by FEMA has the potential to affect one of these historical properties, FEMA is required to conduct a Section 106 consultation.
Disaster Debris Management Plan December 2025
51 Section 106 of the National Historic Preservation Act (NHPA) requires federal agencies to enter a four-step consultation process if historic properties may be affected by a federal “undertaking” as defined in the Act. The four steps are listed below:
1. FEMA initiates the Section 106 consultation process
2. Historic properties are identified and evaluated – FEMA will assess the significance of the properties and consult with the State Historic Preservation Officer (SHPO) or Tribal Historic Preservation Officer (THPO)
3. Adverse effects are assessed – FEMA will consult with the SHPO and THPO to determine if there will be any adverse effects to the properties. If it is determined there will be no adverse effects, the project may proceed.
4. Adverse effects are resolved – If it is determined there would be adverse effects, FEMA will consult with affected parties to determine ways to minimize the adverse effects on the properties.
Disaster Debris Management Plan December 2025
52 APPENDIX D – PUBLIC INFORMATION HEALTH AND SAFETY
CONSIDERATIONS
Lead in Damaged Materials or Debris - Homes built before 1978 are likely to contain lead- based paint, which may flake after being soaked by flood water. Lead is a toxic metal that causes many negative health effects, especially in children. Disturbing materials containing lead-based paint may release lead dust into the air. If you suspect that debris in your home is contaminated with such paint, seek help from public health authorities or specially trained contractors.
Contaminant Sediment - The sediment left behind by receding flood water often contains a wide variety of pollutants. They can include fuel oils, gasoline, human and animal waste, metals, and other material. Health officials caution against contact with sediment, if possible. If you do come in contact with it, wash any exposed skin with soap and water and change into clean clothing.
Asbestos in Debris - Older buildings may contain asbestos. Pipe or other insulation, ceiling tiles, exterior siding, roof shingles, and sprayed-on soundproofing may contain asbestos. If your home contains asbestos and may have been damaged or will be disturbed during cleanup, contact public health authorities.
Household Hazardous Waste - When returning to flood-damaged homes and buildings, be alert for leaking containers and household chemicals, such as caustic drain cleaners and chlorine bleach. Keep children and pets away from leaking or spilled chemicals. Do not combine chemicals to avoid dangerous or violent reactions. Do not dump chemicals down storm sewers, drains, or toilets. Mark and set aside unbroken containers until they can be properly disposed of.
Use of Chainsaw to Clear Debris - Over 35,000 people are injured by chainsaws yearly in the United States. Understand how to use the equipment and follow the instructions while using these tools for debris operations.
Read your owner’s manual.
Wear proper safety gear, including eye and hearing protection, heavy work gloves, and work boots.
Check controls, chain tension, and all bolts and handles to ensure they are functioning properly.
Fuel your saw at least 10 feet from sources of ignition. Clear debris that may interfere with cutting.
Keep hands on the handles, and secure footing.
Do not cut directly overhead or overreach with the saw. Be prepared for kickback.
Make sure someone is nearby to help you in case of an emergency. Understand that emergency responders are addressing issues related to the disaster so response times might be delayed.