Section 514.07. Miscellaneous requirements for plans of operation.

  The plan of operation for all new landfills and expansions of existing landfills shall include the following information where applicable:

(1)   Geosynthetics requirements. The plan of operation for any landfill which includes a composite liner, composite capping layer or utilizes a geomembrane for a liner or utilizes a geomembrane or geomembrane-GCL for a capping layer shall provide the following design details and specifications for the geosynthetic components. The department may specify additional requirements for other geosynthetic materials used in significant structural features of the landfill.

(a) A description of the proposed geomembranes, GCLs and other geosynthetics to be used in construction of the landfill, including resins and additives, physical properties, bentonite characteristics, chemical resistance properties and potential suppliers. For GCLs, this shall include identification of the geotextile properties and reinforcement.

(b) Design calculations that demonstrate the stability of the landfill and its components against failure along potential failure surfaces, such as the leachate collection system and final cover, during operations as well as after closure. Potential failure surfaces considered shall include the interfaces both below and above the geomembrane in the liner and final cover. Potential failure scenarios considered shall include both saturated and unsaturated conditions for the cover. The design calculations may use typical data or specifications from technical literature rather than values from testing of site specific materials if the sources of the typical data or specifications and the test methods used to generate them are cited with the calculations and a safety factor of at least 1.3 is used to assess stability.

(c) Construction methods and supervisory controls for preparing the surface of the topmost lift of compacted clay prior to the installation of a geomembrane or soil barrier layer prior to installation of a GCL. The plan of operation shall propose inspection methods and removal of coarse gravel or cobbles after rolling the topmost lift of compacted clay or soil barrier layer to achieve a smooth surface.

(d) A description of measures to be taken to store and protect all geomembranes, GCLs and geocomposite drains, transport geomembrane, GCL and geocomposite drain panels from storage to the working area, and construction methods to be used to place geomembrane, GCL and geocomposite drain panels.

(e) The proposed orientation of all geomembrane and GCL panels for the landfill liner and capping layer in relation to slope, collection trenches, penetrations, anchor trench and phase boundaries, seaming methods and phased construction.

(f) Typical design details of geomembrane and GCL seams and seaming methods, anchor trenches, patches, collars for all penetrations, installation in corners and leachate collection trenches. The plan of operation shall describe acceptable working conditions for geomembrane, GCL and geocomposite drain installation, installation instructions for working under weather variations and extremes, and criteria for halting or limiting GCL and geomembrane installation.

(g) Proposed methods for testing welds or other joining methods for geomembranes and other components or penetrations if geomembranes used in previously constructed phases are obtained from different manufacturers or are made from different resins. The plan of operation shall also include measures to preserve the edges of geomembranes and GCLs to be joined to future phases and describe measures to repair all geomembrane, GCL and geocomposite drain defects, unacceptable wrinkling, and unacceptable seams.

(h) Construction methods for placing the leachate collection system, sump backfill, and sideslope riser over the composite liner; the first 10 feet of wastes over the leachate collection system; and subsurface drain layer and rooting zone soils over the composite cap. The measures shall assure that the geomembrane and GCLs are not damaged by construction of soil layers, placement or compaction of wastes, waste consolidation or mass movements or puncturing of the geomembrane.

(i) A construction quality control plan that will be followed by all contractors preparing the surface of the compacted clay liner or soil barrier layer, constructing the geomembrane liner and placing drainage blanket. The construction quality control plan shall include means for determining and documenting: receipt of the proper geomembrane, GCL and geocomposite drain material; acceptable subgrade and weather conditions for work to occur; seamer qualifications and procedures for trial seams; acceptability of test welds and machine settings; acceptable seaming practices; achieved seam quality and procedures for dealing with failing tests; patching; and sealing of geomembrane penetrations. The construction quality control plan shall also describe how progress in construction, as well as any variations from the approved plans, will be recorded and reported.

(j) A construction quality assurance plan that will be followed by the registered professional engineer and qualified technician responsible for evaluating the construction and ensuring that the fabrication and installation meet design specifications. The construction quality assurance plan shall include continuous observation of all aspects of geomembrane, GCL and geocomposite drain installation activities by qualified engineers or technicians. The construction quality assurance plan shall include use of nondestructive and destructive testing of seams and samples and shall propose a schedule of tests and associated frequencies in accordance with those specified in ch. NR 516 . The construction quality assurance plan shall include proposed methods of verifying the acceptability of the prepared subgrade, repairs, patches, penetrations, seams, and adaptations by the owner and contractors to unforeseen conditions.

(k) An outline of the contents of the anticipated preconstruction submittal which complies with the requirements of s. NR 516.04 (5) concerning geomembrane and GCL construction and which will be prepared and submitted prior to each construction event.

(L) A construction quality assurance plan for conducting a leak location survey on the installed geomembrane. The leak location survey shall be conducted after placement of the leachate collection layer for a composite liner. The quality assurance plan shall include continuous observation of all aspects of the leak location survey testing by qualified professional engineers or technicians. The quality assurance plan shall include use of nondestructive methods to detect, locate and verify repairs of defects in geomembrane. The quality assurance plan may include electrical resistivity testing or other testing methods acceptable to the department.

(2)   Codisposal of industrial solid wastes . The plan of operation for any landfill which accepts municipal solid wastes shall describe measures to be taken for the disposal of solid wastes from industrial sources, cleanups of spills and contaminated sites, or other commercial activities. The plan of operation shall propose lists of waste categories, testing protocols and schedules, and disposal protocols. The plan of operation shall describe the format for transmitting summary information to the department.

(3)   C LOSURE OF LANDFILLS WITH COMPOSITE LINERS AND COMPOSITE CAPS . The plan of operation for any landfill which accepts municipal solid wastes may propose to delay final cover placement for one or more years after attaining final waste grades in each phase of closure provided the following requirements are followed:

(a) Intermediate cover consisting of a minimum of one foot of soil shall be placed and the area shall be seeded as portions of a phase reach waste final grades.

(b) No additional waste placement shall occur in areas which have reached waste final grades and received intermediate cover.

(c) For landfills designed with active gas extraction systems, the components of the active gas extraction system within each phase shall be installed and made operational following attainment of waste final grades within that phase. The blower, flare, driplegs, controls, condensate handling, and appurtenances of the gas extraction system shall be installed prior to or as part of the attainment of waste final grades within the first phase of waste filling.

(4)   Closure of papermill sludge landfills. The plan of operation for a landfill designed to accept pulp and papermill sludges or other low-strength wastes may propose that final cover placement be delayed after completing placement of the support layer in each phase of closure. The time period of the delay shall be limited to 2 years unless otherwise approved by the department. The proposal shall also justify why the delay in final cover placement is warranted.

(5)   Municipal solid waste combustor residue management plans. The plan of operation for any landfill which proposes to accept municipal solid waste combustor residue shall include a residue management plan. The department may approve residue management plans for facilities which have approved plans which are substantially equivalent to the requirements of ss. NR 514.04 to 514.08 .

(a) All residue management plans shall contain the name and location of the proposed sources and the expected volume from each source of municipal solid waste combustor residue to be accepted.

(b) All residue management plans shall establish a timetable for evaluating the results of the testing requirements of s. NR 502.13 (8) and any trends in the results from previous testing periods to determine the need for any changes to the proposed landfill design or operation.

(c) The residue management plan shall include plan sheets which address the design requirements of s. NR 504.11 and include plan views, cross-sections and details as necessary to illustrate the applicable design features of the portion of the landfill which will be utilized for disposal of municipal solid waste combustor residue. Phasing plan sheets shall also be included to show development of that portion of the landfill through time.

(d) The residue management plan shall contain an operations manual and design report which describes the daily operation of the portion of the landfill to be utilized for disposal of municipal solid waste combustor residue, including a discussion of the timetable for the phases of development; waste types accepted or excluded; typical waste handling techniques and methods for handling unusual waste types; hours of operation; traffic routing; drainage and erosion control; windy, wet and cold weather disposal operations; methods for dust control; and direction of filling. Methods to maintain compliance with the requirements of s. NR 506.15 shall also be described.

(e) The residue management plan shall propose any modifications to the groundwater, unsaturated zone and leachate monitoring program necessary to comply with the requirements of ch. NR 507 .

(6)   Other requirements. The plan of operation shall provide the following details and specifications, where applicable. The department may specify additional requirements.

(a) Descriptions of alternative cover materials to be used for daily or intermediate cover.

(b) Description of a 24 hour leak test for the geomembrane component of lysimeters and sumps for sideslope risers. Alternative leak detection methods, such as electrical resistivity may be proposed.

(c) Documentation of the strength of the selected resin, diameter and wall thickness of the sideslope riser pipe, with regard to maximum overburden weight over the sumps of municipal solid waste or industrial waste at field capacity. The plan of operation shall include a description of physical and hydraulic specifications of commercially available pumps that are able to traverse any bend or elbow in the riser pipe to reach design pump intake position, for both placement and removal. The description shall include cross-sections of the riser pipe bends and the pumps when wheels, connectors, hoses, electrical leads and head level controls are attached. Pump selection shall be based on the maximum pumping capacity needed for the highest calculated leachate flow rates, including potential leachate recirculation.

(6m)   Contiguous landfill expansions . The plan of operation for any proposed landfill which is either a vertical or horizontal overlay to an existing approved facility shall include a summary of all applicable conditions of department issued, chs. NR 500 to 538 , approvals or orders that are active and subject to compliance at the time of the plan of operation report submittal. The summary shall be submitted on forms provided by the department and at a minimum shall contain all of the following:

(a) A chronological listing of all department issued chs. NR 500 to 538 approvals, orders and expedited plan modifications deemed as acceptable by the department under s. NR 514.09 for the existing landfill.

(b) A listing of all approval conditions or order conditions that are active and subject to compliance at the time of the plan of operation report submittal.

(c) The status of each condition listed in par. (b) shall be identified as:

1. "Remain active": The applicant intends to continue to meet the requirement of the condition in the proposed expansion.

2. "Comparable code": The applicant believes the requirement of the condition is addressed in chs. NR 500 to 538 .

3. "Alternative proposed": The applicant believes the condition is no longer required due to changes in the proposed plan of operation report.

(d) Identification of specific applicable codes, plan of operation report sections or further justification to support the applicant's recommended status category in par. (c) .

(e) The department shall provide a summary of the facility's active approval conditions or order conditions as an informational attachment to the plan of operation determination. This summary shall consider the applicant's recommended status in par. (c) and any applicable department issued conditions in the plan of operation determination. A department summary under this paragraph does not relieve the applicant of the compliance requirement of any condition prior to the issuance of the summary.

(7)   Leachate recirculation plans. The plan of operation for any landfill that proposes to recirculate leachate shall include a leachate recirculation plan. The leachate recirculation plan shall include, at a minimum, the following elements:

(a) A narrative which explains the design rationale for the proposed system. The design rationale shall address the leachate loading rate; distribution frequency; leachate distribution system including well or pipe spacing and placement, well or pipe length, screened interval, sealing material and bedding material; anticipated flow characteristics; and restricted areas where leachate will not be recirculated. The design shall incorporate, as appropriate, the requirements of s. NR 504.095 .

(b) Plan sheets to show the conceptual layout of the leachate recirculation distribution system and design details.

(c) Proposed loading rates for leachate recirculation shall be calculated for each leachate drainage basin. Calculation methods shall be defined so that supplemental calculations can be performed to accommodate changes due to field observations, waste characteristics, weather and other factors. Factors to be addressed shall include recirculated volumes of leachate, precipitation based on local records and on-site data, field capacities and absorptive capacities of the landfilled waste, waste filling rates, separation distances and elevations of distribution piping or wells, and loss of water by waste decomposition processes and water vapor in landfill gas.

(d) Calculation of effects on flow rates in the leachate collection system and maximum leachate head on the liner. The location of leachate head level monitoring devices relative to the collection pipes and base grade slope lengths shall be used to determine the maximum leachate head in the facility. Proposed loading rates for leachate recirculation shall be determined which limit maximum leachate head on the liner to 12 inches.

(e) An operational plan which addresses the daily operations; how leachate seeps, odors and build-up will be prevented or contained and actions to be taken if nuisance conditions occur; how any enhanced methane production will be managed by gas extraction systems; and care and maintenance of the tanks, pumps and distribution systems.

(f) A description of warning symptoms and failure thresholds which will be used to initiate investigation, stand-by, termination and changes to the leachate recirculation system. The operational plan shall identify warning symptoms and failure thresholds, including but not limited to elevated leachate heads on the liner, significant and persistent odors, excessively acidic leachate chemistry or other monitoring data indicate poor waste decomposition conditions, seeps and other surface expressions of recirculated leachate, excessive pressures within the waste mass, saturated conditions in the waste mass, reduced shear strength of the waste mass and any other warning symptom conditions appropriate to the site. Warning symptoms shall result in a suspension of leachate recirculation, investigation and changes to be implemented before resuming leachate recirculation. Failure thresholds shall result in termination of leachate recirculation, investigation and changes that will be submitted to the department for review and approval in writing prior to resumption of leachate recirculation.

(g) A monitoring plan which tracks volumes of leachate extracted and recirculated and volumes of precipitation in each leachate drainage basin; leachate heads on the liner; gas volumes; and leachate characteristics. The monitoring plan shall incorporate, as appropriate, the requirements of s. NR 507.215 .

(h) A plan which specifies documentation and record-keeping of the construction, operation and monitoring of the leachate recirculation system. This plan shall specify the information that will be sent to the department and the frequency of those submittals.

(i) The plan of operation shall include diagrams and narrative concerning gas extraction equipment, fittings and devices to be used to extract gas produced as a result of leachate recirculation. The plan of operation shall contain a schedule of operation of the gas extraction system in those cells which are subject to leachate recirculation.

(j) A description of the circumstances under which leachate will be diverted to a wastewater treatment plant rather than recirculated.

(8)   Additional requirements for landfills with extended collection lines.

(a) Landfills shall meet the requirements of pars. (b) to (i) where they will accept municipal solid waste and contain leachate collection lines that exceed 1,200 feet from the end of each cleanout to the toe of the opposite slope. Where the requirements of this subsection differ from other requirements of this chapter, these requirements shall take precedence.

(b) The design calculations required by s. NR 514.06 (14) shall include assessments of the landfill foundation for stability and settlement, using parameters determined from samples taken from borings in the subgrade below the proposed fill area.

(c) The report shall describe the design rationale for the layout of the leachate collection system and its alignment. This description shall include:

1. A discussion of the pipe strength calculations for the design overburden weight and the required pipe materials, including considerations for wet unit weights, densified waste after consolidation and decomposition and the potential use of leachate recirculation.

2. A demonstration that the design minimizes changes in alignment of leachate collection trenches and leachate collection pipe.

3. A hydraulic capacity analysis that demonstrates the ability of the leachate collection system to contain design flows within the collection trench and sump system. The hydraulic capacity analysis shall include the following, at a minimum:

a. Design specifications for the leachate collection blanket, leachate collection trench dimensions, backfill for the leachate collection trench, slopes of landfill base and sideslopes, slopes of pipe and trenches, and the liner area draining to each sump.

b. Active filling life assessment based on precipitation rate of 2 inches per month, with and without leachate recirculation.

c. Post-closure assessment based on hydraulic conductivities of 10% or less of the design hydraulic conductivities for the leachate collection blanket and leachate collection trench backfill and an assumed annual leachate collection rate of one inch per year.

d. Sump dimensions and pump specifications selected to maintain maximum leachate accumulation within the sumps and intersecting leachate collection trenches, with examples of commercially available pumps.

(d) The report shall include the calculations for the maximum anticipated overburden loads as calculated under s. NR 504.06 (6) (e) and selected leachate collection pipe materials to comply with these calculated loads. Calculations shall be performed demonstrating the leachate collection pipe and bedding material as placed possess structural strength to support maximum loads imposed by the overlying materials and equipment. The calculations shall demonstrate that the pipe is designed to maintain its wall integrity and not deform under expected maximum loads to the extent that the loading or deformation negatively affect the performance and cleaning of the leachate collection systems.

(e) Specifications and construction methods for bedding of leachate collection pipes shall be included, to maximize competent support of the pipes, eliminate bridging and maintain design slope of the pipe.

(f) The report shall include specifications for the use of sweep bends at all changes of alignment of leachate collection pipes, construction methods to provide support for pipe and sweep bends, and measures to be taken to minimize obstructions to or friction with pipe cleaning equipment.

(g) The report shall include a construction quality assurance plan to be followed by the registered professional engineer and qualified technician responsible for evaluating construction of the collection trench and leachate collection piping and ensuring that the fabrication and installation meet the design specifications. The construction quality assurance plan shall include continuous observation of all aspects of collection trench construction and collection pipe installation activities by qualified engineers or technicians. The construction quality assurance plan shall include use of observations, survey measurements, and testing frequencies in accordance with those specified in ch. NR 516 . The quality assurance plan shall include proposed methods for verifying the acceptability of the collection trench, collection pipe alignment, collection pipe materials and sweep bends, and adaptations by the owner or contractors to unforeseen conditions.

(h) The report shall describe proposed equipment and methods which are capable of inserting cleanout devices through all leachate collection pipes, from insertion at each access point to, at a minimum, the toe of the opposite sideslope.

(i) The report shall include procedures for soil borings and laboratory consolidation testing to verify settlement analyses.

(9)  

(a) The plan of operation for all new and expanded municipal solid waste landfills submitted to the department after January 1, 2007 shall include a plan for significantly reducing the amount of degradable organic material remaining after site closing in order to materially reduce the amount of time the landfill will take to achieve landfill organic stability. Owners and operators of all municipal solid waste landfills that have a plan of operation approved between January 1, 2004 and January 1, 2007 shall submit a plan modification to the department no later than January 1, 2007 for significantly reducing the amount of degradable organic material remaining after site closing in order to materially reduce the amount of time the landfill will take to achieve landfill organic stability. Owners and operators of all other municipal solid waste landfills at which filling has not exceeded 50% of the landfill's approved capacity by January 1, 2012, shall submit a plan modification to the department no later than January 1, 2012, for significantly reducing the amount of degradable organic material remaining after site closing in order to materially reduce the amount of time the landfill will take to achieve landfill organic stability. Waste that has already been disposed of prior to the date the plan is approved by the department is not subject to the planning requirement, but may be included in the plan at the discretion of the landfill operator.

(b) Landfill organic stability plans required by this subsection shall include the following information:

1. An overview of the plan.

2. An initial analysis of the composition and quantity of materials that will be accepted by the landfill, including a classification of organic materials and percentage of organically inert materials, and a description of how the analysis was performed.

3. A description of measures to be undertaken by the landfill owner or operator, or by others, including diversion to non-landfill management of organic material, pre-landfill mechanical or biological treatment of organic material, or in-landfill treatment of organic material, that will significantly reduce the amount of degradable organic material remaining after site closing and shorten the time the landfill will take to achieve landfill organic stability.

4. A schedule for implementing the plan.

5. The anticipated outcome of implementing the plan, relative to the landfill organic stability goals in par. (c) and the definition of landfill organic stability in s. NR 500.03 (120g) .

6. A description of how the effectiveness of the implemented plan will be monitored and evaluated. Plans shall include a description of the methods that will be used to monitor and evaluate the progress of the facility in implementing the plan, and measurements or milestones to be used in evaluating progress towards the goals in par. (c) and the plan's anticipated outcome.

7. A contingency plan outlining measures to be taken if periodic evaluation of the landfill organic stability efforts indicate the facility is unlikely to achieve the goals in par. (c) .

(c) The objective of landfill organic stability plans is achievement of all of the measured goals in subds. 1. to 4. The department may not interpret the goals in subds. 1. to 4. as enforceable environmental quality standards:

1. A monthly average total methane plus carbon dioxide gas production rate less than or equal to 5% of the maximum monthly average total gas production rate observed during the life of the facility, or less than 7.5 cubic feet of total gas per year for each cubic yard of waste in the facility.

2. A steady downward trend in the rate of total methane plus carbon dioxide gas production.

3. Production of total methane plus carbon dioxide gas cumulatively representing 75% or greater of the projected total gas production of the landfilled waste.

4. Reduction of the time necessary to reach landfill organic stability to 40 years or less after site closing.

(d) The landfill owner or operator shall continually evaluate the performance of the implemented landfill organic stability plan, and report progress, results, changes in waste composition and problems to the department no less frequently than annually. The first annual report is due 12 months after the department's approval of the landfill organic stability plan. The department may approve an alternative reporting schedule. Each annual report shall include an evaluation of whether changes are needed in the plan to correct problems or improve results. In addition, the landfill owner or operator may update the contingency plan.

(e) The landfill owner or operator shall examine progress against the approved plan every 5 years to evaluate the likelihood that the plan will enable the facility to reach the goals in par. (c) , and determine whether the contingency plan in par. (b) 7. will be implemented. A report describing the evaluation and determination shall be submitted to the department as part of the annual report for that year. The department may require that the contingency plan be implemented if its review finds that the progress the landfill has made is significantly different than the approved plan.

(f) If the landfill owner or operator submits the landfill organic stability plan as a modification to an existing plan of operation, the department shall either approve or disapprove the plan modification in writing within 90 days after submission of a complete plan. If the landfill organic stability plan is included by the operator as part of a new plan of operation, the review times in s. NR 514.04 (5) shall apply.

Cr. Register, January, 1988, No. 385 , eff. 2-6-88; correction in (2) (b) made under s. 13.93 (2m) (b) 5., Stats., Register, May, 1994, No. 461 ; r. and recr., Register, June, 1996, No. 486 , eff. 7-1-96; CR 04-077 : cr. (1) (L), (6) (c) and (7) to (9) Register November 2005 No. 599 , eff. 12-1-05; CR 05-020 : am. (1), cr. (6m) Register January 2006 No. 601 , eff. 2-1-06; correction made under s. 13.93 (2m) (b) 1., Stats., Register January 2006 No. 601 : CR 06-026 : am. (7) (c) and (i), renum. (9) to be (9) (a) and am., cr. (9) (b) to (f), Register December 2006 No. 612 , eff. 1-1-07.

Note

"Closing" is defined in s. 289.01 (5) , Stats., as "the time at which a solid or hazardous waste facility ceases to accept wastes, and includes those actions taken by the owner or operator to prepare the facility for long-term care and to make it suitable for other uses." Microsoft Windows NT 6.1.7601 Service Pack 1