HomeMy WebLinkAboutA - 25-10-RFP Exhibit G - Public Assistance Debris Monitoring GuidePublic Assistance Debris
Monitoring Guide
March 2021
Table of Contents
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Table of Contents
Table of Contents ........................................................................................................................................... i
Purpose ........................................................................................................................................................ iii
Executive Summary ...................................................................................................................................... iv
Chapter 1: General Eligibility Requirements ................................................................................................ 1
A. Eligible Debris Monitoring Work and Costs .................................................................................. 1
B. Reasonable Cost Guidance ............................................................................................................ 1
Chapter 2: Debris Monitoring Roles and Responsibilities ............................................................................ 3
A. Applicant’s Role and Responsibilities ........................................................................................... 3
B. Recipient’s Role and Responsibilities ............................................................................................ 3
C. FEMA Public Assistance Role and Responsibilities ....................................................................... 4
Chapter 3: Debris Monitoring Resources and Duties ................................................................................... 5
A. Force Account Resources .............................................................................................................. 5
B. Contractor Resources .................................................................................................................... 5
C. General Debris Monitor Qualifications ......................................................................................... 5
D. Types of Debris Monitors .............................................................................................................. 6
E. Reasonable Level of Effort Guidance ............................................................................................ 7
Chapter 4: Debris Monitoring Contract Provisions and Methods ............................................................... 9
A. General Procurement and Contract Oversight ............................................................................. 9
B. Basis of Payment ......................................................................................................................... 10
C. Duration of Contract ................................................................................................................... 11
D. Performance Measures and Termination Clause ....................................................................... 12
E. Conflict Resolution Process ......................................................................................................... 12
F. Types of Debris Removal Contracts ............................................................................................ 12
Chapter 5: Debris Monitoring by Debris Type ........................................................................................... 16
A. Vegetative Debris ........................................................................................................................ 16
B. Construction and Demolition Debris .......................................................................................... 16
C. Hazardous Waste ........................................................................................................................ 16
D. Household Hazardous Waste ...................................................................................................... 17
E. Electronic Waste ......................................................................................................................... 17
Table of Contents
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F.White Goods ............................................................................................................................... 18
G.Soil, Mud, and Sand .................................................................................................................... 18
H.Vehicles and Vessels ................................................................................................................... 19
I.Putrescent Debris ........................................................................................................................ 19
J.Infectious Waste ......................................................................................................................... 19
K.Chemical, Biological, Radiological, and Nuclear-Contaminated Debris ...................................... 20
Chapter 6: Documenting Eligible Work and Costs .................................................................................... 21
A.Documenting Force Account Debris Operation Costs ................................................................ 21
B.Documenting Contractor Debris Operation Costs ...................................................................... 21
C.Monitoring Reports ..................................................................................................................... 22
D.Electronic Load Tickets and Automated Reporting..................................................................... 22
Appendix A: Field Reference Guides ...............................................................................................................23
Appendix B: Sample Debris Monitoring Plan and Monitoring Forms ........................................................ 36
Appendix C: Monitoring Contract Process/Documents ............................................................................. 46
Purpose
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Purpose
When a disaster or emergency that generates large amounts of debris occurs, the Federal
Emergency Management Agency (FEMA), through its Public Assistance (PA) program, may
reimburse eligible PA Applicants, including State, local, tribal, and territorial (SLTT)
governments and certain Private Nonprofit (PNP) organizations, for costs associated with debris
removal operations.
This Debris Monitoring Guide provides PA Applicants and Recipients (States, Territories, or
Tribes that are the pass-through entity between the Applicant and FEMA) with guidance on
monitoring debris removal operations and eligibility requirements associated with necessary
work and reasonable costs to carry out a debris monitoring program.
Executive Summary
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Executive Summary
Effective coordination is required between the Applicant, the Recipient, and FEMA to ensure
that debris removal operations are efficient, effective, and eligible for FEMA PA grant funding.
Applicants must monitor their debris removal operations and document work and costs that may
be eligible for reimbursement through the PA grant program. Monitoring debris removal
operations requires observation and documentation of all work from the point of debris
collection to final disposal. This is to ensure that all work performed is in accordance with PA
guidelines and all applicable Federal and SLTT laws and regulations. Failure to properly monitor
debris removal operations may jeopardize PA funding.
In monitoring all aspects of its debris removal operations, including activities at all loading,
staging, and disposal sites, the Applicant can use its own staff (force account labor) or procure a
contract for these services. Applicants are required to use competitive contract bidding
procedures when procuring these services, unless circumstances only allow for a noncompetitive
method of procurement. Contracting out debris monitoring services does not absolve the
Applicant of their responsibility to supervise the performance of the contract. The Applicant
should provide clear direction, direct supervision, and a system of control and verification of the
performance of debris monitoring contract services. Overall, Applicants are strongly encouraged
to work with SLTT emergency management staff and FEMA to ensure compliance with the
provisions of the PA program.
While the Applicant has the primary responsibility for daily monitoring operations, the Recipient
is responsible for verifying that those monitoring activities are implemented. The primary role of
FEMA is to provide technical assistance and debris monitoring guidance to ensure that PA grant
requirements and eligibility criteria are met by the Applicant in all areas of the debris operation.
FEMA will evaluate the level of effort of debris monitoring operations for reasonableness when
determining the eligibility of debris monitoring costs. The level of effort for debris monitoring
operations should be proportionate with the magnitude of the disaster, the types and quantities of
debris to be removed, and the scope of the debris removal operation.
A good debris monitoring program should ensure accurate documentation of debris removal and
disposal operations and associated costs. This documentation serves as the basis for PA Project
Worksheets (PWs), which document work and costs eligible for reimbursement from FEMA.
Debris monitoring documentation is critical to verify that debris operations are eligible for
reimbursement, costs are reasonable, debris quantities are accurate, debris is tracked to its final
disposition, and all work and costs comply with regulatory requirements.
Pursuant to FEMA Directive 112-12, this guidance will have a review cycle of no greater than
three years. The FEMA PA Division will be responsible for any updates and changes to this
guidance.
Chapter 1: General Eligibility Requirements
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Chapter 1: General Eligibility Requirements
In order for debris removal activities to be eligible for PA program funding, debris must be
generated by a Presidentially declared disaster; be located within the designated disaster area; be
the legal responsibility of an eligible Applicant to remove; and present an immediate threat to
life, improved property, or public health and safety. Applicants should consult FEMA’s Public
Assistance Program and Policy Guide1 (PAPPG), which provides comprehensive information
regarding FEMA assistance and the requirements that Applicants must meet in order to receive
assistance for debris removal activities.
Eligible Debris Monitoring Work and Costs
The Applicant is responsible for monitoring debris operations to ensure that debris removal
activities claimed to the FEMA PA program for reimbursement are completed in accordance
with contract specifications and other supplemental guidance, PA program eligibility criteria,
and applicable Federal and SLTT laws, regulations and other requirements. FEMA PA personnel
will determine eligibility based on the defined scope of work (SOW) of the debris removal
operation, field observations, documentation, and reasonable costs. Eligible activities should be
clearly documented on loading tickets and the summary of debris totals.
Reasonable costs associated with the following debris monitoring activities may be eligible for
PA funding:
• Labor and material costs associated with debris monitoring staff such as field supervisors,
loading and tower/site monitors, and staff needed to complete documentation as
necessary to substantiate PA grant funding;
• Data compilation of load tickets and field debris monitoring reports to verify eligible
work and costs invoiced by the debris removal contractor (if under contract);
• Training of debris monitors on debris removal operations, debris monitoring and
documentation processes, and FEMA eligibility (FEMA can provide training to
Applicant debris monitors upon request); and/or
• Use of electronic load ticket system or automated debris monitoring system (ADMS) to
document debris quantities and eligibility. The Applicant should demonstrate through a
cost analysis that the use of the system is cost effective and the cost is reasonable.
Reasonable Cost Guidance
Costs associated with debris monitoring must be reasonable and necessary.2 Competitively bid
debris monitoring contracts that comply with Federal and SLTT procurement regulations and
procedures will help to establish reasonableness for debris monitoring costs. Federal
procurement standards are found in Title 2 Part 200 of the Code of Federal Regulations.3
1 Public Assistance Program and Policy Guide (PAPPG) Version 4 located at:
www.fema.gov/sites/default/files/2020-06/fema_public-assistance-program-and-policy-guide_v4_6-1-2020.pdf
2 2 Code of Federal Regulations (C.F.R.) Part 200, Subparts D and E.
3 2 C.F.R. §§ 200.317 - 200.327.
Chapter 1: General Eligibility Requirements
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In determining if costs are reasonable, FEMA performs a preliminary review of the
documentation to assess the complexity of the project and expertise required to conduct the
work. Specific to debris monitoring, FEMA determines reasonableness4 by evaluating:
• Labor: Are labor rates, labor classifications, and number of proposed labor hours
reasonable for the proposed SOW? The labor rates should be commensurate with the skill
level required by the job function. Professional engineers and those with similar
qualifications are not required to perform debris monitoring duties.
• Materials and Supplies: Are costs necessary and reasonable for the materials and
supplies, considering the type of work being performed.
• Profit: Was profit negotiated as a separate element of the contract price?5
Project Management and Design Services
Costs which are considered project management and/or design services6 differ from eligible
debris monitoring costs. Project management and design services are expenses for the initial
design and oversight of work performed related to an eligible project from the design phase
(when necessary) to the completion of work. These costs should be documented and claimed
separately. The eligibility of this work and its cost will be evaluated on a case-by-case basis.
Such project management and/or design services may include costs associated with direct
management and oversight of the debris removal operation by an Applicant’s force account labor
or by a consulting firm retained to analyze, design, and oversee the debris removal operation.
These costs may also include labor costs associated with project management services for the
debris removal operation, developing reports to establish contractor performance measures, and
evaluating operational efficiency. These costs are separate and distinct from costs related to
management and administration of PA awards and subawards.7
4 Chapter 6:I.A. Reasonable Cost Analysis of the PAPPG (V4).
5 2 C.F.R. § 200.323(b).
6 Chapter 6:XV. Project Management and Design Services of the PAPPG (V4).
7 Chapter 6:XVI. Grant Management and Administration of the PAPPG (V4).
Chapter 2: Debris Monitoring Roles and Responsibilities
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Chapter 2: Debris Monitoring Roles and Responsibilities
The Applicant has the primary responsibility for monitoring its debris removal operations. The
Recipient, as a pass-through entity, is responsible for ensuring that Applicants comply with grant
conditions and monitoring the activities of the Applicant. FEMA provides guidance and
technical assistance and makes final eligibility determinations related to debris-related work and
costs.
Applicant’s Role and Responsibilities
Applicants are required to maintain oversight to ensure that contractors perform in accordance
with the terms, conditions, and specifications of their contracts or purchase orders.8 Debris
monitors serve as the Applicant’s field representatives. They ensure that the terms and specific
monitoring and documentation requirements of debris removal contracts are adhered to and met.
Having a debris monitor does not relieve Applicants of the obligation to maintain oversight over
both the debris monitoring and debris removal costs.
FEMA recommends that Applicants clearly outline their debris monitoring requirements in their
debris management plan, requests for proposals (RFPs), and debris removal contracts. These
documents should include instructions on actions the Applicant needs to take to document and
correct non-compliance issues. If an Applicant undertakes work that is ineligible for FEMA
funding, a methodology should also be established to separate ineligible work from eligible
work. Optimally, this methodology should be discussed with the Recipient and FEMA prior to
implementation to ascertain compliance. Refer to Appendix B: Sample Debris Monitoring Plan
and Monitoring Forms for a sample debris monitoring plan, including monitoring forms and refer
to Appendix C: Monitoring Contract Process/Documents for Contract documents.
Recipient’s Role and Responsibilities
While the Applicant has the primary responsibility for daily monitoring operations, the Recipient
is responsible for verifying that those monitoring activities are implemented. As Recipient, the
State or Tribe are the pass-through entity between the Applicant and FEMA. The Recipient
should ensure that the Applicant is complying with all grant requirements and is performing
adequate monitoring. The Recipient may conduct random monitoring at loading and disposal
sites to ensure compliance with PA grant requirements. Refer to Appendix A: Field Reference
Guides for more information.
8 2 C.F.R. § 200.318(b).
Chapter 2: Debris Monitoring Roles and Responsibilities
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FEMA Public Assistance Role and Responsibilities
The primary role of FEMA is to provide technical and debris monitoring guidance to ensure that
PA grant requirements and work and costs in all areas of the debris operation meet PA eligibility
criteria. FEMA may also conduct random, periodic checks of debris loading, staging, reduction,
and disposal sites. FEMA is responsible for:
• Determining whether the debris removal activities are eligible;
• Verifying compliance with all environmental and historic preservation laws and
executive orders; and
• Reporting any noncompliance, misconduct, or other issues for resolution with the
Recipient and Applicant.
In disasters where the estimated amount of debris is 200,000 cubic yards (CY) or greater, the
Federal Coordinating Officer (FCO) may provide technical expertise and advise to the Recipient
or Applicant on debris monitoring through a mission assignment with the U.S. Army Corps of
Engineers (USACE).
FEMA does not direct field operations on behalf of the Applicant. FEMA is not a party to the
Applicants contract and will not resolve disputes. The Applicant is responsible for implementing
and managing its debris removal and monitoring activities. Refer to Appendix A: Field
Reference Guides for additional information.
Chapter 3: Debris Monitoring Resources and Duties
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Chapter 3: Debris Monitoring Resources and Duties
Force Account Resources
Applicants are encouraged to use their own employees (force account labor) to monitor debris
removal operations.9 An Applicant’s own employees are the most familiar with the jurisdiction
and know the priorities of the Applicant’s debris management plan.
Other benefits of using force account labor for debris monitoring include:
• The local workforce may be able to respond immediately after the disaster.
• Standard timesheet and equipment documentation procedures are typically adequate for
documentation purposes.
Contractor Resources
An Applicant may hire contractors to provide debris monitoring services. Debris monitoring
contractors should not be employed by or affiliated with the debris removal contractor.
Applicants are required to use competitive contract bidding procedures when procuring these
services, unless they can justify sole sourcing.10 If the Applicant, in compliance with SLTT law,
wants to issue a sole source contract rather than conduct a sealed bidding process, the Applicant
would have to demonstrate that there are “exigent circumstances” necessitating procurement by
non-competitive methods and use of a sealed bidding process would cause an unacceptable
delay. Applicants are also required to maintain proper oversight of these contracts to ensure
compliance with contract terms.11 The Applicant must include in the contract a termination date
for the non-competitively procured contract and justify in writing why the period of performance
is reasonable under the prevailing circumstances.12 More information on debris monitoring
contracts is found in Chapter 4: Debris Monitoring Contract Provisions and Methods.
General Debris Monitor Qualifications
Applicant debris monitors should:
• Fully understand their responsibilities in accordance with the terms of the debris removal
contract and other specific guidance provided by the Applicant;
• Possess the capability to estimate debris quantities accurately and objectively;
• Understand all phases of debris management operations, including loading sites, debris
management sites (DMSs), and final disposition locations;
• Be able to differentiate between debris types;
• Be able to complete load tickets properly;
• Understand site safety procedures;
• Communicate effectively and efficiently; and
• Possess previous construction site experience (preferred).
9 44 C.F.R. § 206.228.
10 2 C.F.R. § 200.320(f) or analogous state obligations if procurement under 2 C.F.R. § 200.317 auspices.
11 2 C.F.R. § 200.318(b).
12 See generally 2 C.F.R. § 200.320(f).
Chapter 3: Debris Monitoring Resources and Duties
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• Have general knowledge pertaining to the operation of large construction machinery
(preferred).
Debris monitors do not need to be registered professional engineers.
In addition to the general qualifications for debris monitors, field supervisors need to:
• Possess the ability to communicate with field staff as well as management;
• Be able to resolve conflicts and issues in the field; and
• Understand when to elevate issues to the Applicant’s management.
Types of Debris Monitors
Applicants need to monitor all aspects of the debris removal operation, including activities at all
loading, staging, and disposal sites. Debris monitors may have different roles and responsibilities
at different stages or components of a debris removal operation; an individual may assume the
role of each monitor type at various stages of the disaster. Debris monitors report directly to the
field supervisor regarding their daily oversight. All logs and load tickets are submitted daily to
the field supervisor. See Appendix A: Field Reference Guides for lists of debris monitoring
duties by type of debris monitor.
Loading Site Monitors
Loading site monitors 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 duties are:
• Estimating load volumes and issuing load tickets at the load sites, retaining a copy of the
ticket (for detailed description of load ticket chain-of-custody, refer to Appendix B:
Sample Debris Monitoring Plan and Monitoring Forms); and
• Maintaining logs of daily subcontractor performance, eligibility, or other activities as
required.
• Can be a roving monitor who follows a truck around throughout the day or checks-in on
multiple loading trucks. Produces roving monitor report.
Tower/Site Monitors
Debris monitors at a DMS are often referred to as “tower” or “site” monitors.” Tower/site
monitors’ primary duties are:
• Accurately measuring and documenting load hauling compartments prior to debris
hauling operations (and recertifying on regular basis);
• Collecting and physically controlling load tickets;
• Ensuring that all debris is removed from trucks at DMSs;
• Monitoring DMS development and restoration; and
• Overseeing debris reduction (grinding, burning, chipping, etc.).
Chapter 3: Debris Monitoring Resources and Duties
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Field Supervisor
The Applicant’s field supervisor resolves field operational, eligibility, and safety issues, and
communicates these issues to the Applicant. They may also coordinate daily activities with
FEMA, the Recipient, and Applicant field personnel. The field supervisors’ primary duties are:
• Scheduling and deploying the loading and tower/site debris monitors and overseeing their
daily activities at loading sites and disposal and staging sites;
• Conducting or overseeing truck certifications, load measurements, and photo-
documentation as required; and
• Collecting daily logs from the debris monitors and tabulating truck load data for the daily
report.
Reasonable Level of Effort Guidance
All costs must be associated with a reasonable level of effort, including appropriate numbers of
debris monitoring personnel and clerical staff related to the scope of the debris removal
operation. FEMA will evaluate the level of effort of debris monitoring operations for
reasonableness when determining the eligibility of debris monitoring costs. The level of effort
for debris monitoring operations should be proportionate with the magnitude of the disaster, the
types and quantities of debris to be removed, and the scope of the debris removal operation.
Historical data for debris monitoring operations suggests the following level of effort may be
appropriate for field efforts.
Level of Effort for Debris Loading Sites
• Rural areas: One loading monitor may be provided for each loading device/location in
order to properly observe all debris loading activity. The number of loading monitors can
be amended to allow one monitor to oversee two or three contractor loading sites, if the
loading activity can be properly observed from a single controlled location and the
collected debris can be documented and verified as eligible or ineligible.
• Urbanized or higher-density areas: One loading monitor may be provided for each
loading site. One loading monitor may be provided for every three to four loading sites if
the loading monitor can monitor the sites via line-of-sight or a controlled access point.
Level of Effort for Debris Management Sites
• Tower/site monitors: Tower/site monitors are required at DMSs regardless of if the site
is a temporary or a permanent one. Depending on the set-up of the DMS, a minimum of
one tower/site monitor is required to document load quantities and verify that trucks are
emptied. Additional tower/site monitors may be needed at exit locations to verify that
trucks are emptied, or at reduction (grinding burning, chipping, etc.) locations to
document and verify production rates.
• Field supervisors: If multiple DMSs are in operation, one field supervisor may be added
for every 10 debris load site monitors, or as needed for exceptionally large and unique
operations to ensure adequate management of operations.
• Clerical/data entry support: Typically, one or two data entry personnel can
accommodate the daily data amassed when debris operations use load tickets for
Chapter 3: Debris Monitoring Resources and Duties
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documentation. Larger or faster operations with a multitude of reports may require
additional clerical support. The number of clerical/data entry personnel should be
adjusted to the needs of the Applicant. The use of automated debris monitoring
documentation systems may significantly reduce the required level of effort for data entry
support.
Chapter 4: Debris Monitoring Contract Provisions and Methods
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Chapter 4: Debris Monitoring Contract Provisions and Methods
When procuring contracts for debris removal operations and monitoring services, Applicants
must use their standard procurement processes and practices that conform to SLTT procurement
policies and regulations, as well as those required by Federal regulations.13 Failure to adequately
follow procurement requirements may result in the deobligation of all or some of an Applicant’s
PA funding. If a Federal requirement is different than the SLTT requirements, or the Applicant’s
own requirements, it must use the more restrictive requirement.14
Applicants are strongly encouraged to work with SLTT emergency management staff and FEMA
to ensure compliance with the provisions of the PA program, as well as other applicable statutes
and regulations, if they intend to seek PA grant funding. Upon request, FEMA PA program
personnel will review an Applicant’s procurement process to highlight potential instances of
non-compliance with the federal procurement rules.15 FEMA can also provide high-level reviews
of contracts to highlight potential instances of non-compliance with the federal procurement
rules.
General Procurement and Contract Oversight
Applicants are strongly encouraged to consider, and/or comply with, the following guidance
when procuring and overseeing contracts for debris monitoring services:
Procurement Process
• Use competitive bidding procedures to meet procurement requirements for Federal
grants.16
• Use abbreviated emergency procurement procedures that include an expedited
competitive bid process only if time does not allow for more stringent procedures and if
they are allowed under SLTT and Federal laws, codes, or ordinances.
• Maintain records regarding the history of the procurement17 and document procedures
used to obtain/award contracts (procurement information, bid requests, and tabulations,
etc.).
• Seek legal review of the contract from Applicant’s legal counsel and the process used to
procure it, to ensure compliance with all applicable Federal and SLTT requirements.
Scope of Work
• Verify that all requests for proposals, bids, and contracts have a well-defined SOW,
specified costs, basis of payment, performance schedule, and descriptions of the type of
service provided by each labor category and skill class.
13 2 C.F.R. § 200.318(a).
14 Chapter 6:VIII.B. Procurement and Contracting Requirements for Tribal and Local Government Agencies and
Private Nonprofits of the PAPPG (V4).
15 2 C.F.R. §§ 200.317 - 200.327.
16 2 C.F.R. § 200.319.
17 2 C.F.R. § 200.318(i).
Chapter 4: Debris Monitoring Contract Provisions and Methods
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• Ensure that labor rates are commensurate with the skill level required by the debris
monitoring job function. Professional engineers and other similar qualifications are not
required to perform monitoring duties.
• Use a load ticket system (paper or electronic) to record with specificity where debris is
picked up (e.g., street address) and the amount picked up, hauled, reduced, and disposed
of.
• Ensure that the level of effort provided by the monitoring contractor and the contract
terms is reasonable.
Reasonable Costs
• Ensure that debris monitoring contract costs are reasonable and necessary.18
Competitively bid contracts that comply with Federal and SLTT procurement regulations
and procedures will help to establish reasonable costs for the work.
• The Applicant must perform a price/cost analysis for all contractors or contract
modifications over the simplified acquisition threshold currently set at $250,000.19
Additionally, profit must be negotiated as a separate element when performing a cost
analysis and for each contract when there is no price competition.20
Contract Requirements
• Award contracts to responsible bidders who are reputable and qualified contractors.
o Conduct reference checks on contractors’ performance history with the State’s
contractor licensing board and with previous clients before awarding contracts.
o Verify that potential contractors are not on a State’s “Debarred Contractor” listing.21
o Check SAM.gov to verify that potential contractors have not been suspended or
debarred from performing work funded by the federal government.
• Require the contractor to provide a safe working environment, including properly
constructed monitoring towers.
• Ensure that complete and accurate records are kept of contractor activities and costs to
include in reimbursement requests.
Basis of Payment
The basis of payment and the payment process must be clearly outlined in the contract.
Contractor payments should be based upon verification of completed work, and the required
information for the payment request should be included within the provisions of the contract.
The SOW and costs for the service are key factors in analyzing reasonable costs. When
determining if a cost for debris monitoring is reasonable, FEMA considers the level of effort
required for the monitoring services, supervision, and support services to perform the job
requirements effectively and efficiently. Debris monitoring services should be tailored to the
scale of the debris operations, the schedule requirements, and the Applicant’s overall concept of
18 2 C.F.R. Part 200, subpart E.
19 The simplified acquisition threshold is set by the Federal Acquisition Regulation at 48 C.F.R. § 2.101. The
threshold is adjusted periodically for inflation.
20 2 C.F.R. § 200.324(b).
21 2 C.F.R § 200.318(h).
Chapter 4: Debris Monitoring Contract Provisions and Methods
11
operations. This includes planning for the number of DMSs and final disposition sites,
acceptable travel distances, truck routes, neighborhood safety issues, personnel planning, and
documentation requirements.
The debris monitoring contract must include the applicable contract provisions addressing
payment, contract duration, performance measures, termination for convenience, termination for
cause, and a conflict resolution process, and any other required contract provisions.22 The
Applicant should:
• Consider using a progress payment method for contract services. This method requires
specific documentation from the contractor to verify and validate the completed work and
support the contractor’s invoices.
• Provide supervision and oversight of the debris monitoring operations to ensure that only
approved and necessary hours are applied to the debris monitoring contract. Applicants
are required to maintain contractor oversight to ensure that contractors perform in
accordance with the terms, conditions, and specifications of their contracts or purchase
orders.23
• Confer with the contractor to determine the deployment of monitors, daily schedules, and
the number of personnel, supervisors, and clerical/data support assigned at any given
time.
Generally, documentation for debris monitoring reimbursement includes:
• Personnel assignments, duties, and responsibilities
• Timesheets
• Debris monitoring reports
• Debris totals (CY and tonnage)
• DMS reports
• Exception reports (when debris monitoring reveals problems with debris operations)
• Truck/Trailer Certification reports
• Geographic information system (GIS) planning and progress reports
• Debris progress reports
• Safety reports
Duration of Contract
Debris removal and monitoring services contracts should include specific timelines for work to
be completed. The contract should clearly state the duration and the scheduled milestones. By
doing so, the Applicant sets clear expectations for the contractor. Moreover, the contractor can
effectively manage resources and schedule work to meet the Applicant’s requirements. The
Applicant should determine the contractor’s mobilization requirements (e.g., whether debris
monitors are required during the debris clearance phase).
22 2 C.F.R. § 200.327.
23 2 C.F.R. § 200.318(b).
Chapter 4: Debris Monitoring Contract Provisions and Methods
12
Performance Measures and Termination Clause
The contract should include performance measures that specify how performance will be
evaluated and measured, including the size and number of monitoring crews, the number of
truckloads monitored each day by the monitoring crews, the number of truckloads arriving at
each DMS or final disposition site, the processing rate for a reduction site, and the number of
monitoring crews in relation to the debris removal crews. Additionally, all contracts in excess of
$10,000 must address termination for cause and for convenience by the non-Federal entity,
including the manner by which termination will be effected and the basis for settlement. This
clause should describe probable reasons for termination.
Conflict Resolution Process
The conflict resolution process should be well defined in the contract. The process should
include alternatives for mediation in case an issue proves difficult to resolve. Contracts in excess
of $250,000 must include a remedies clause that addresses administrative, contractual, or legal
remedies in instances where contractors violate or breach contract terms and provide for such
sanctions and penalties as appropriate.24
Types of Debris Removal Contracts
There are several types of debris removal contracts and each type of debris removal contract has
variables that can dictate adaptations to the necessary debris monitoring activities to protect the
Applicant’s interests. The different types of contracts, specific contract provisions, monitoring
efforts, and documentation requirements are described in this discussion and summarized in
Table 1 at the end of Section 6. The most common types of debris removal contracts are unit
price, lump-sum, and time-and-materials (refer to Appendix A: Field Reference Guides).
Unit Price
Unit price contracts are used when the individual work tasks are known, but the total amount of
work cannot be known in advance. Units of work can be measured in terms of weight, volume,
or any other quantifiable measure (Figure 1). The contractor uses estimated quantities to
establish a total contract price.
24 2 C.F.R. § 200.327.
Chapter 4: Debris Monitoring Contract Provisions and Methods
13
Since a unit price contract is initiated
based on an estimate of debris quantities,
documentation of the location, eligibility,
and quantities of debris (CY or tonnage)
during the debris processing is essential.
• Debris monitoring is essential
during pick up, transportation,
eligibility determination,
segregation, staging, reduction,
and final disposition.
• The Applicant should manage the
measurement of the trucks/trailers
used to haul the debris. The
volume of each truck should be
measured and certified before
being allowed into service.
Lump-Sum
Lump-sum contracts are used when the SOW can be identified and quantified. Bid requests for
lump-sum contracts include a set of specifications that have a well-defined SOW for a finite
amount of time.
The advantage of a lump-sum contract is that the total price for the specified work is known at
the time the contract is awarded. For example, 250 tons of mulched debris hauled from 1000 N.
Debris Road to the county landfill at 3450 S. Main Street will equal $XX,XXX.
Loading monitors are required to validate that only contract-identified debris is collected. These
quantities should match the quantities identified in the debris removal contract.
• The DMS site/tower monitors should carefully review the processing of materials,
especially the quantities of materials collected for processing (grinding, burning,
chipping, etc.), and the quantities at the back end of the processing.
• Documentation of truckloads and debris volumes are still needed if the final tally of
debris quantities vary significantly from the original contract estimates; change orders
may be necessary to adjust the contract price. This documentation is essential to
establish final debris volumes.
• When applicable, the debris quantities entering a DMS should be compared with the
debris quantities that have been processed. For example, chip piles or outbound
truckloads can be measured to corroborate the debris volumes.
Time-and-Materials
A time-and-materials contract establishes hourly rates for labor and equipment that will be used
to perform specific tasks. For example, backhoe with loader, X CY bucket, and operator =
$XX/hour. The contractor is paid based on the sum of the actual cost of materials and the direct
Figure 1: Debris Monitors Determine Type and Quantity
of Debris
Chapter 4: Debris Monitoring Contract Provisions and Methods
14
labor hours charged at a fixed hourly rate that reflect
wages, general and administrative expense, and
profit.25
Applicants should work closely with the SLTT and
FEMA when awarding such contracts to ensure PA
eligibility requirements are met. The following
requirements apply to time-and-materials contracts and
must be memorialized:
• Use only after determining that no other
contract type is suitable;
• Time-and-materials contract must contain a
not-to-exceed clause;26
• The contract must include a ceiling price which the contractor exceeds at its own risk;
• The Applicant must maintain a high degree of contractor oversight to avoid any
unnecessary cost overruns; and
• Once the scope of work becomes clear, the Applicant must transition to a more suitable
contract type.
A higher level of monitoring of time-and-materials contracts is required. Debris monitors should
produce daily inspection reports that clearly quantify the amount of work accomplished each
day, including:
• The number of hours worked (scheduled work hours/crew size).
• The type and quantity of each type of truck/trailer/equipment used (Figure 2).
• Verification of equipment hours. Only active work hours should be submitted for FEMA
reimbursement.
• Standby time is not eligible for FEMA reimbursement.
• Verification of labor hours as compared to equipment hours. Intermittent use of
equipment may result in a crew having more equipment hours than labor hours; this type
of discrepancy needs to be verified by the debris monitors.
• The weather conditions as they affect daily work.
• Production rates for each staging and reduction site.
• Quantities of debris hauled (CY or per ton). If debris is hauled based on CY, load tickets
may be used as a way of checking contractor efficiency.
25 2 C.F.R. § 200.318(j)(1).
26 2 C.F.R. § 200.318(j).
Figure 2: Type and Duration of
Equipment Used Must Be Documented
Chapter 4: Debris Monitoring Contract Provisions and Methods
15
Table 1 outlines the monitoring requirements for each type of contract.
Table 1: Monitoring Requirements by Contract Type
Contract
Type Scope of Work
Monitoring Required
Comments
Cr
e
w
E
f
f
i
c
i
e
n
c
y
Co
l
l
e
c
t
i
o
n
S
i
t
e
DM
S
s
Di
s
p
o
s
a
l
S
i
t
e
Co
m
p
l
i
a
n
c
e
Lump-
Sum
Defined debris
quantities and
reasonable costs.
Estimate is basis
for contract
costs.
• Assess debris eligibility at
collection site
• Quantities are required to
determine reasonable costs
and establish change orders
• Ensure ONLY debris from
within contract limits is
processed
Unit Price
– CY
Based on eligible
debris listed on
load tickets.
• Assess debris eligibility at
collection site
• Document debris quantities
• Verify debris processing
volumes
Unit Price
– Ton
Based on actual
weight
measurements of
eligible debris
listed on load
tickets.
• Assess debris eligibility at
collection site
• Document debris quantities
• Verify debris processing
weights
• Verify calibration of scales
Time-and-
Materials
Based on labor,
equipment, and
materials records.
Reasonable costs
evaluated by
determining costs
per unit.
• Assess debris eligibility at
collection site
• Typically used for road
clearance activities during
the Response Phase
• Supervising and monitoring
every work crew is required
• Tracking debris removal
quantities is still required to
determine reasonable costs
Chapter 5: Debris Monitoring by Debris Type
16
Chapter 5: Debris Monitoring by Debris Type
Debris monitoring considerations and responsibilities may vary depending on the type of debris
being removed. Debris monitoring considerations for each of the primary debris types are
described below. Refer to Appendix A: Field Reference Guides for additional debris monitoring
recommendations.
Vegetative Debris
Vegetative debris may consist of whole trees, tree stumps, tree branches, tree trunks, and other
leafy material. Depending on the size of the debris, the collection of vegetative debris may
require the use of flatbed trucks, dump trucks, and grapple loaders. For consideration:
• Hand-loaded trucks/trailers are graded at 50
percent of a load because of the low
compaction achieved by hand-loading.27
• This type of debris may be recyclable or have
salvage value. Document separation and
salvage operations when implemented.
• For special vegetative debris considerations,
refer to the PAPPG.28
Construction and Demolition Debris
Construction and demolition (C&D) debris can be
defined as damaged components of buildings and
structures, such as lumber and wood, gypsum
wallboard, glass, metal, roofing material, tile,
carpeting and floor coverings, window coverings, pipe, concrete,29 fully cured asphalt,
equipment, furnishings, and fixtures. The definition of C&D debris may vary between
jurisdictions and what is included in one jurisdiction may be excluded in another. When
monitoring, consider that the C&D debris must be disaster-generated (i.e., eligible C&D debris
cannot be the result of an Applicant’s rebuilding efforts) and must present an immediate threat to
be considered for FEMA eligibility.
Hazardous Waste
The Applicant must comply with Federal and SLTT environmental requirements for handling
hazardous waste. Acceptable FEMA reimbursable activities related to hazardous materials are
described in the PAPPG.30 Hazardous waste is regulated under the Resource Conservation and
Recovery Act (RCRA) and contains properties that make it potentially harmful to human health
or the environment. In regulatory terms, a RCRA hazardous waste is a waste that appears on one
of the four hazardous waste lists31 or exhibits at least one of the following four characteristics:
27 Chapter 7:I.E.3. Hand-Loaded Trucks and Trailers of the PAPPG (V4).
28 Chapter 7:I.B. Hazardous Limbs, Trees, and Stumps of the PAPPG (V4).
29 Chapter 7:II.U.4. Ineligible Work of the PAPPG (V4).
30 Chapter 7:II.K. Hazardous Materials of the PAPPG (V4).
31 40 C.F.R. Part 261.
Figure 3: Hand-Loaded Truck
Chapter 5: Debris Monitoring by Debris Type
17
• Ignitability
• Corrosivity
• Reactivity
• Toxicity
When monitoring, consider:
• Hazardous wastes may require segregation and
special handling (Figure 4).
• Improper segregation of the hazardous waste
debris should be documented.
• If unsafe practices are observed during the
handling and disposal of hazardous materials, the
appropriate authorities should be notified.
• Safety precautions will vary depending upon the
circumstances and type of hazardous materials
encountered, but they may include personal
protective equipment, decontamination stations,
closed and secured containers, and covered trucks
or specialized containers.
• Monitor hazardous material processing carefully
and regularly to verify that proper precautions are
taken and that the chain-of-custody is maintained.
• Verify that hazardous materials are delivered to
an appropriate DMS since hazardous wastes
typically require special handling, transportation,
and final disposition that are significantly more
costly than typical waste disposal.
Household Hazardous Waste
Household Hazardous Waste (HHW) refers to hazardous products and materials that are used
and disposed of by residential consumers, rather than commercial or industrial consumers. HHW
include, but are not limited to, some paints, stains, varnishes, solvents, pesticides, and other
products or materials containing volatile chemicals that catch fire, react, or explode under certain
circumstances, or that are corrosive or toxic. When monitoring:
• Verify and document that HHW is picked up and handled by specialists licensed by the
Recipient’s Department of Environmental Quality (DEQ) and managed in designated
areas within the DMS.
• Verify and document that the chain-of-custody is maintained throughout the collection,
handling, transport, and disposal of HHW.
Electronic Waste
Electronic waste (e-waste) refers to electronics that contain hazardous materials, such as cathode
ray tubes. Examples of e-waste include, but are not limited to, computer monitors and
Figure 4: Segregation of Hazardous Debris
Chapter 5: Debris Monitoring by Debris Type
18
televisions.32 Typically, these products contain minerals and chemicals that require specific
disposal methods. When monitoring ensure that:
• E-waste is removed intact, collected, and stored at the DMS for later processing;
• E-waste complies with state e-waste requirements where applicable;
• Separation and salvage activities are implemented and documented as this type of debris
may be recyclable or have salvage value; and
• E-waste is segregated (in wildfire events, white goods and E-waste may not be able to be
segregated and therefore should be documented as one).
White Goods
White goods are defined as discarded household appliances such as refrigerators, freezers, air
conditioners, heat pumps, ovens, ranges, washing machines, clothes dryers, and water heaters.
Many white goods contain ozone-depleting refrigerants, mercury, or compressor oils that must
be removed and processed following environmental protocols and procedures before the white
goods can be further processed for disposal and recycling. When monitoring:
• Document that white goods are collected separately, cleaned, and processed to remove
putrescent debris inside and to remove all
oils, solvents, and refrigerants (Figure 5).
• If white goods are to be collected without
being cleaned, verify and document that the
DMS includes ample space for processing
the collected white goods.
• This type of debris may be recyclable or
have salvage value. Document separation
and salvage activities that are implemented.
Soil, Mud, and Sand
Floods, landslides, winds, wildfires, and storm
surges often result in soil, mud, and sand debris on improved public property and public rights-
of-way. Facilities commonly affected by this type of debris include streets, sidewalks, storm and
sanitary sewers, water treatment facilities, drainage canals and basins, parks, and public
swimming pools. When monitoring:
• Document that only the disaster-generated silt and soils are removed. This requires an
understanding of pre-disaster conditions as well as the documented maintenance of the
affected area.
• Contaminated soils may require special handling depending on the contaminant.
Document any contaminated soil issues to ensure proper handling, processing, and
disposition.
• Verify that any contaminated disaster-generated soils are addressed by specialists from
the State’s DEQ and/or U.S. Department of Environmental Protection (EPA) and
managed appropriately in designated areas.
32 40 C.F.R. Part 261.
Figure 5: White Goods Being Staged
Chapter 5: Debris Monitoring by Debris Type
19
Vehicles and Vessels
Vehicles and vessels may be damaged, destroyed,
displaced, or lost as a result of a disaster (Figure 6).
These vehicles and vessels may eventually be
abandoned because of the damage incurred or
because the original owners have relocated.
Vehicles and vessels may be classified as debris if
they block public access and critical facilities and
are abandoned.33 When monitoring:
• Verify that each vehicle or vessel
identification number is documented and
processed appropriately according to
applicable municipal, state, or coastal law.
• Verify that collected vehicles and vessels are
transported to a collection area where they are secured and protected. Depending on the
ownership, the vehicles or vessels can be returned, salvaged, or destroyed.
• Verify that all vehicles and vessels have all minerals and fluids removed before
processing or destruction.
• This type of debris may be recyclable or have salvage value. Document separation and
salvage activities that are implemented.
Putrescent Debris
Putrescent debris is any debris that will decompose or rot, such as animal carcasses and other
fleshy organic matter. Handling of putrescent debris must comply with applicable Federal and
SLTT requirements. When monitoring:
• Document that putrescent debris is collected in accordance with contract specifications or
other specific requirements.
• Document the volume of putrescent debris. The volume of putrescent materials cannot be
determined based solely on the volume of the originally inventoried materials because the
spoiled materials may have lost a significant portion of their volume. The actual volume
at the time of removal needs to be documented.
Infectious Waste
Infectious waste is waste capable of causing infections in humans and can include contaminated
animal waste, human blood and blood products, medical waste, pathological waste, and
discarded sharps (needles, scalpels, or broken medical instruments). Clearance, removal, and
disposal of infectious waste may be under the authority of another Federal agency (the Centers
for Disease Control and Prevention, EPA, etc.) or applicable state agency. Upon review of
applicable Federal statutes, regulations, and policies governing infectious waste, FEMA will
determine eligibility on a case-by-case basis. When monitoring:
33 Chapter 7:I.D. Privately Owned Vehicles and Vessels on Public Property of the PAPPG (V4).
Figure 6: Boat and Vessel Debris
Chapter 5: Debris Monitoring by Debris Type
20
• Document that the disaster-related infectious waste is collected and separated in
accordance with prescribed safety and medical practices. SLTT or Federal health officials
may dictate the collection process, including collection containers, protective gear,
decontamination requirements, and disposal methods.
• The collection method and the volume of debris should be documented.
• Verify that chains-of-custody of the collected materials are maintained. Based on the
condition and type of materials, this debris may require special handling,
containerization, and disposal, including incineration.
Chemical, Biological, Radiological, and Nuclear-Contaminated Debris
Chemical, biological, radiological, and nuclear (CBRN)-contaminated debris is any debris
contaminated by chemical, biological, radiological, or nuclear materials as a result of a natural or
man-made disaster, such as a weapon of mass destruction event. The clearance, removal, and
disposal of CBRN-contaminated debris should be performed in accordance with applicable
Federal statutes, regulations, policies, and other guidance documents. When monitoring:
• Man-made disasters may create debris that is considered evidence as part of a crime
scene. Law enforcement officials may need to clear the activities before debris operations
can begin. Monitors should ensure the CBRN-contaminated debris is cleared by law
enforcement officials before removal so as not to undermine the integrity of the crime
scene. Debris operations may also proceed concurrently with incident investigations.
• Be aware of the types of evidentiary material being sought in case CBRN-contaminated
debris is encountered outside the identified crime scene area.
• CBRN-contaminated debris may be either disposed of or taken to a special collection
area for further processing. Verify and document that separation, processing, and disposal
follow the prescribed procedures.
Type of Waste Examples
Hazardous Waste Any debris containing any of the characteristics of
ignitability, corrosivity, reactivity, or toxicity
Household Hazardous Waste Any hazardous debris disposed of by resident consumers
(some paints, stains, varnishes, solvents, and pesticides)
Infectious Waste Any debris that can cause infections in humans (animal
waste, human blood and blood products, medical waste,
pathological waste, and discarded sharps (needles, scalpels,
or broken medical instruments))
Chemical, Biological, Radiological,
and Nuclear-Contaminated Debris
Any debris contaminated by chemical, biological,
radiological, or nuclear materials (weapons of mass
destruction)
Chapter 6: Documenting Eligible Work and Costs
21
Chapter 6: Documenting Eligible Work and Costs
With proper documentation, an Applicant may fully account for debris clearance and removal
costs incurred as a result of a Presidentially declared disaster. A load ticket provides the most
comprehensive information and a paper trail for FEMA PA program reimbursement. To support
the documentation provided by the load tickets, monitors should use tower-monitoring logs,
roving monitor reports, daily issue logs, and truck certification forms as part of their reporting
process. Samples of these forms are included in Appendix B: Sample Debris Monitoring Plan
and Monitoring Forms. When ADMS technology is used, the data generated should clearly
display loading monitor and tower/site monitor names, load times, and locations so that an
individual’s daily activities can be easily reviewed.
The following describes the types of documentation that should be provided to FEMA PA to
substantiate eligible work performed and associated costs for grant funding.
Documenting Force Account Debris Operation Costs
When an Applicant uses its own force account resources to perform debris removal and disposal
work, requests for reimbursement should be supported by documentation of the labor and
equipment charges incurred in the operation. This includes:
• Payroll records of full-time and temporary employees working debris removal operations.
• Records of Applicant-owned equipment used in debris removal operations, including a
record of equipment hours in service, associated equipment rates, and operator name.
• Invoices of rental equipment used in the debris removal operation.
• Documentation from permitted final disposal locations including:
o Temporary disposal permits from State DEQ if temp site is utilized and Municipal
Solid Waste Permit number for final disposition.
o Invoices of disposal tipping fees.
o Quantities of debris disposed.
• Documentation of the location of the debris removal activities demonstrating FEMA
debris eligibility and/or documentation certifying that FEMA-eligible debris work was
performed.
Documenting Contractor Debris Operation Costs
The debris operation, if completed by contract, should have adequate controls in place to ensure
contract terms are adhered to, that only specified debris is removed, and proper documentation is
collected and compiled for payment purposes. Applicants should monitor the performance of
their contractors and ensure that they comply with their contract terms and conditions.34
When an Applicant has hired a contractor to perform debris removal work, documentation
should correspond with the invoiced costs and line item prices of the debris removal contract.
This documentation will be provided on monitoring forms and reports (refer to Appendix B:
34 Refer to PDAT resources when procuring with Federal grant awards: www.fema.gov/procurement-disaster-
assistance-team.
Chapter 6: Documenting Eligible Work and Costs
22
Sample Debris Monitoring Plan and Monitoring Forms), including load tickets and tower logs,
which will provide information on:
•Locations of debris removal.
•Type of debris removed.
•FEMA debris removal eligibility determination.
•Debris quantities (volume or weight determined at inspection site).
•Identification of debris hauling truck/trailer and contractor.
•Location of permitted final debris disposal site.
•Documentation of labor, equipment, and materials charges including hours of service and
associated charges (for time and materials contracts).
•Documentation of quantities of debris reduced or recycled at DMSs and associated
detailed charges.
•Invoices of disposal tipping fees.
In addition to the load tickets, summaries of the information included in the load tickets are
typically provided in support of an Applicant’s PA funding request. FEMA and the Recipient
may also request to see all backup supporting documentation and reports, including truck
certification forms, tower logs, roving monitor reports, and daily issue logs used to substantiate
claimed costs (refer to Appendix B: Sample Debris Monitoring Plan and Monitoring Forms).
Monitoring Reports
Applicants should have debris monitors submit daily reports on operational issues, including
DMS operations and safety issues, to promote situational awareness and help identify and
resolve issues. Regular reporting promotes quality assurance and provides the Applicant with a
consistent accounting of operations, issues, and costs in the field. This information is included in
reports such as tower monitor logs, roving monitor reports, and daily issue logs.
Electronic Load Tickets and Automated Reporting
Historically, debris monitoring operations have used the four-part paper load ticket system.
Depending on the size of the event, the manual process of filling out load tickets, transferring
copies, and entering data for reporting and data compilation purposes can be labor and time
intensive, and can result in human error.
Automated debris management tracking systems provide real-time and automated tracking and
reporting. Electronic load tickets, computer tablets, and systems employing electronic contractor
ID cards allow for instant data tracking, verification, and reporting. Some systems also
incorporate truck tracking systems, global positioning system (GPS) capability, and enhanced
analytical capabilities of debris monitoring data.
FEMA embraces technological advancements and recognizes the potential benefits of these
automated systems. As discussed in Chapter 1: General Eligibility Requirements, reasonable
costs associated with the use of electronic load ticket systems and other automated debris
monitoring systems may be eligible for PA funding.
Appendix A: Field Reference Guides
23
Appendix A: Field References Guides
DEBRIS MONITOR DUTIES AND RESPONSIBILITIES
FEMA Applicant Debris Monitor Applicant Field Supervisor
Safety
• Verify safety by
identifying possible
health/safety risks and
requiring proper field
safety gear.
• Ensure contractor is
complying with public and
employee safety standards.
• Ensure safety requirements
on State highways and roads
are observed during debris
operations (load limits, truck
covers, etc.).
• Be familiar with and maintain/
implement all safety
requirements.
Eligibility
• Verify compliance with
FEMA PA program
requirements (i.e., provide
eligibility guidance,
timeframe requirements,
and documentation and
reporting requirements).
• Verify compliance with
FEMA PA program
requirements.
• Ensure only eligible debris is
removed. Notify the field
supervisor of any ineligible
debris removal.
• Ensure that a reasonable level of
effort is applied to the
monitoring process,
commensurate with the debris
operations and the schedule.
• Ensure only eligible debris is
noted on tickets. Ensure any
ineligible activities are noted and
the associated tickets are not
recommended for invoicing.
Compliance
• Spot check debris loading,
staging, reduction, and
disposal sites to ensure
compliance with eligibility
requirements.
• Report any noncompliance,
misconduct, or other
negative actions to the
assigned FEMA staff for
appropriate coordination
and resolution with
State/Tribal and Applicant
officials.
• Ensure all work complies
with local ordinances and
SLTT and Federal
regulations.
• Monitor environmental
compliance on all debris
management sites (DMSs).
• Monitor preservation of
places and buildings
pertaining to the State’s
historic and archaeological
treasures.
• Obtain and become familiar with
the requirements outlined in all
debris removal and disposal
contracts to ensure the contract
requirements are implemented
correctly.
• Make unannounced visits to all
loading and disposal sites in an
assigned area.
• Take photographs of all trucks
and trailers used in the debris
operation, to establish a baseline
inventory of equipment.
Appendix A: Field Reference Guides
24
DEBRIS MONITOR DUTIES AND RESPONSIBILITIES
FEMA Applicant Debris Monitor Applicant Field Supervisor
Debris Operations
• Validate certification of
trucks and trailers.
• Evaluate operational
efficiency.
• Oversee documentation
requirements.
• Ensure trucks are measured,
certified, and operated
properly.
• Ensure trucks are loaded
properly and loads are
accurately evaluated.
• Verify load tickets are
properly completed and
controlled.
• Ensure only debris from
approved public areas is
removed.
• Assist in measuring all debris
hauling trucks and trailers for
truck certification. Coordinate
with the appropriate contractor
representatives, if applicable, to
confirm certification completion.
Management and Oversight
• Not Applicable • Ensure debris sites are
properly mobilized and
administered.
• Ensure accurate
recordkeeping and
appropriate documentation.
• Ensure contractor activities
are conducted as mandated in
contractor SOW.
• Serve as the first line of
management for debris monitors
and assist with any questions or
conflicts that arise.
• Prepare a daily written report of
all activities observed and
include photographs.
• Be familiar with all phases of
debris management operations.
Appendix A: Field Reference Guides
25
DEBRIS MONITOR DUTIES AND RESPONSIBILITIES
Applicant Debris Loading Monitor
Safety
• Check area for safety considerations, such as downed power lines, children playing in the area, traffic
control needs, and safe operation of trucks and equipment.
• Implement all safety requirements.
• Before work begins, inspect areas to identify covered utility meters, transformers, fire hydrants, mailboxes,
etc. (as a baseline to account for any damage as a result of the debris removal operations).
• Ensure that debris loads are contained properly before leaving the loading area.
Eligibility
• Determine whether each load is to be claimed for reimbursement based on established eligibility criteria,
and mark load tickets, if ineligible, for FEMA reimbursement.
• Validate eligible hazardous trees, including hangers, leaners, and stumps.
• Verify global positioning system (GPS) readings or an address/location for leaning trees, trees with hanging
limbs, and uprooted/exposed stumps that constitute an immediate threat; a separate ticket should be written
for these items if required in the contract.
• Do not issue tickets for trucks that arrive at pick-up sites already loaded or partially loaded.
• Ensure that force account labor and debris contractor work is within the assigned SOW.
Compliance
• Obtain and become familiar with the requirements outlined in all debris removal and disposal contracts to
ensure the contract requirements are implemented correctly.
• Report to field supervisor if debris removal work does not comply with all local ordinances as well as SLTT
and Federal regulations (i.e., improper disposal of hazardous wastes).
Debris Operations
• Ensure that hazardous wastes are not mixed into loads.
• Record the types of equipment used (for time-and-materials contracts).
• Record the hours equipment was used, including down time of each piece of equipment by day (for time-
and-materials contracts).
• Ensure that only debris specified by the Applicant is collected for loading and hauling.
• Ensure only debris from approved public areas is removed.
• Ensure the work area is clear of debris before equipment is moved to a new loading area.
• Prepare complete and accurate load tickets.
• Issue load tickets for each debris load to the truck driver.
• Evaluate and record performance and productivity of debris removal crews.
Communication
• Remain in constant contact with debris management/dispatch center or field supervisor.
• Report issues (such as safety concerns, contractor non-compliance, and improper equipment use) to field
supervisor.
• Maintain a log of debris operations issues.
• Photograph and provide written documentation of any damage to utility components, driveways, road
surfaces, private property, vehicles, etc.
• Perform other duties as directed by designated debris management personnel.
Appendix A: Field Reference Guides
26
DEBRIS MONITOR DUTIES AND RESPONSIBILITIES
Applicant Debris Tower/Site Monitor
Safety
• Check area for safety considerations, such as downed power lines, children playing in the area, traffic
control needs, and safe operation of trucks and equipment.
• Implement all safety requirements.
Compliance
• Obtain and become familiar with the requirements outlined in all debris removal and disposal contracts to
ensure the contract requirements are implemented correctly.
• Report to field supervisor if debris removal work does not comply with all local ordinances as well as SLTT
and Federal regulations (i.e., improper disposal of hazardous wastes).
• Coordinate with management to ensure and verify that DMSs are properly permitted for the debris reduction
methods utilized.
Debris Operations
• Ensure that hazardous wastes are not mixed into loads.
• Record the types of equipment used (for time-and-materials contracts).
• Record the hours equipment was used, including down time of each piece of equipment by day (for time-
and-materials contracts).
• Accurately measure and document load hauling compartments for trucks and trailers to compute volume
capacity in CY for each truck and trailer prior to its commencement of debris hauling operations (recertify
on regular basis).
• Recertify and re-measure truck capacities on a regular basis.
• Ensure that truck loads are accurately credited.
o Estimate the percentage of full capacity for each truck or trailer load.
o Ensure trucks are not artificially loaded (e.g., debris is wetted, fluffed, or not compacted).
• Verify the origination of debris and the destination either through load tickets or electronic monitoring
(ADMS).
• Physically control load tickets.
• Ensure that all debris is removed from trucks at DMSs.
• Monitor site development and restoration of DMSs.
• Oversee debris reduction (grinding, burning, chipping, etc.).
Communication
• Remain in constant contact with debris management/dispatch center or field supervisor.
• Report issues (such as safety concerns, contractor non-compliance, and improper equipment use) to field
supervisor.
Appendix A: Field Reference Guides
27
GENERAL DEBRIS MONITORING TIPS AND CONSIDERATIONS
Equipment
• The most common unit of measurement for vegetative and C&D debris is the CY. Debris trucks are
evaluated for capacity at the DMS or final disposal sites. Applicants should require contractors to use
appropriate equipment to load debris efficiently so that the maximum level of compaction can be
achieved to facilitate expeditious removal of debris from the public rights-of-way.
• All trucks and trailers will be measured and placarded with the measured capacity of the vehicle. The
Applicant should photograph all trucks/trailers to ensure that the capacity is not reduced by removing
sideboards or tailgates on the truck as the debris removal operation unfolds.
• Equipment limitations affect the maximum loading capacity of some vehicles.
• Hand-loaded trucks and trailers cannot achieve compaction levels comparable to mechanically loaded
vehicles. This effectively reduces the capacity of the hand-loaded truck or trailer compared to a truck or
trailer that is loaded mechanically. Therefore, FEMA only reimburses 50 percent of the debris monitor’s
observed capacity for a hand-loaded truck or trailer. Example: If a hand-loaded truck or trailer appears to
be 100 percent full, that load should be recorded at 50 percent. Hand-loading debris in trucks or trailers
does not achieve maximum compaction, and as a result, debris removal operations take longer to
complete. A hand-loaded truck hauls less debris by weight per CY than a mechanically loaded truck.35
• A truck with no tailgate or no solid tailgate cannot be compacted to its full capacity; therefore, FEMA
would automatically apply a 15 percent reduction to the total quantity and only considers a maximum of
85 percent of the certified truck capacity for reimbursement purposes.
Debris Challenges
• Vegetative Debris Challenges: Hazardous leaners, stumps, and hangers can be difficult to measure
consistently (particularly because monitors must determine if leaners are leaning at least 30 degrees and
eligible to be cut). Debris monitors should have a map of all roads and work with the Applicant’s public
works department to determine the length and location of the public right-of-way.
• Construction and Demolition Debris Challenges: Debris generated from prior construction work may be
comingled with disaster-generated C&D debris by citizens. Some citizens may claim that remodeling or
renovation work is C&D material too. Many people will choose to remodel a house after a storm instead
of demolishing it. The materials from the remodeling are not eligible; these are notable because they look
like new materials instead of disaster-damaged materials. A rule of thumb is that no bricks or foundation
material would be hauled or considered eligible for FEMA PA reimbursement.
• Hazardous Waste Challenges: Health issues, such as headaches and vomiting, can arise at a burning site
if the debris stream includes mixed debris and hazardous chemicals. Soil and air contamination can occur
at the pick-up location, along the transit route, and at the DMS. Appropriate precautionary measures
should be implemented when hazardous materials are identified. Further, the Applicant should implement
proactive measures to ensure that all hazardous materials are identified.
• White Goods Challenges: When debris removal is extended beyond 90-180 days, some residents will try
to discard their current appliance for free by claiming it is storm debris. The disposal requirements for
white goods should include instruction on how to prepare the white goods, ensuring the materials on the
curb do not present a safety hazard.
• Animal and/or Plant Pest and Noxious Weeds Challenges: When debris is generated from within a
regulated area to suppress and control an animal/plant pest, such as the Asian Longhorn Beetle, it
becomes important to ensure that the movement of debris does not allow the spread of said pest outside of
the area of containment. It will be important to follow proper biosecurity measures and environmental
35 Chapter 7.I.E.3 of the PAPPG.
Appendix A: Field Reference Guides
28
GENERAL DEBRIS MONITORING TIPS AND CONSIDERATIONS
assessments, plus coordination with State and Federal regulators, prior to removal of debris from a
containment area and similar approvals to move them to another area, especially across local/tribal/state
lines.36
Monitoring Tips
Monitors should be aware of situations that could impact an Applicant’s reimbursement under the PA
program. They should look for:
• Inaccurate Truck Capacities: Trucks should be measured before operating and load capacities should be
documented by truck number. Periodically, the Applicant should pull trucks out of operation and re-
measure.
• Trucks Not Fully Loaded: Do not accept the contention that loads are higher in the middle and if leveled
would fill the truck. Monitors should check to see if that statement is valid.
• Trucks Lightly Loaded: Trucks may arrive loaded with treetops (or a treetop) with extensive voids in the
load. Trucks need to be loaded to their full capacity with front-end loaders or other similar equipment to
compress the debris materials and remove any voids.
• Trucks Overloaded: Trucks cannot receive credit for more than the measured capacity of the truck or
trailer bed, even if material is above the sideboards. If a truck is measured to carry 18 CY, it cannot
receive credit for more than 18 CY. However, it can receive credit for less if not fully loaded or lightly
loaded as described above.
• Changing Truck Numbers: Typically, trucks are listed by an assigned vehicle number and capacity.
There have been occasions where truck or trailer numbers with a smaller carrying capacity have been
changed to one with a larger capacity. For instance, a 20 CY truck may have a number for a truck that can
carry 30 CY. This can be detected if the Applicant periodically re-measures the trucks or records actual
license plate numbers in addition to a description of the truck. Maintaining truck and trailer certifications
with attached photographs at the DMS tower can assist in eliminating such activities.
• Reduced Truck Capacity or Increased Truck Weight: On some occasions, trucks have had heavy steel
grating welded 2 to 3 feet above the bed after being measured, thus reducing the capacity or inflating the
weight of a load. This can be detected by periodically re-measuring the truck bed or recertifying the truck
tare weight.
• Wet Debris When Paid by Weight: Excessive water added to debris increases the weight of the load.
This can be detected during monitoring if there is excessive water dripping from the truck bed or by
inspecting the truck bed immediately after unloading. The Applicant should periodically recertify the
truck tare weight.
• Multiple Counting of the Same Load: To prevent reentry with the same load, trucks should not exit the
disposal site without unloading. This can be prevented by observing the time of departure and time of
arrival recorded on the driver’s load ticket. This check may also indicate problems with the Applicant’s
debris monitors at the loading or unloading site. Tower monitors should ensure the load ticket is checked
in and compared to the tower log-in sheet to determine if the truck’s round-trip time is appropriate.
36 Please refer to this website for current operations: https://www.aphis.usda.gov/aphis/ourfocus/planthealth/plant-
pest-and-disease-programs/pests-and-diseases.
Appendix A: Field Reference Guides
29
GENERAL DEBRIS MONITORING TIPS AND CONSIDERATIONS
• Picking up Ineligible Debris: Debris monitors should be present at loading sites. Monitors should have a
good understanding of eligible debris and any time limits imposed on picking up specific types of debris.
Examples of ineligible debris activities include sweeping areas for abandoned cars and white goods;
cleaning up illegal dump sites; removing cut trees from subdivisions under development; removing debris
from private property; and removing/cutting trees from off rights-of-way in rural areas.
DEBRIS MONITOR GUIDELINES FOR ESTIMATING QUANTITIES
Monitoring Debris Trucks – Guideline for Estimating Loads in Trucks
• Check the truck number on the placard.
• Check that the capacity (size) of the truck written on the ticket matches the size marked on the side of
the truck.
• Observe the truck load from the tower. Make sure that the truck is loaded with disaster debris. Ensure
that the truck is not falsely loaded.
• When the truck leaves, make sure it is completely empty.
• If there is no tailgate on a truck, the truck is not full. The maximum estimate of the capacity of the
load is 85 percent full. However, the monitor must use good judgment to determine if the load is really
85 percent. It is more likely that the truck is between 40 percent and 60 percent full.
• There are other percentage variations of how a truck can be filled (see illustrations and photographs
that follow).
• If there is a handloaded truck, there is an automatic 50 percent reduction.
Note: It is difficult, though not impossible, for a truck to be 100 percent loaded because woody debris,
trees, branches, and rubble cannot be placed in a truck without having air holes. Applicant debris monitors
typically record estimated volumes in 5 percent increments. FEMA will allow a truck to be recorded as
100 percent full if debris volumes can reasonably (and safely) be estimated to meet or exceed certified
truck container capacities.
Appendix A: Field Reference Guides
30
This truck has no structural tailgate—the capacity would
automatically be reduced from 20 CY to 17 CY (15 percent
reduction). Then the debris load itself is 75 percent of fully
loaded—12.8 CY.
This truck has no structural tailgate—the capacity would
automatically be reduced from 20 CY to 17 CY (15 percent
reduction). Then the debris load itself is 85 percent of fully
loaded—14.5 CY.
Appendix A: Field Reference Guides
31
Appendix A: Field Reference Guides
32
TYPES OF DEBRIS AND MONITORING CONSIDERATIONS
Type of
Debris Description of Debris Considerations for Monitoring Operations
Vegetative Includes whole trees, tree stumps, tree
branches, tree trunks, and other leafy material.
• Verify that only eligible debris is counted for
reimbursement purposes; keep a map of all roads and
rights-of-way for area.
• Ineligible debris should be identified accordingly.
• Evaluate the loaded capacities of the trucks/trailers to
determine the percentage of the rated capacity.
• Hand-loaded trucks/trailers are graded at 50 percent of
a load because of the low compaction achieved by
hand-loading.37
• This type of debris may be recyclable or have salvage
value; document separation and salvage operations
when implemented.
• For special vegetative debris considerations, please
refer to the PAPPG.38
Construction
and Demolition
(C&D)
Includes, but is not limited to, damaged
components of buildings and structures, such
as lumber and wood, gypsum wallboard, glass,
metal, roofing material, tile, carpeting and
floor coverings, pipe, concrete, fully cured
asphalt, equipment, furnishings, and fixtures.
• To be eligible for PA funding, C&D debris must
present an immediate threat.
• Must be disaster-generated.
Hazardous
Waste
Waste that is potentially harmful to human
health or the environment that exhibits at least
one of the following four characteristics:
• Ignitability
• Corrosivity
• Reactivity
• Toxicity
• Hazardous wastes may require segregation and special
handling.
• Document improper segregation.
• Notify appropriate authorities if unsafe practices are
observed during handling and disposal (know required
safety procedures for the circumstances).
• Monitor processing carefully and regularly to verify
the proper precautions are taken and the chain-of-
custody is maintained.
• Verify that hazardous wastes are delivered to an
appropriate DMS, as they can require special handling,
transportation, and final disposition.
Household
Hazardous
Waste (HHW)
Includes hazardous products and materials
used and disposed of by residential consumers,
such as some paints, stains, varnishes, solvents,
pesticides, and other products or materials
containing volatile chemicals that catch fire,
react, or explode under certain circumstances
or are corrosive or toxic.
• Verify and document that HHW is picked up and
handled by specialists from the State’s DEQ and/or the
EPA and managed in designated areas within the DMS.
• Verify and document that the chain-of-custody is
maintained throughout the collection, handling,
transport, and disposal of HHW.
Electronic
Waste
(e-waste)
Includes electronics such as cathode ray tubes
(computer monitors and televisions) that
contain hazardous materials.
• Ensure e-waste is segregated.
• Ensure e-waste is removed intact, collected, and stored
at the DMS for later processing.
• Document separation and salvage activities.
37 Chapter 7.I.E.3 of the PAPPG.
38 Chapter 7.I.B of the PAPPG.
Appendix A: Field Reference Guides
33
TYPES OF DEBRIS AND MONITORING CONSIDERATIONS
Type of
Debris Description of Debris Considerations for Monitoring Operations
White Goods Includes discarded household appliances such
as refrigerators, freezers, air conditioners, heat
pumps, ovens, ranges, washing machines,
clothes dryers, and water heaters.
• Document that white goods are collected separately,
cleaned, and processed to remove putrescent debris
inside and to remove all oils, solvents, and refrigerants.
• Verify and document that the DMS has adequate space
for processing white goods if collected without being
cleaned.
• Document separation and salvage activities.
Soil, Mud,
and Sand
Can be deposited on streets, sidewalks, storm
and sanitary sewers, water treatment facilities,
drainage canals and basins, parks, and public
swimming pools.
• Document that only disaster-generated silt and soils are
removed (must know pre-disaster condition and
documented maintenance).
• Document any contaminated soil issues to ensure
proper handling, processing, and disposition .
• Verify that any contaminated disaster-generated soils
are addressed by specialists from the State’s DEQ
and/or the EPA and managed appropriately in
designated areas.
Vehicles
and
Vessels
Includes vehicles and vessels meeting one of
the following criteria:
• Presents a hazard or immediate threat that
blocks ingress/egress within a public use
area.
• It is abandoned.
• Applicant followed local ordinance and
SLTT and Federal laws in securing
possession.
• Applicant has verified chain-of-custody
for the vehicle or vessel.
• Verify that each vehicle or vessel identification number
is documented and processed appropriately.
• Verify that collected vehicles and vessels are
transported to a secure collection area.
• Verify that vehicles are processed to remove all
minerals and fluids before processing or destruction.
• Document separation and salvage activities that are
implemented.
Putrescent
Debris
Includes debris that will decompose or rot,
such as animal carcasses.
• Document that collection is in accordance with
contract specifications or other requirements.
• Document actual volume of putrescent debris.
Infectious
Waste
Waste capable of causing infection in humans
including contaminated animal waste, human
blood and blood products, medical waste,
pathological waste, and discarded sharps.
• Document that collection and separation is in
accordance with prescribed safety and medical
practices.
• Document volume of debris.
• Verify that infectious waste debris quantities are well
documented, and chains-of-custody are maintained.
• Special handling, containerization, and disposal may be
required.
Chemical,
Biological,
Radiological,
and Nuclear
(CBRN)-
Contaminated
Debris
Includes debris contaminated by CBRN
sources.
• Ensure CBRN-contaminated debris is cleared by law
enforcement officials before removal so as not to
undermine integrity of the crime scene (as from a man-
made disaster).
• Be aware of the types of evidentiary material being
sought in case debris is located outside of the identified
crime scene.
• Verify and document the separation, processing, and
disposal to ensure it follows the prescribed procedures .
Appendix A: Field Reference Guides
34
DEBRIS MONITOR RESPONSIBILITIES FOR LOAD TICKETS
Monitor Load Ticket Responsibilities
Load Ticket Information Loading Monitor Tower/Site Monitor
Preprinted ticket number Not Applicable Not Applicable
Contract number Contracts may be identified by a number or name Prime contractor’s name
Date X
Truck number X
Truck driver’s name X
Vegetation X
Construction and Demolition Debris X
White Goods X
Household Hazardous Waste X
Other (required to be described applicable) X
Load location X
(GPS or address preferred)
Loading date/time (departure from collection
location) X
Loading Site Monitor name/signature X
Truck capacity in cubic yards or tons X
Load size, either cubic yards (percent of
capacity) or tons X
Unloading location X
Unloading date/time (arrival at disposal site) X
Tower/Site Monitor name/signature X
Appendix A: Field Reference Guides
35
TYPES OF DEBRIS REMOVAL CONTRACTS AND MONITORING CONSIDERATIONS
Contract Type Description of Contract Considerations for Monitoring Operations
Unit Price
Contract
• Used when individual work tasks
are known but the total amount
of work cannot be verified.
• Units of work can be measured
in terms of weight, volume, or
any other quantifiable measure.
• Documentation of the location, eligibility, and quantities of
debris is essential because the unit price contract is based on
an estimate of debris quantities.
• Closely monitor pick up, transportation, eligibility
determination, segregation, staging, reduction, and final
disposition.
• Maintain management of truck/trailer measurements; certify
all trucks before use.
Lump-Sum
Contract
• Used when the SOW can be
identified and quantified; use for
a well-defined SOW with a finite
contract period.
• Loading monitors must validate that only contract-identified
debris is collected.
• Debris should only be obtained from eligible sources.
• DMS site monitors should carefully review processing of
materials (quantities collected for processing and quantities
post-processing).
• Document truckloads and debris volumes to make sure final
volume matches contract.
Time-and-
Materials
Contract
• Used when the SOW necessary
to achieve an outcome is
unknown contractor is paid for
actual time, equipment usage
based on hourly rates, and
materials used (a ceiling prices is
required).
• Monitoring must be thorough.
• Inspection reports should be produced every day and
should include the following information:
o Number of hours worked
o Type and quantity of each type of
truck/trailer/equipment used
o Verification of equipment hours—document active
work hours only; “stand-by” time is not eligible for
FEMA funding
o Verification of labor hours compared to equipment
hours
o Document weather conditions as they might affect
daily work
o Monitor production rates for each staging and
reduction site
o Monitor performance
o Check quantities of debris hauled (CY)
o Load tickets can be used as a way of checking
contractor efficiency if debris is hauled based on CY
Appendix B: Sample Debris Monitoring Plan and Monitoring Forms
36
Appendix B: Sample Debris Monitoring Plan and Monitoring Forms
Sample Forms and Tables
are intended as guidance and
should be modified to meet
SLTT procurement rules and
regulations.
Appendix B: Sample Debris Monitoring Plan and Monitoring Forms
37
1.0 General
The _____________ has entered into a contract with ____________________________ for the
purpose of:
• Removing storm-generated debris from _________ rights-of-way and hauling the debris
to a temporary debris management site (DMS) for volume reduction and/or to a final
disposal site
• Setting up and operating _____ (_) DMS located at __________________
• Hauling chips/mulch from the debris volume reduction site(s) to a location of the Debris
Manager’s choosing
The Debris Manager will be responsible for monitoring the contractor’s debris removal and
disposal activities using debris monitoring contractor personnel to prepare debris load tickets and
oversee the debris removal and disposal contractor’s operations.
2.0 Purpose
The purpose of this plan is to outline the debris monitoring responsibilities of the debris
monitoring contractor’s personnel. This plan is subject to revision based on changing conditions.
3.0 Monitoring Operations
The debris removal and disposal contractor will be responsible for removing all eligible debris
from maintained street rights-of-way and hauling the debris to designated DMSs.
Contractor debris monitoring activities will be controlled by the Contractor’s Project Manager
located at _________________. Phone number is __________________.
The debris monitor’s workday is expected to be from 7 a.m. to 6 p.m., or a maximum of 10
hours per day, 7 days per week.
Debris monitors will be responsible for initiating debris load tickets at contractor debris loading
sites and estimating and recording the quantity of debris, in cubic yards (CY) on debris load
tickets of all vehicles entering temporary DMSs (Figure B-1).
3.1 Loading Site Monitors
The loading site monitor is responsible for completing the debris load ticket, the Daily Loading
Site Monitor Log, and the Daily Debris Issue Log. Each of these is described below.
Sample Debris Load Ticket
The loading site monitor will complete Section 1 of the load ticket (Figure B-1) for all contractor
debris-hauling vehicles. The monitor will keep one copy and give the original and remaining
copies to the truck driver. The monitor’s copy will be submitted to the debris monitoring
Appendix B: Sample Debris Monitoring Plan and Monitoring Forms
38
contractor’s Data Entry Supervisor or designated representative on a daily basis. Load ticket
information will be entered into a database by the monitoring contractor’s data entry staff.
Figure B-1: Sample Debris Load Ticket
The loading site monitor should be responsible for initiating load tickets (Figure B-1) where
trucks are loaded and verifying the estimated amount of debris hauled at the temporary storage
area or landfill. The Applicant monitors must provide a list of the measured truck capacities in
CY and license plate number of all trucks to be used to move debris upon award of the debris
removal contract.
Once a truck is loaded with debris at the loading site, the loading site monitor should fill out a
load ticket. The load tickets issued by the loading site monitors are the basis for debris contractor
payment. Each item in the load ticket must be completed or the load ticket will not be considered
valid.
Sample Daily Debris Loading Site Monitor Log
The Daily Debris Loading Site Monitor Log (Figure B-2) is used by the Applicant and/or FEMA
debris loading site monitor to collect data at the debris pick-up sites. The loading site monitor
Appendix B: Sample Debris Monitoring Plan and Monitoring Forms
39
monitors the removal and disposal crews at several loading sites. The number of crews
monitored will depend on the geographical area and volume of debris.
It is important for the debris loading site monitor to document the pick-up site locations (using
addresses, mile-markers, or GPS readings) to ensure that debris being picked up is eligible and
contractors are working where they were assigned. When issues arise, they should be
documented on the Daily Issues Log (see next section). Each loading site monitor should provide
his or her name and company name on the form. The loading site monitor should record any
issues noted for that day and provide comments concerning that day’s operation; photographs
should also be provided as needed. Photographs should be taken of any safety violations or other
unusual events affecting the debris operation. The debris loading site monitor should document
the type of debris being removed.
Time Ticket
Number
Truck
Number
Full
Truck
Rated
Capacity
(CY)
Pickup
Location
Vegetative
Debris
C&D
Debris
White
Goods/
Metals
Other Issues or
Comments/
Pictures Disc
Figure B-2: Debris Loading Site Monitor Log
Sample Daily Issue Log
The Daily Issue Log (Figure B-3) is used by the Applicant and/or FEMA debris loading site
monitor to collect data at the location where any issue of significance should be recorded. When
documenting information on the Daily Issue Log, the location, monitoring personnel, truck
identification data, and details of the issue being resolved should be recorded. For any eligibility
or capacity issues, photographs (identified by corresponding numbers on the log sheet) should
accompany this log.
Issue
No.
Truck
No.
Load
Ticket
Pick-Up
Location
Contractor/
Sub-
contractor
Applicant
Monitor
Photo/
Disc
Issue/Resolution
Figure B-3: Daily Issue Log
Appendix B: Sample Debris Monitoring Plan and Monitoring Forms
40
3.2 Debris Disposal Tower/Site Monitors
Disposal tower/site monitors will be located at the entrance to the DMS or landfill where the
inspection tower is located. They will be responsible for estimating and recording the CY of
debris in appropriate location on the lower portion of the load ticket (Figure B-1) for all
incoming debris-hauling vehicles. The following procedures will be followed:
• The tower/site monitor will be stationed in the inspection tower and estimate the quantity of
debris contained in the truck or trailer in CY. Each truck or trailer will have the measured
hauling capacity in CY recorded on the side of the truck or trailer. That number should be
validated with the quantity stated in appropriate location on the upper portion of the load
ticket (Figure B-1).
• The tower/site monitor will record the name and the arrival time of the truck and confirm the
type of debris in the truck.
• The tower/site monitor will record the estimated volume of debris contained within the bed
of the truck or trailer, in CY, under “Unloading Information” on the load ticket. The monitor
must print and sign his/her name in the designated block on the load ticket.
The tower/site monitor may find it useful to use an estimating table such as shown in Table
B-1 and should also refer to the job aid presented in Appendix A: Field Reference Guides -
Debris Monitor Guidelines for Estimating Quantities.
Table B-1: Estimating Truck/Trailer Capacity
Truck/Trailer Size
- CY
100%
CY
90%
CY
85%
CY
80%
CY
75%
CY
Note: Truck/trailer without a tailgate is rated at 85 percent of capacity to start.
• The tower/site monitor will retain the original of the load ticket and give the remaining
copies to the truck driver. The original load ticket will be submitted to the monitoring
contractor’s Data Entry Supervisor or designated representative on a daily basis. Load ticket
information will be entered into a database by the monitoring contractor’s data entry staff.
Load tickets are controlled forms and cannot be lost since they will be used to verify the
amount of money paid to the debris reduction site contractor and to the debris hauling
contractor.
Appendix B: Sample Debris Monitoring Plan and Monitoring Forms
41
Sample Daily Debris Site/Monitoring Tower Log
The Daily Debris Tower Log (Figure B-4) on the following page can be used by the Applicant
and/or FEMA tower/site monitor to record the truck data, document estimates of the load
volumes, and describe what types of debris are being brought into the DMS or landfill.
Documenting the tower and pick-up site locations is important so that debris can be correlated
and tracked. Each tower/site monitor should provide his or her name and company name on the
form. The tower/site monitor should record any issues noted for that day and provide comments
concerning that day’s operation; photographs should also be provided as needed. Photographs
should be taken of any safety violations or other unusual things affecting the debris operation.
Time Ticket
Number
Truck
Number
Full
Truck
Rated
Capacity
(CY)
Applicant QA
Eligible
Capacity (%
CY/Weight(Wt))
FEMA
Eligible
Capacity
(%
CY/Wt)
Vegetative
Debris
C&D
Debris
White
Goods/
Metals
Other Issues or
Comments/
Pictures
Disc
Figure B-4: Daily Debris Tower/Site Monitoring Log
4.0 Truck Certification Form
The Applicant should ensure that every truck and trailer to be used in debris removal operations
is measured and documented on a Truck Certification Form (Figure B-5). Knowing the hauling
capacity of each truck is necessary because debris, specifically vegetative debris, is often hauled
and billed by volume. Accurately capturing all the truck capacity information and driver profile
information is important; having a FEMA PA representative present when certifying debris
trucks is recommended.
Truck documentation should include all trucks to be used, including City/County trucks and
trailers. A Truck Certification Form allows the debris monitor to identify the truck itself and its
hauling capacity in a standardized manner. The following information should be documented:
• Capacity of hauling bed (CY)
• License plate number
• Truck identification number assigned by the owner
• Brief physical description of the truck
• Photographs
Determining an accurate capacity for each truck is important. Refer to Truck Certification Form
Calculation Instructions (on page B-12) for additional information.
Appendix B: Sample Debris Monitoring Plan and Monitoring Forms
42
The information on the Truck Certification Form should be entered into a database by the data
entry staff. Copies of the Truck Certification Form should be on file with the Applicant and kept
in the truck throughout the operational period.
Debris monitors may need to be trained to measure truck capacities for certification purposes.
Recertification of the hauling trucks on a random and periodic basis should be implemented for
contract compliance and reimbursement considerations.
Truck Information
Make: Year: Color: License:
Truck Measurements
Performed By: Date:
Volume Calculated By: Date
Both Checked By: Date:
Driver Information
Name:
Address: Phone Number:
Owner Information
Name:
Address: Phone Number:
Truck Identification: Truck Capacity:
Photo
Figure B-5: Truck Certification Form
Appendix B: Sample Debris Monitoring Plan and Monitoring Forms
43
Truck Certification Form Calculation Instructions
Instructions to take the necessary dimensions of corner wedge (refer to Figure B-6):
“a”: Along the side of the bed, measure the distance from the point where the rounded
part of the bed starts, to the front corner of the bed.
“b”: Equal to “a.”
“c” and “d”: Along the side of the bed, mark the point where the rounded part of the bed
starts, and along the front of the bed, also mark the point where the rounded part of the
bed ends. Run a string between the two points and measure the distance between them;
half of that distance is “c” and half of the distance is “d” (“c” and “d” are equal).
“e”: Measure the distance from the mid-point of the string that was stretched from the
side to the front of the bed in the previous step to the rounded part of the bed.
Extra trailer: The volume calculations for the extra trailer would be simply length x width
x height if the extra trailer has a rectangular bed. However, if the extra trailer also has
round corners at the front, the volume calculation would be the same as explained above.
Instructions to take the necessary dimensions of round bottom truck (refer to Figure B-6):
“a”: The width of the bed.
“b”: The depth of the vertical portion (the side) of the bed.
“c” and “d”: Both are equal to half the width of the bed.
“e”: Run a string between the lower ends of the vertical portions of the bed (the sides)
and measure the distance from the mid-point of the string to the bottom of the bed.
NOTE: All dimensions used in the above formulas must be in feet, with inches converted to
fractions of feet, using the following conversions (for example, 8 feet, 5 inches should be written
as 8.42 feet):
1 inch = .08 foot 7 inches = .58 foot
2 inches = .17 foot 8 inches = .67 foot
3 inches = .25 foot 9 inches = .75 foot
4 inches = .33 foot 10 inches = .83 foot
5 inches = .42 foot 11 inches = .92 foot
6 inches = .50 foot
Appendix B: Sample Debris Monitoring Plan and Monitoring Forms
44
Appendix B: Sample Debris Monitoring Plan and Monitoring Forms
45
5.0 Sample Debris Collection Summary Spreadsheet
The Debris Collection Summary Spreadsheet (Figure B-7) is used to capture the total amount
and types of debris removed and disposed of, as well as the cost for each. This information may
also be helpful to FEMA to validate any debris prediction models that are run, as well as
establishing reasonable costs for debris removal.
CY Unit
Price
$
CY Unit
Price
$
CY Unit
Price
$
CY Unit
Price $
Average
Haul
Distance
Primary Disposal
Method
CY to
Landfill
Vegetative C&D HHW White Goods
Figure B-7: Debris Data Collection Summary Spreadsheet
Appendix C: Monitoring Contract Process/Documents
46
Appendix C: Monitoring Contract Process/Documents
Sample documents are
intended as guidance and
should be modified to meet
applicable SLTT
procurement rules and
regulations.
Appendix C: Monitoring Contract Process/Documents
47
Sample Request for Proposal Cover Letter for Debris Monitoring Services
Date:
Subject: Request for Proposals for Disaster Debris Monitoring
The ______________________________invites qualified firms to respond to this request for
proposal (RFP) by providing their qualification and experience for consideration to provide
Disaster Debris Monitoring Services on an as-needed basis.
DISASTER DEBRIS MONITORING SERVICES
The scope of services shall include, but not be limited, to the following:
The ________________________________ seeks qualified firm(s) to assist in the monitoring of
disaster debris collection and disposal operations on behalf of the ____________________,
ensuring compliance with Federal requirements and Applicant debris management plans as
related to contractor oversight, truck measurements, load ticket preparation and issuing, report
preparation, and project administration.
The Debris Monitoring Contractor shall provide personnel to monitor at least ________ debris
loading sites and up to _______ personnel to monitor debris management sites (DMS)/disposal
sites located in _____________. Each site will operate approximately 12 to 14 hours per day, 7
days per week. The exact number and locations of sites will be determined by the Debris
Manager.
The Debris Monitoring Contractor’s on-site Project Manager shall also assign a field supervisor
who will be assigned to provide oversight of up to 10 loading site and tower/site debris monitors.
The Debris Monitoring Contractor shall provide all management, supervision, labor,
transportation, and equipment necessary to initiate load tickets at debris loading sites, estimate
the volume of debris (in cubic yards) being delivered by trucks to each DMS/disposal site, and
support the operations of the field supervisor(s), debris loading and tower/site monitors, and
clerical staff.
Scope of Services for Debris Management to include field supervisors, debris loading monitors,
tower/site debris monitors, and clerical staff is at Attachment 1.
The Bid Schedule (Attached) must be completed and submitted with your proposal.
The RFP should be limited to 10 pages and address the following:
• Office location responsible for this project
• Key personnel
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• Evidence of satisfactory completion of disaster debris monitoring in the past 5 years at
similar jurisdictions
• The scope, project budget, and operational duration (include the firm’s contract manager,
and phone number and e-mail address for each disaster response or project, if available)
• Summarized past relevant experience for each response should include the following:
o Type of disaster—hurricane, tropical storm, tornado, etc.
o Type of jurisdiction—city, county, district, or combination
o Collection debris monitoring assignments
o DMS debris monitoring assignments
o Final disposal debris monitoring functions
o FEMA reimbursement actions and issue resolution
• List of references
• Knowledge and experience with Applicant solid waste regulations and the disaster debris
management policies
• Sub-consultant(s)/subcontractors that may be used on this project
• 3-year claims/litigation history and status
Any material received that is not requested may be discarded. Bindery (except removable
fasteners) in any form is not preferred, nor is specially prepared covers, dividers, tables of
content, organizational charts, reference letters, etc.
The evaluations made as a result of reviewing the above information from each firm will be part
of the basis for developing a short list of firms who may be scheduled to make presentations
before the Selection/Negotiation Committee (S/NC), and may serve as continuing information
for the final ranking.
SELECTION/NEGOTIATION PROCESS
An S/NC has been appointed by the _____________________ and will be responsible for
recommending the most qualified firm(s) with whom to begin negotiation of an agreement for
this project. The process for this procurement is anticipated, but not required, to proceed in the
following manner:
REVIEW OF WRITTEN SUBMITTALS
Each firm should submit documents that provide evidence of capability to provide the Debris
Monitoring services required for this project. Each short-listed firm will be contacted via
telephone and a follow-up letter advising of date and time for presentations/interviews.
The ________________ will not consider oral/written communications, prior to the conclusion
of short-listing firms, that vary the terms of the submittals.
PRESENTATIONS/INTERVIEWS
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49
The S/NC may provide a list of subject matter for discussion. Each short-listed firm will be given
equal time to make presentations, but the question-and-answer time may vary.
All inquiries are to be directed to ___________________________ at ____________________.
Interested firms should submit four copies of materials that indicate interest and qualifications to:
Submittals MUST BE RECEIVED by the ____________________ no later than 5:00 p.m. on
___________, 20__. Electronically transmitted and late or misdirected submittals will not be
accepted.
Signature________________________________
Attachment 1 – Scope of Services
Attachment 2 – Bid Schedule
THIS SAMPLE IS INTENDED AS GUIDANCE AND SHOULD BE MODIFIED TO
MEET APPLICABLE SLTT PROCUREMENT RULES AND REGULATIONS.
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50
Sample Scope of Services for Debris Monitoring Services
General
Provide debris monitors and debris monitoring services to assist the City/County with monitoring
the operations of the disaster debris removal and disposal contractor(s). The debris monitoring
services to be provided are contract compliance supervision and inspection, not professional
engineering services. All debris monitoring activities are to be in compliance with current FEMA
guidance and applicable SLTT and Federal regulations.
Pre-Event Requirements
Contractor will provide assistance in preparation for disasters through participation in meetings
and workshops and the establishment of data management and other integrated systems.
Contractor will, at no cost to the City/County:
• Provide City/County full-time personnel with a half-day debris management training
session. Training program must, at a minimum, meet the training requirement for debris
monitors as outlined by current FEMA debris management guidance.
• Provide a list of key personnel and subcontractors that may be involved in the disaster
debris monitoring activities to include facsimile, cell phone numbers, and e-mail
addresses.
• Participate in annual workshops or planning meetings with City/County representative
and debris hauling and disposal contractor(s) to establish/review applicable policies and
procedures.
Post-Event Requirements
Contractor will assist with load inspections for storm debris cleanup being performed by one or
more debris hauling and disposal contractors or City/County agencies.
Contractor shall supply sufficient number of trained debris monitors and trained field supervisors
to accommodate the volume of debris to be removed at loading sites and debris management
sites or final disposal sites.
Contractor shall supply one field supervisor to oversee no more than 10 loading and tower/site
debris monitors.
Contractor shall remove and replace employees immediately upon notice from the City/County
Debris Manager for conduct or actions not in keeping with this contract.
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Personnel Requirement and Responsibilities
Debris Monitoring Field Supervisor
Consultant will provide one debris monitoring field supervisor for no more than 10 debris
loading site debris monitors.
Services include, but are not limited to:
• Overseeing and supervising loading site and disposal site debris monitoring activities
• Scheduling debris monitoring resources and deployment timing
• Communicating and coordinating with City/County personnel
• Providing suggestions to improve the efficiency of collection and removal of debris
• Coordinating daily activities and future planning
• Remaining in contact with debris management/dispatch center or supervisor
• Identifying, addressing, and troubleshooting any questions or problems that could affect
work area safety and eligibility
• Supervising the accurate measurement of load hauling compartments and accurately
computing volume capacity in cubic yards (CY)
• Documenting and recording measurements and computations
• Documenting truck hauling compartment condition using digital photographs
• Ensure all truck certifications are complete and available to all parties
Debris Monitors
Consultant will provide trained debris monitoring personnel to oversee the loading of eligible
debris at collection sites and verification of load capacity and documentation at designated
temporary debris management or final disposal sites. Services include, but are not limited to:
Debris Loading Site Monitors
Consultant will perform on-site, street-level debris monitoring at all contractor loading sites
to verify debris eligibility based on the monitoring contract’s requirements and initiate debris
removal documentation using load tickets. Services include, but are not limited to:
• Providing trained debris monitoring personnel at designated loading sites to check and
verify information on debris removal operations
• Monitoring collection activity of trucks
• Issuing load tickets at loading site for each load
• Checking the area for safety considerations such as downed power lines and children
playing in area, and ensuring that traffic control needs are met, and trucks and equipment
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52
are operated safely. Notify supervisors of concerns regarding the safe operation of trucks
and equipment
• Ensuring that Freon-containing appliances are sorted and ready for Freon removal on-site
or separating transport for Freon removal before final disposal
• Performing a pre-work inspection of areas to identify potential problems such as covered
utility meters, transformers, fire hydrants, mailboxes, etc. to mitigate damage from
loading equipment
• Documenting damage to utility components, driveways, road surfaces, private property,
vehicles, etc., should it occur, with photographs (if possible, collect information about
owner, circumstances of the damage [who, what, when, where] and report to field
supervisor)
• Ensuring the work area is clear of debris to the specified level before equipment is moved
to a new loading area. Notify supervisor/manager of any concerns regarding inadequate
debris clearance
• Properly monitoring and recording performance and productivity of debris removal crew
• Remaining in regular contact with debris management/dispatch center or supervisor
• Ensuring that loads are contained properly before leaving the loading area
• Ensuring that only eligible debris is collected for loading and hauling
• Ensuring that only debris from approved public areas is loaded for removal
• Performing other duties from time to time as directed by the debris management project
manager or designated debris management personnel
Debris Tower/Site Monitors
Consultant will provide debris tower and site monitors to verify estimated quantities of
eligible debris hauled by contractor trucks and documented on load tickets. Services include,
but are not limited to:
• Providing trained debris monitoring personnel to accurately measure load hauling
compartments and accurately compute volume capacity in CY for all contractor trucks
and trailers prior to commencement of debris hauling operations
• Documenting measurements and computations
• Completing record of contract haulers’ cubic yardage and other recordkeeping as needed
on the load ticket
• Initialing each load ticket before permitting trucks to proceed from the check-in area to
the tipping area
• Remaining in regular contact with debris management/dispatch center or field supervisor
• Performing other duties as directed by the dispatch/staging operation, debris management
project manager, or other designated personnel
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53
Clerical/Data Entry Supervisor
Consultant will provide a clerical/data entry supervisor to coordinate data entry and information
management systems. Services include, but are not limited to:
• Supervising the preparation of detailed estimates and submitting them to the City/County
debris manager
• Implementing and maintaining a disaster debris management system linking the load
ticket and debris management site information, including reconciliation and photographic
documentation processes
• Providing daily, weekly, or other periodic reports for the City/County debris manager
noting work progress and efficiency, current/revised estimates, project completion, and
other schedule forecasts/updates
Clerical Staff/Data Entry Clerk
Consultant will provide clerical staff/data entry clerk(s) as required to enter load ticket
information into the contractor’s information management systems and to respond to specific
directions from the data entry supervisor.
Terms
The work shall begin on notice to proceed and continue for no longer than 60 days, unless
extended by the City/County with 10 days written notice.
Deployment
Consultant must be prepared to deploy debris monitors within 24 hours from the notice to
proceed. When additional debris monitoring is needed to meet requirements of the monitoring
contract, consultant shall be prepared to increase the number of debris monitors for the
City/County to use as needed.
THIS SAMPLE IS INTENDED AS GUIDANCE AND SHOULD BE MODIFIED AS
APPROPRIATE TO ADDRESS THE CONDITIONS OF THE OPERATION.